LAFCO
Public Review Draft
Read the report at Local Agency Formation Commissions ↗
Report tto thhe Coontraa Costa
Loccal AAgenncy FFormmatioon
CCommmisssion
Puubliic Reevieew DDrafft
MMuniicipaal Seerviice RReviiew::
Laaw EEnfoorceement SServvicess
BBaraccoo & Assocciates
Policy Consultting Assoociates, LLC
Rogeer Neuman
July 15, 2011
Table of Contents
Table of Contents
Table of Contents ...................................................................................................................................................................................................... i
List of Tables and Figures .................................................................................................................................................................................. vi
List of Maps ............................................................................................................................................................................................................ viii
Acronyms and Glossary ...................................................................................................................................................................................... ix
Acronyms ............................................................................................................................................................. ix
Glossary .............................................................................................................................................................. xii
1. Executive Summary ................................................................................................................................................................................. 13
Service Providers ................................................................................................................................................. 14
Growth and Service Demand .............................................................................................................................. 15
Service Levels ...................................................................................................................................................... 16
Infrastructure Needs ........................................................................................................................................... 17
Financing............................................................................................................................................................. 17
Accountability ..................................................................................................................................................... 18
Governance Alternatives ..................................................................................................................................... 18
MSR Determinations ........................................................................................................................................... 25
2. LAFCO and Municipal Service Reviews ........................................................................................................................................... 28
LAFCO Overview .................................................................................................................................................. 28
Municipal Service Review Origins ....................................................................................................................... 29
Municipal Service Review Legislation ................................................................................................................. 31
Spheres of Influence ............................................................................................................................................ 32
MSR and SOI Update Process .............................................................................................................................. 33
3. Law Enforcement Services Overview ............................................................................................................................................... 35
Provider Overview ............................................................................................................................................... 35
Police Services ..................................................................................................................................................... 40
Specialized Services ............................................................................................................................................. 40
Dispatch .............................................................................................................................................................. 41
Staffing Levels ..................................................................................................................................................... 42
Funding Levels .................................................................................................................................................... 44
Service Demand .................................................................................................................................................. 47
Service Adequacy ................................................................................................................................................ 49
Facilities and Equipment ..................................................................................................................................... 54
Critical Issues ...................................................................................................................................................... 55
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Law Enforcement MSR
4. City of Antioch ............................................................................................................................................................................................ 57
Agency Overview ................................................................................................................................................ 57
Law Enforcement ................................................................................................................................................ 62
Service Demand and Service Adequacy .............................................................................................................. 64
5. City of Brentwood ..................................................................................................................................................................................... 67
Agency Overview ................................................................................................................................................ 67
Law Enforcement ................................................................................................................................................ 72
Service Demand and Service Adequacy .............................................................................................................. 74
6. City of Clayton ............................................................................................................................................................................................ 77
Agency Overview ................................................................................................................................................ 77
Law Enforcement ................................................................................................................................................ 81
Service Demand and Service Adequacy .............................................................................................................. 83
7. City of Concord ........................................................................................................................................................................................... 86
Agency Overview ................................................................................................................................................ 86
Law Enforcement ................................................................................................................................................ 92
Service Demand and Service Adequacy .............................................................................................................. 94
8. Town of Danville ....................................................................................................................................................................................... 97
Agency Overview ................................................................................................................................................ 97
Law Enforcement .............................................................................................................................................. 101
Service Demand and Service Adequacy ............................................................................................................ 103
9. City of El Cerrito ..................................................................................................................................................................................... 106
Agency Overview .............................................................................................................................................. 106
Law Enforcement .............................................................................................................................................. 112
Service Demand and Service Adequacy ............................................................................................................ 114
10. City of Hercules ....................................................................................................................................................................................... 117
Agency Overview .............................................................................................................................................. 117
Law Enforcement .............................................................................................................................................. 121
Service Demand and Service Adequacy ............................................................................................................ 123
11. City of Lafayette...................................................................................................................................................................................... 126
Agency Overview .............................................................................................................................................. 126
Law Enforcement .............................................................................................................................................. 131
Service Demand and Service Adequacy ............................................................................................................ 132
12. City of Martinez ...................................................................................................................................................................................... 136
Agency Overview .............................................................................................................................................. 136
ii
Table of Contents
Law Enforcement .............................................................................................................................................. 142
Service Demand and Service Adequacy ............................................................................................................ 143
13. Town of Moraga ..................................................................................................................................................................................... 147
Agency Overview .............................................................................................................................................. 147
Law Enforcement .............................................................................................................................................. 152
Service Demand and Service Adequacy ............................................................................................................ 154
14. City of Oakley ........................................................................................................................................................................................... 157
Agency Overview .............................................................................................................................................. 157
Law Enforcement .............................................................................................................................................. 163
Service Demand and Service Adequacy ............................................................................................................ 164
15. City of Orinda ........................................................................................................................................................................................... 168
Agency Overview .............................................................................................................................................. 168
Law Enforcement .............................................................................................................................................. 172
Service Demand and Service Adequacy ............................................................................................................ 174
16. City of Pinole ............................................................................................................................................................................................ 177
Agency Overview .............................................................................................................................................. 177
Law Enforcement .............................................................................................................................................. 183
Service Demand and Service Adequacy ............................................................................................................ 185
17. City of Pittsburg ...................................................................................................................................................................................... 188
Agency Overview .............................................................................................................................................. 188
Law Enforcement .............................................................................................................................................. 193
Service Demand and Service Adequacy ............................................................................................................ 195
18. City of Pleasant Hill ............................................................................................................................................................................... 198
Agency Overview .............................................................................................................................................. 198
Law Enforcement .............................................................................................................................................. 203
Service Demand and Service Adequacy ............................................................................................................ 204
19. City of Richmond .................................................................................................................................................................................... 208
Agency Overview .............................................................................................................................................. 208
Law Enforcement .............................................................................................................................................. 214
Service Demand and Service Adequacy ............................................................................................................ 216
20. City of San Pablo .................................................................................................................................................................................... 220
Agency Overview .............................................................................................................................................. 220
Law Enforcement .............................................................................................................................................. 226
Service Demand and Service Adequacy ............................................................................................................ 227
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Law Enforcement MSR
21. City of San Ramon.................................................................................................................................................................................. 231
Agency Overview .............................................................................................................................................. 231
Law Enforcement .............................................................................................................................................. 236
Service Demand and Service Adequacy ............................................................................................................ 237
22. City of Walnut Creek ............................................................................................................................................................................. 241
Agency Overview .............................................................................................................................................. 241
Law Enforcement .............................................................................................................................................. 248
Service Demand and Service Adequacy ............................................................................................................ 250
23. County Service Areas ............................................................................................................................................................................ 253
County Service Area P-2 .................................................................................................................................... 253
County Service Area P-5 .................................................................................................................................... 262
County Service Area P-6 .................................................................................................................................... 266
County Service Area M-29 ................................................................................................................................. 272
County Service Area M-30 ................................................................................................................................. 277
24. Diablo Community Services District .............................................................................................................................................. 281
Agency Overview .............................................................................................................................................. 281
25. Kensington Police Protection and CSD ......................................................................................................................................... 286
Agency Overview .............................................................................................................................................. 286
Law Enforcement .............................................................................................................................................. 291
Service Demand and Service Adequacy ............................................................................................................ 292
Non-LAFCO Agencies ....................................................................................................................................................................................... 295
26. Contra Costa County Sheriff .............................................................................................................................................................. 295
Agency Overview .............................................................................................................................................. 295
Law Enforcement .............................................................................................................................................. 299
Service Demand and Service Adequacy ............................................................................................................ 305
27. Regional Agencies .................................................................................................................................................................................. 310
BART Police Department ................................................................................................................................... 310
East Bay Regional Park District ......................................................................................................................... 310
28. State Agencies ......................................................................................................................................................................................... 312
California Department of Fish and Game ......................................................................................................... 312
California Highway Patrol ................................................................................................................................. 312
Mount Diablo State Park .................................................................................................................................. 312
29. Federal Agencies .................................................................................................................................................................................... 314
Amtrak .............................................................................................................................................................. 314
Military Ocean Terminal, Concord (MOTCO) .................................................................................................... 314
iv
Table of Contents
United States Coast Guard ................................................................................................................................ 315
United States Marshall ..................................................................................................................................... 315
30. Educational Agencies ........................................................................................................................................................................... 316
California State University, East Bay ................................................................................................................. 316
Contra Costa Community College District ......................................................................................................... 316
John F. Kennedy University ............................................................................................................................... 318
St. Mary’s College ............................................................................................................................................. 318
West Contra Costa Unified School District ........................................................................................................ 319
31. Private Companies ................................................................................................................................................................................ 320
Calpine Delta Energy Center and Los Medanos Energy Center ......................................................................... 320
Chevron Richmond Refinery .............................................................................................................................. 320
Conoco Phillips San Francisco Refinery ............................................................................................................. 321
Crockett Cogeneration Plant ............................................................................................................................. 321
General Chemical Bay Point Works .................................................................................................................. 321
MWECS, Inc. (Monsanto) Avon Plant ................................................................................................................ 322
Rhodia Chemical Martinez Plant....................................................................................................................... 322
Shell Chemical Catalyst Plant ............................................................................................................................ 322
Shell Martinez Refinery ..................................................................................................................................... 323
Tesoro Golden Eagle Refinery ........................................................................................................................... 323
Union Pacific Railroad Company ....................................................................................................................... 323
32. Organizations and Persons Contacted ......................................................................................................................................... 324
v
Law Enforcement MSR
List of Tables and Figures
FIGURE 1-1: LAW ENFORCEMENT PROVIDERS UNDER LAFCO JURISDICTION ............................................................ 14
FIGURE 2-1: COMMISSION MEMBERS, 2010 ................................................................................................................. 29
FIGURE 3-1: LAW ENFORCEMENT PROVIDERS .............................................................................................................. 35
FIGURE 3-2: STAFFING LEVELS PER 1,000 RESIDENTS (FY 10-11) .............................................................................. 43
FIGURE 3-3: GENERAL FUND EXPENDITURES PER CAPITA (FY 09-10) ........................................................................ 44
FIGURE 3-4 ANNUAL AVERAGE SERVICE CALLS PER CAPITA (CY 07-09) ................................................................... 47
FIGURE 3-5: TOTAL CRIMES PER 1,000 POPULATION (CY 07-09) ................................................................................. 48
FIGURE 3-6: CLEARANCE RATES (CY 07-09) ............................................................................................................... 49
FIGURE 3-7: PRIORITY 1 RESPONSE TIMES (2009) ........................................................................................................ 51
TABLE 3-1: STAFF AND BUDGET INDICATORS .............................................................................................................. 52
TABLE 3-2: SERVICE INDICATORS ................................................................................................................................ 53
FIGURE 4-1: ANTIOCH PD EXPENDITURES (FYS 08, 09, & 10) ..................................................................................... 61
FIGURE 4-2: ANTIOCH PD STAFFING LEVELS ............................................................................................................... 63
FIGURE 4-3: VIOLENT AND PROPERTY CRIMES (2007-2009) ........................................................................................ 64
FIGURE 4-4: ANTIOCH LAW ENFORCEMENT PROFILE ................................................................................................... 66
FIGURE 5-1: BRENTWOOD PD EXPENDITURES (FYS 08, 09, & 10) ............................................................................... 72
FIGURE 5-2: BRENTWOOD PD STAFFING LEVELS ......................................................................................................... 73
FIGURE 5-3: VIOLENT AND PROPERTY CRIMES (2007-2009) ........................................................................................ 74
FIGURE 5-4: BRENTWOOD LAW ENFORCEMENT OVERVIEW ......................................................................................... 76
FIGURE 6-1: CLAYTON PD EXPENDITURES (FYS 08, 09, & 10) .................................................................................... 81
FIGURE 6-2: CLAYTON PD STAFFING LEVELS .............................................................................................................. 82
FIGURE 6-3: VIOLENT AND PROPERTY CRIMES (2007-2009) ........................................................................................ 83
FIGURE 6-4: CLAYTON LAW ENFORCEMENT OVERVIEW .............................................................................................. 85
FIGURE 7-1: CONCORD PD EXPENDITURES (FYS 08, 09, & 10) .................................................................................... 91
FIGURE 7-2: CONCORD PD STAFFING LEVELS .............................................................................................................. 92
FIGURE 7-3: VIOLENT AND PROPERTY CRIMES (2007-2009) ........................................................................................ 94
FIGURE 7-4: CONCORD LAW ENFORCEMENT OVERVIEW ............................................................................................. 96
FIGURE 8-1: DANVILLE PD EXPENDITURES (FYS 08, 09, & 10) ................................................................................. 101
FIGURE 8-2: DANVILLE PD STAFFING LEVELS ........................................................................................................... 102
FIGURE 8-3: VIOLENT AND PROPERTY CRIMES (2007-2009) ...................................................................................... 103
FIGURE 8-4: DANVILLE LAW ENFORCEMENT OVERVIEW ........................................................................................... 105
FIGURE 9-1: EL CERRITO PD EXPENDITURES (FYS 08, 09, & 10) .............................................................................. 111
FIGURE 9-2: EL CERRITO PD STAFFING LEVELS ........................................................................................................ 113
FIGURE 9-3: VIOLENT AND PROPERTY CRIMES (2007-2009) ..................................................................................... 114
FIGURE 9-4: EL CERRITO LAW ENFORCEMENT OVERVIEW ....................................................................................... 116
FIGURE 10-1: HERCULES PD EXPENDITURES (FYS 08, 09, & 10) .............................................................................. 121
FIGURE 10-2: HERCULES PD STAFFING LEVELS ........................................................................................................ 122
FIGURE 10-3: VIOLENT AND PROPERTY CRIMES (2007-2009) ................................................................................... 123
FIGURE 10-4: HERCULES LAW ENFORCEMENT OVERVIEW ........................................................................................ 125
FIGURE 11-1: LAFAYETTE PD EXPENDITURES (FYS 08, 09, & 10) ............................................................................ 130
FIGURE 11-2: LAFAYETTE PD STAFFING LEVELS ...................................................................................................... 131
FIGURE 11-3: VIOLENT AND PROPERTY CRIMES (2007-2009) ................................................................................... 132
FIGURE 11-4: LAFAYETTE LAW ENFORCEMENT OVERVIEW ...................................................................................... 135
FIGURE 12-1: MARTINEZ PD EXPENDITURES (FYS 08, 09, & 10) ............................................................................... 141
FIGURE 12-2: MARTINEZ PD STAFFING LEVELS ......................................................................................................... 142
FIGURE 12-3: VIOLENT AND PROPERTY CRIMES (2007-2009) .................................................................................... 143
FIGURE 12-4: MARTINEZ LAW ENFORCEMENT OVERVIEW ........................................................................................ 146
FIGURE 13-1: MORAGA PD EXPENDITURES (FYS 08, 09, & 10) ................................................................................ 152
FIGURE 13-2: MORAGA PD STAFFING LEVELS .......................................................................................................... 153
FIGURE 13-3: VIOLENT AND PROPERTY CRIMES (2007-2009) ................................................................................... 154
FIGURE 13-4: MORAGA LAW ENFORCEMENT OVERVIEW .......................................................................................... 156
FIGURE 14-1: OAKLEY PD EXPENDITURES (FYS 08, 09, & 10) .................................................................................. 162
FIGURE 14-2: OAKLEY PD STAFFING LEVELS ........................................................................................................... 163
FIGURE 14-3: VIOLENT AND PROPERTY CRIMES (2007-2009) ................................................................................... 164
vi
List of Tables and Figures
FIGURE 14-4: OAKLEY LAW ENFORCEMENT OVERVIEW ........................................................................................... 167
FIGURE 15-1: ORINDA PD EXPENDITURES (FYS 08, 09, & 10) .................................................................................. 172
FIGURE 15-2: ORINDA PD STAFFING LEVELS ............................................................................................................ 173
FIGURE 15-3: VIOLENT AND PROPERTY CRIMES (2007-2009) ................................................................................... 174
FIGURE 15-4: ORINDA LAW ENFORCEMENT OVERVIEW ............................................................................................ 176
FIGURE 16-1: PINOLE PD EXPENDITURES (FYS 08, 09, & 10) ................................................................................... 183
FIGURE 16-2: PINOLE PD STAFFING LEVELS ............................................................................................................. 184
FIGURE 16-3: VIOLENT AND PROPERTY CRIMES (2007-2009) .................................................................................... 185
FIGURE 16-4: PINOLE LAW ENFORCEMENT OVERVIEW .............................................................................................. 187
FIGURE 17-1: PITTSBURG PD EXPENDITURES (FYS 08, 09, & 10) ............................................................................. 193
FIGURE 17-2: PITTSBURG PD STAFFING LEVELS ....................................................................................................... 194
FIGURE 17-3: VIOLENT AND PROPERTY CRIMES (2007-2009) .................................................................................... 195
FIGURE 17-4: PITTSBURG LAW ENFORCEMENT OVERVIEW ....................................................................................... 197
FIGURE 18-1: PLEASANT HILL PD EXPENDITURES (FYS 08, 09, & 10) ....................................................................... 202
FIGURE 18-2: PLEASANT HILL PD STAFFING LEVELS ................................................................................................ 203
FIGURE 18-3: VIOLENT AND PROPERTY CRIMES (2007-2009) ................................................................................... 205
FIGURE 18-4: PLEASANT HILL LAW ENFORCEMENT OVERVIEW ............................................................................... 207
FIGURE 19-1: RICHMOND PD EXPENDITURES (FYS 08, 09, & 10) ............................................................................. 213
FIGURE 19-2: RICHMOND PD STAFFING LEVELS ........................................................................................................ 215
FIGURE 19-3: VIOLENT AND PROPERTY CRIMES (2007-2009) .................................................................................... 216
FIGURE 19-4: RICHMOND LAW ENFORCEMENT OVERVIEW ....................................................................................... 219
FIGURE 20-1: SAN PABLO PD EXPENDITURES (FYS 08, 09, & 10) ............................................................................. 225
FIGURE 20-2: SAN PABLO PD STAFFING LEVELS ...................................................................................................... 226
FIGURE 20-3: VIOLENT AND PROPERTY CRIMES (2007-2009) ................................................................................... 227
FIGURE 20-4: SAN PABLO LAW ENFORCEMENT OVERVIEW ...................................................................................... 230
FIGURE 21-1: SAN RAMON PD EXPENDITURES (FYS 08, 09, & 10) ........................................................................... 235
FIGURE 21-2: SAN RAMON PD STAFFING LEVELS ..................................................................................................... 236
FIGURE 21-3: VIOLENT AND PROPERTY CRIMES (2007-2009) ................................................................................... 238
FIGURE 21-4: SAN RAMON LAW ENFORCEMENT OVERVIEW ..................................................................................... 240
FIGURE 22-1: WALNUT CREEK PD EXPENDITURES (FYS 08, 09, & 10) ..................................................................... 247
FIGURE 22-2: WALNUT CREEK PD STAFFING LEVELS................................................................................................ 249
FIGURE 22-3: VIOLENT AND PROPERTY CRIMES (2007-2009) ................................................................................... 250
FIGURE 22-4: WALNUT CREEK LAW ENFORCEMENT OVERVIEW ............................................................................... 252
FIGURE 23-1: CSA P-2, ZONE A REVENUES AND EXPENDITURES (FYS 08, 09, & 10) ................................................ 256
FIGURE 23-2: CSA P-2, ZONE B REVENUES AND EXPENDITURES (FYS 08, 09, & 10) ................................................ 258
FIGURE 23-3: CSA P-2, NO ZONE REVENUES AND EXPENDITURES (FYS 08, 09, & 10) ............................................. 260
FIGURE 23-4: CSA P-5 REVENUES AND EXPENDITURES (FYS 08, 09, & 10) .............................................................. 264
FIGURE 23-5: CSA P-6 REVENUES AND EXPENDITURES – PROPERTY TAX BASE (FYS 08, 09, & 10) ........................ 270
FIGURE 23-6: CSA P-6 REVENUES AND EXPENDITURES – ZONE BASE (FYS 08, 09, & 10) ....................................... 271
FIGURE 23-7: CSA M-29 REVENUES AND EXPENDITURES (FYS 08, 09, & 10) .......................................................... 275
FIGURE 23-8: CSA M-30 REVENUES AND EXPENDITURES (FYS 08, 09, & 10) ........................................................... 280
FIGURE 25-1: KENSINGTON PD EXPENDITURES (FYS 08, 09, & 10) .......................................................................... 290
FIGURE 25-2: KENSINGTON PD STAFFING LEVELS .................................................................................................... 291
FIGURE 25-3: VIOLENT AND PROPERTY CRIMES (2007-2009) ................................................................................... 292
FIGURE 25-4: KENSINGTON CSD LAW ENFORCEMENT OVERVIEW ........................................................................... 294
FIGURE 26-1: SHERIFF’S OFFICE EXPENDITURES (FYS 08, 09 & 10) .......................................................................... 299
FIGURE 26-2: UNINCORPORATED COMMUNITIES ........................................................................................................ 301
FIGURE 26-3: SHERIFF’S OFFICE STAFFING LEVELS (FYS 08, 09, & 10) ..................................................................... 302
FIGURE 26-4: VIOLENT AND PROPERTY CRIMES (2007-2009) .................................................................................... 306
FIGURE 26-5: SHERIFF LAW ENFORCEMENT OVERVIEW ............................................................................................ 308
vii
Law Enforcement MSR
List of Maps
MAP 3-1: CONTRA COSTA LAW ENFORCEMENT SERVICE PROVIDERS ......................................................................... 36
MAP 3-2: WESTERN CONTRA COSTA LAW ENFORCEMENT SERVICE PROVIDERS ........................................................ 37
MAP 3-3: CENTRAL CONTRA COSTA LAW ENFORCEMENT SERVICE PROVIDERS ......................................................... 38
MAP 3-4: EASTERN CONTRA COSTA LAW ENFORCEMENT SERVICE PROVIDERS ......................................................... 39
MAP 4-1: CITY OF ANTIOCH ......................................................................................................................................... 60
MAP 5-1: CITY OF BRENTWOOD .................................................................................................................................. 71
MAP 6-1: CITY OF CLAYTON ....................................................................................................................................... 80
MAP 7-1: CITY OF CONCORD ....................................................................................................................................... 90
MAP 8-1: TOWN OF DANVILLE .................................................................................................................................. 100
MAP 9-1: CITY OF EL CERRITO .................................................................................................................................. 110
MAP 10-1: CITY OF HERCULES .................................................................................................................................. 120
MAP 11-1: CITY OF LAFAYETTE ................................................................................................................................ 129
MAP 12-1: CITY OF MARTINEZ .................................................................................................................................. 140
MAP 13-1: TOWN OF MORAGA .................................................................................................................................. 150
MAP 14-1: CITY OF OAKLEY ..................................................................................................................................... 161
MAP 15-1: CITY OF ORINDA ...................................................................................................................................... 171
MAP 16-1: CITY OF PINOLE ....................................................................................................................................... 181
MAP 17-1: CITY OF PITTSBURG ................................................................................................................................. 191
MAP 18-1: CITY OF PLEASANT HILL .......................................................................................................................... 201
MAP 19-1: CITY OF RICHMOND ................................................................................................................................. 212
MAP 20-1: CITY OF SAN PABLO ................................................................................................................................. 224
MAP 21-1: CITY OF SAN RAMON ............................................................................................................................... 234
MAP 22-1: CITY OF WALNUT CREEK .......................................................................................................................... 246
MAP 23-1: CSA P-2 ................................................................................................................................................... 254
MAP 23-2: CSA P-5 ................................................................................................................................................... 263
MAP 23-3: CSA P-6 ................................................................................................................................................... 269
MAP 23-4: CSA M-29 ............................................................................................................................................... 274
MAP 23-5: CSA M-30 AND VICINITY ........................................................................................................................ 279
MAP 24-1: DIABLO CSD ............................................................................................................................................ 283
MAP 25-1: KENSINGTON PPCSD ............................................................................................................................... 289
viii
Acronyms and Glossary
Acronyms and Glossary
Acronyms
AB Assembly Bill
ABAG Association of Bay Area Governments
AI Internal Affairs
ATF Bureau of Alcohol, Tobacco, Firearms and Explosives
ATV All-terrain vehicle
AV Assessed valuation
AVL Automatic Vehicle Locator
BART San Francisco Bay Area Rapid Transit District
BOE State Board of Equalization
BOS Contra Costa County Board of Supervisors
CAB Centralized Administrative Base Fund
CAD Computer Aided Dispatch
CAFR Comprehensive Annual Financial Report
CALEA Commission on Accreditation of Law Enforcement Agencies
CAT Community Action Team
CCCNET Central Contra Costa Narcotic Enforcement Team
CCCSO Contra Costa County Sheriff’s Office
CCMRMIA Contra Coast Municipal Risk Management Insurance Authority
CCTV Closed-captioned television
CDP Census Designated Place
CEQA California Environmental Quality Act
CERT Community Emergency Response Team
CFD Community Facilities District
CHP California Highway Patrol
CIP Capital Improvement Plan
CIT Crisis Intervention Training
CJPRMA California Joint Powers Risk Management Authority
CKH Act Cortese-Knox-Hertzberg Local Government Reorganization Act of 2000
CNWS Concord Naval Weapons Station
COPPS California Citizen’s Option for Police Programs
COPS Citizens Option for Public Safety
COPS Community Oriented Policing Services (in the City of Martinez)
CPD Concord Police Department
CPSU Community Preservation and Safety Unit
CPTED Crime Prevention through Environmental Design
CRO Community Resource Officer
CSA County Service Area
CSAC-EIA California State Association of Counties-Excess Insurance Authority
CSD Community Services District
CSO Community Service Officer
CSUEB California State University, East Bay
CY Calendar Year
DARE Drug Abuse Resistance Education
DA District Attorney
DFG California Department of Fish and Game
ix
Law Enforcement MSR
DIF Development Impact Fee
DOJ California Department of Justice
DUI Driving under the influence
EBRCS East Bay Regional Communication System Authority
EBRPD East Bay Regional Park District
EOC Emergency Operations Center
FTE Full Time Equivalent
FY Fiscal Year
GIS Geographic Information Systems
IA Internal Affairs
ICAC Internet Crimes Against Children
ICS Incident Command System
JAG Edward Memorial Justice Assistance Grant
JPA Joint Powers Authority
KPP&CSD Kensington Police Protection and Community Services District
LAFCO Local Agency Formation Commission
MAC Municipal Advisory Council
MAMFF Mutual Aid Mobile Field Force
MCDF Marsh Creek Detention Facility
MDF Martinez Detention Facility
MOTC Military Ocean Terminal at Concord
MOU Memorandum of Understanding
MPA Municipal Pooling Authority
MPANC Municipal Pooling Authority of Northern California
MSR Municipal Service Review
NA Not applicable
NCCCTF Northern California Computer Crimes Task Force
NP Not provided
NPA Neighborhood Policing Areas
NTMP Neighborhood Traffic Management Program
PAL Police Activities League
PD Police Department
PERS Public Employees’ Retirement System
PHPD Pleasant Hill Police Department
PIO Public Information Officer
POST Police Officers Standards and Training
PSAP Public Safety Answering Point
RDA Redevelopment Agency
RMIS Risk Management Information System
RMS Records Management System
RPAL Richmond Police Activities League
RZ Reporting zones
SEA Special Entry and Apprehension
SLESF Supplemental Law Enforcement Service Funds
SO Contra Costa County Sheriff’s Office
SOI Sphere of influence
SRO School Resource Officer
SWAT Special Weapons and Tactics
TK To come
TRA Tax Rate Area
TSAC Traffic Safety Advisory Committee
x
Acronyms and Glossary
UC University of California
UCR Uniform Crime Reporting Program
ULL County-wide Urban Limit Line
USD Unified School District
VINE State Victim Notification Service
VIPS Volunteers in Police Service
VSET Vehicle Theft Suppression Enforcement Team
WCDF West County Detention Facility
WCPD Walnut Creek Police Department
WestNET West Contra Costa County Narcotic Enforcement Team
YANA You Are Not Alone Program
YES Youth Education Services
xi
Law Enforcement MSR
Glossary
Violent Crimes
Homicide, forcible rape, aggravated assault, and robbery.
Property Crimes
Burglary, motor vehicle theft, and larceny-theft over $400.
Cleared Crimes
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.
Calls for service response categories:
Priority 1
Emergency call which requires immediate response and there is reason to believe that an immediate
threat to life exists.
Priority 2
Emergency call which requires immediate response and there exists an immediate and substantial risk
of major property loss or damage.
Priority 3
Crimes in progress that require an immediate response but present no significant threat of serious
physical injury or major property damage or any active incident or activity that could be classified as
a possible crime or potential threat to life or property.
Police Complaint Disposition categories:
Unfounded
When the investigation discloses that the alleged act(s) did not occur or did not involve department
personnel. Complaints which are determined to be frivolous will fall within the classification of
unfounded.
Exonerated
When the investigation discloses that the alleged act occurred, but that the act was justified, lawful
and/or proper.
Not Sustained
When the investigation discloses that there is insufficient evidence to sustain the complaint or fully
exonerate the employee.
Sustained
When the investigation discloses sufficient evidence to establish that the act occurred, and that it
constituted misconduct.
xii
Executive Summary
1. Executive Summary
This report is a County-wide Law Enforcement Municipal Service Review (MSR) prepared for
the Contra Costa Local Agency Formation Commission (LAFCO). Contra Costa LAFCO is required to
prepare MSRs by the Cortese-Knox-Hertzberg Local Government Reorganization Act of 2000 (CKH
Act) pursuant to Government Code §56000 et seq.) This MSR reviews police services provided by
public agencies (the County, cities and special districts) whose boundaries and governance are
subject to LAFCO. The report also recognizes public agencies and private companies with a role in
policing or security that are not subject to LAFCO jurisdiction.
Caveats
This report includes analysis of municipal service delivery and policy options for the
Commission to consider as it makes its determinations with respect to the MSR and any sphere of
influence (SOI) updates that are subsequently considered by the Commission. The decision
whether or not to approve or disapprove any policy options, with or without amendments, wholly,
partially or conditionally, rests entirely with the Commission. This report is not a substitute for any
discretionary decisions yet to be made by the Commission.
The authors exercised their professional judgment in selecting the most reliable and recent data
sources, and gathering compatible data from the various sources and providers. Data are rarely
perfect. Discrepancies currently exist with respect to response times for Priority 1 calls and crime
clearance rates. The authors are attempting to reconcile these discrepancies for publication in the
final report.
Affected agencies were afforded an opportunity to review and comment on basic agency profile
information with respect to their individual agencies. Where comments have been received,
appropriate revisions were incorporated into the report. Through the formal public review
process, additional opportunities will be available for comments and corrections.
Credits
The authors extend their appreciation to those individual staff members at all the agencies that
provided interviews, data and reports, answers to questions, and a willingness to share
information. Contributors are listed by agency or company at the end of this report.
Contra Costa LAFCO Executive Officer, Lou Ann Texeira, provided project direction and detailed
review. Credit is also attributed to Kate Sibley, Commission Clerk, and Chris Howard from Contra
Costa County Community Development Department GIS Group.
This report was co-authored by Bruce Baracco, Principal Planner with Baracco and Associates,
and Jennifer Stephenson, Principal with Policy Consulting Associates, LLC. Retired Police Chief
Roger Neuman provided technical assistance. Research assistance was provided by Oxana
Kolomitsyna, Jerome Keene, and Melody Harvey.
13
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.
Figure 1-1: Law Enforcement Providers Under LAFCO Jurisdiction
This MSR also includes profile
Cities
information on other law enforcement
Antioch
service providers not under LAFCO
Brentwood
jurisdiction, including regional, state, and
federal agencies; educational agencies; Clayton
and private companies. Please refer to Concord
Chapters 27 through 31. Danville
El Cerrito
This report is the sole MSR in this
Hercules
cycle for the Contra Costa County Sheriff’s
Lafayette
Office (SO) and three special districts:
Martinez
County Service Area (CSA) P-2, CSA P-5,
Moraga
and CSA P-6. The SO is a County-wide
agency for which a Sphere of Influence Oakley
(SOI) is not a consideration; however, Orinda
because of the interconnections with Pinole
other law enforcement agencies within Pittsburg
the County, it is important to review the
Pleasant Hill
Office of the Sheriff. LAFCO will utilize
Richmond
this MSR to review and possibly update
San Pablo
the SOIs for the three law enforcement
San Ramon
related special districts listed above, and
Walnut Creek
possibly for other agencies covered in the
MSR. Contra Costa County
Office of the Sheriff (SO)
MSRs covering all municipal services
Special Districts
were prepared for the 19 cities previously
CSA P-2/Zone A (Blackhawk) & Zone B (Alamo)
as referenced in each city chapter of this
CSA P-5/(Roundhill)
report. City police services information
CSA P-6/(County-wide except incorporated cities)
gathered for this report will be utilized
Diablo CSD
for any subsequent city MSRs in the next
cycle. Four special districts that provide CSA M-29 (Dougherty Valley)
polices services were previously studied CSA M-30 (Alamo Springs)
in their respective MSRs for district-wide Kensington PP & CSD
services. These are the Diablo
Community Services District, the Kensington Police Protection and Community Services District,
and CSA M-29 and CSA M-30.
14
Executive Summary
Growth and Service Demand
Each law enforcement agency within Contra Costa County considers its customer base to be the
residents, businesses, visitors, and students in its respective service area as well as the facilities,
infrastructure, open space and amenities that make up the County.
Each year, the law enforcement agencies in the County serve over one million residents, spend
over $500 million, respond to 1.5 million calls for service, and address 4,500 violent crimes and
20,500 property crimes; all the while presenting themselves as professionals doing their jobs and
participating in numerous community events, activities, and celebrations.
Service demand as measured by crimes per 1,000 population were high (more than 30 per
thousand) in Antioch, El Cerrito, Pinole, Richmond, and San Pablo; and low (less than 10 per
thousand) in Danville, Moraga and San Ramon. The remaining agencies, including the Sheriff’s
Office, Brentwood, Clayton, Concord, Hercules, Kensington, Lafayette, Martinez, Oakley, Orinda,
Pittsburg, Pleasant Hill and Walnut Creek fell in between. For details refer to Table 3-1 in the
Overview chapter.
According to the 2010 Census, there were 1,049,025 people living in Contra County. This is an
increase of 100,179 (10.6%) over the Year 2000 population. Among the nine Bay Area counties,
Contra Costa experienced the fastest residential growth since 2000. Population in the County is
expected to grow by 9,000 to 10,000 residents each year over the next 20 years, according to ABAG
projections. Population growth is expected to be highest in Brentwood, San Ramon, Oakley,
Richmond, and Hercules. Moderate population growth is expected in Pittsburg, Antioch and
Concord. Lower growth is expected in the unincorporated portion of the County, Clayton, Danville,
El Cerrito, Kensington (unincorporated), Lafayette, Martinez, Moraga, Orinda, Pinole, Pleasant Hill,
San Pablo, and Walnut Creek.
There were approximately 377,000 jobs in Contra Costa County in 2010. The job base is
projected to grow by 7,000 to 8,000 jobs per year over the next 20 years according to ABAG. There
was about one job per household in 2010. Job creation is expected to outpace residential growth
over the next 20 years, resulting in a jobs to household ratio of 1.12 by 2030. Some communities
have a higher concentration of jobs than others. The jobs-housing ratio is highest in Ran Ramon
and Walnut Creek; and is above average in Concord, Martinez, Pleasant Hill and Lafayette. The pace
of job creation over the next 20 years is projected to be most rapid in Oakley, Brentwood, Pittsburg,
Hercules, and Antioch. Job creation at a moderate pace is projected for San Pablo, El Cerrito, San
Ramon, and Martinez; with a slower pace in the unincorporated portion of the County, Clayton,
Concord, Danville, Kensington, Lafayette, Moraga, Orinda, Pinole, Pleasant Hill, Richmond, and
Walnut Creek.
Planned or proposed developments are most concentrated in Brentwood, Oakley, San Ramon,
Concord, Richmond, and Hercules. Details on potential development projects are included in each
city chapter.
In terms of planning for services, those jurisdictions that are expected to experience a higher
rate of residential growth, a higher jobs to housing ratio, and higher job creation can expect a
greater demand on law enforcement services over the next few years. In particular, Brentwood,
San Ramon, Oakley, and Hercules will need to address higher demands for police services.
15
Law Enforcement MSR
Service Levels
With very few exceptions, law enforcement agencies in Contra Costa County are able to provide
full coverage (24-7) within their respective services areas. Patrol Officers and Patrol Deputies are
assigned to specified beats which are designed to provide the appropriate coverage based on the
time of day and day of the week. Most police departments (PDs) and the SO tailor their patrol
coverage to address these variations, and to be as efficient as possible. These aspects will become
more important as financial resources for police services are reduced to address budgetary
shortfalls.
This situation is becoming more common, as a number of PDs have eliminated specialty officers
(school resource officers, K-9 units, detectives, traffic officers) and specialty support staff
(community service officers) in order to maintain basic beat patrol services. This is especially
evident at the Office of the Sheriff where, during the past three fiscal years, the overall staffing
levels for the SO have been reduced by 70 positions including 50 sworn staff and 20 support staff.
This continues a trend which began in 2003, and has resulted in an overall reduction of 84 sworn
positions (approximately 11% of the 2003 level). Over the past eight years, the major reductions
have been in sworn staff within the Patrol Services Division (70 Deputies), and the Criminal
Investigation Unit of the Investigations Services Division (9 Deputies).
All city PDs and the SO have a single officer or deputy for each patrol vehicle (i.e., no ‘double
officer’ vehicles). This may result in additional miles traveled (when an officer or deputy requires
assistance), but is much more efficient in covering respective beat areas than a double officer
configuration.
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. Country-wide, officers and deputies respond to Priority 1 incidents within an
average time of five minutes and 53 seconds (5:53). Longer Priority 1 response times are found in
the unincorporated area (8:39) due to longer travel distances, Antioch (7:21), Concord (12:15),
Martinez (7:30), and San Ramon (7:08). Quickest Priority 1 response times are Clayton (1:30),
Kensington (1:30), and Walnut Creek (2:30). Details are provided in Table 3-2 in the Overview
Chapter.
One measure of staffing levels is the number of sworn officers per 1,000 population. 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
County ranged from 0.7 sworn staff per 1,000 residents in Danville, Moraga and Lafayette, to 2.0 in
Kensington CSD. The countywide average is 1.2 sworn staff per 1,000 residents. Details are
provided in Table 3-1 in the Overview Chapter.
16
Executive Summary
Infrastructure Needs
Half of the law enforcement agencies within the County are housed in stand-alone facilities; that
is, they are located in a separate building from other agency facilities. The other half are part of a
‘City Hall’ type building, or combined with a fire department. Overall, police facilities for all
agencies are in good to excellent condition, and provide adequate space for the various functions
that are part of day-to-day police activities. Most have secure parking for police vehicles and
specialty equipment.
Facility needs identified in the study include:
Lafayette PD Housed in a converted office building; shares the building with other City
offices. Currently at maximum capacity for personnel. Does not have
secured parking.
Orinda PD Housed in the easterly half of the main floor at City Hall. Has a need for a
secure reception area and separate restrooms. Does not have secured
parking.
Pleasant Hill PD Currently at maximum capacity for office space. In need of a secure parking
area.
Sheriff’s Office Currently, the SO utilizes five different locations to house SO functions, which
especially affects the Forensic Services Division.
Of the existing Patrol Stations, Delta Station requires replacement or
significant improvements. In addition, the Field Operations Building will
require expansion.
The Martinez Detention Facility (MDF), a maximum-security facility, was
opened in 1981 (30-years ago) with a design capacity of 386 inmates in
single-person rooms. With the necessity of double-bunking in most rooms,
MDF is now rated by the California Department of Corrections to house 695
inmates, which is the average daily inmate population in recent years.
Most city police departments with substations or satellite offices have been forced to close
those facilities due to budget cuts. The exceptions are Brentwood PD which just opened a
substation in the Streets of Brentwood Shopping Center, and San Ramon PD which currently
operates a ‘store front’ satellite office in Dougherty Valley.
Financing
The law enforcement agencies within Contra Costa County spend over $500 million per year on
law enforcement services, $200 million alone by the SO.
Police services are financed primarily through the General Fund and augmented by grant funds
such as the Federal Community Oriented Policing Services (COPS) program and the California
Citizen’s Option for Police Programs (COPPS) program; by Supplemental Law Enforcement Service
Funds (SLESF); and by charges for services, fines and forfeitures, contributions, development
impact fees, and interest (which are considered General Fund monies). Not all PDs utilize all these
sources of funds, and for the most part rely heavily on General Fund revenues for police services.
17
Law Enforcement MSR
Costs for police services in Contra Costa County averaged $296 per capita for General Fund
expenditures. Per capita costs ranged from a high of $606 in Richmond to a low of $125 in Moraga.
Details are provided in Table 3-1 of the Overview Chapter.
Another measure of relative costs is the percentage of General Fund revenues spent for law
enforcement services, including in most cases, costs for animal control. Percentages ranged from a
high of 73 percent in Antioch and San Pablo, to a low of 27 percent in Hercules and San Ramon.
Details are provided in Table 3-1 of the Overview Chapter.
Accountability
Local accountability and governance for law enforcement can be measured using a variety of
factors. This MSR focused on the decision making process, visibility and accessibility, community
outreach and education, and customer service.
Those cities and law enforcement special districts with comprehensive websites are highly
transparent when it comes to PD staffing, operations, budgeting, and performance measures. A few
of the PDs allow citizens to contact individual officers directly by e-mail. Those less likely to have
information readily available are those without websites, or website that are difficult to navigate.
Of the 28 law enforcement-related agencies covered under this MSR, 13 have established citizen
advisory committees to advise the PDs and the decision-making bodies regarding law enforcement
and community issues. These include: Antioch PD, CSA P-2/ Zone A (Blackhawk), CSA P-2/Zone B
(Alamo), CSA P-5 (Roundhill), CSA P-6 (Discovery Bay only), Diablo CSD, El Cerrito PD, Hercules PD,
Kensington PP&CSD, Lafayette PD, Orinda PD, Richmond PD, and San Pablo PD. Advisory
Committees can assist in gauging community preferences and priorities, and in increasing
transparency for public agencies.
Of the 28 law enforcement agencies covered under this MSR, five publish an Annual Report or
PD Summary of the previous year’s activities, staffing, statistics, mission statement, goals,
accomplishments, and community outreach efforts. These include: Antioch, Danville, Orinda,
Pinole, and Richmond. Annual Reports can be utilized to promote the PD and keep the citizenry
informed of the Department’s ongoing efforts to protect the community. Staff time to prepare and
publication costs are issues in the current budget climate; however, most of the PDs already
generate the basic information contained in an Annual Report, and can publish economically by
electronic means and/or post to the PD website.
Governance Alternatives
This section discusses opportunities, issues and challenges with respect to the current
organization of law enforcement services in Contra Costa County. It identifies alternatives to the
current government structure of service providers, including potential for consolidation or
dissolution of various agencies.
LAFCO is required to identify governance options; however, LAFCO is not required to initiate
changes and, in many cases, is not empowered to initiate these options.1 LAFCO is required by the
State to act on SOI updates. The Commission may choose to recommend governmental
1 LAFCO can initiate SOI changes, along with mergers, consolidations, dissolutions, district formations, and creation of subsidiary districts. LAFCO
cannot initiate annexations, detachments, and incorporations.
18
Executive Summary
reorganizations to particular agencies in the county, using the spheres of influence as the basis for
those recommendations (Government Code §56425 (g)).
Regional Collaboration
As law enforcement budgets shrink and costs for specialized services increase, law enforcement
agencies are being required to come up with more creative ways to keep pace. One avenue that is
available is the use of Joint Powers Agencies (JPAs), and Memorandums of Understanding (MOUs).
These types of collaborative agreements are not subject to LAFCO review, and can be tailored to
meet the signatories’ needs.
Dispatch
The P-25 compliant communications system providing fully interoperable communications to
all public agencies in Alameda and Contra Costa County is scheduled to become operational in
2013. Planning is underway and infrastructure is being put in place with an aim toward
providing wireless 911 services from the SO PSAP in 2012. Both of these initiatives are
very costly in terms of equipment purchase and the need for additional dispatch personnel.
This may be an opportunity for all the law enforcement agencies in the County to purchase
equipment in bulk and share in the costs of dispatch. A JPA could accomplish this task.
Regional Collaboration for Dispatch Services – among the city police departments, there
may be opportunities for regional dispatching, thereby taking advantage of ‘economies of
scale.’ The framework is already in place for such an approach. In the West County,
Richmond could add Pinole and Hercules; in the North Central County, Concord could add
Martinez, Pleasant Hill and Walnut Creek; in the South Central County, Danville and San
Ramon could team up, along with Blackhawk, Diablo and Alamo; and in the East County,
Antioch could add Oakley and Pittsburg. Lafayette, Moraga and Orinda could remain with
the SO or join together.
Animal Control Services
Only Antioch provides its own animal control services. The other 18 cities and the SO contract
with County Animal Control for animal control services. These contracts have been increasing each
year. Sharing of animal control services between Antioch, Brentwood, Oakley, and Pittsburg may be
an option, given Antioch’s experience factor and the geographic proximity of the four cities. The
same approach may work for the West County Cities of El Cerrito, Hercules, Pinole, Richmond, and
San Pablo (because their boundaries are so intertwined); and the Lamorinda area (Lafayette,
Moraga and Orinda).
Specialized Services
The budget reality is that some PDs are losing their specialized services as mentioned under
Service Levels, above. A JPA for each of the sub-regions (West, Central, East) could be devised
where each PD would share the costs of specialized services, including but not limited to SWAT
Team, J-Team, Detectives, K-9 Unit, Traffic Enforcement Unit, DUI Unit, Neighborhood Watch
Coordinator, Emergency Preparedness Coordinator, and Crime Scene Investigation Unit. Each of
these ‘Units’ would be available to each law enforcement agency in the sub-region on a rotating
basis. Costs would be shared according to use. This approach could also enable each PD to
maintain its basic patrol teams and develop community policing to a higher degree.
19
Law Enforcement MSR
Records Management
With the advent of increased capabilities for electronic reporting and record keeping, the
opportunity exists to centralize these functions to take advantage of economies of scale. A
‘common’ records system would also eliminate the vagaries that now result from different agencies
inputting data in different manners. This could be done sub-regionally, but could be more effective
if done County-wide.
East County Consolidation of Law Enforcement Services
In the future, consolidation of polices services in the East County sub-region (including the four
cities, Discovery Bay, Bethel Island, Knightsen and Byron) may become feasible as growth increases
and financial resources are constrained. (Refer to Map 3-4.)
Pension Reform
One of the critical issues identified in this report is the escalating retirement and health benefit
costs being experienced by local government, especially for safety retirees. The Pension Reform
Task Force of the Alameda County City Managers Association and the Contra Costa County Public
Managers Association has issued a proposal (January 2010) to address existing pension programs
that are not financially sustainable. The Task Force recommends a New Tier system by which new
Safety employees would retire with 2% at 50 (rising to 2.7% at 55), new Miscellaneous employees
would retire with 2% at 60 (rising to 2.418% at 63), and with the average of the three highest
years. If implemented on a regional basis, this proposal would assist in insuring local agency
solvency.
Contracting for Service from the Office of the Sheriff
In reviewing the four cities that contract with the SO, several advantages were identified,
including: annual contract review with an opportunity to amend or tailor the contract; automatic
replacement with a new Deputy should a Deputy be dismissed or go out on disability; ability to
utilize the extensive resources of the SO including forensics; automatic aid when required; and
centralized recordkeeping and reporting. This option may be available to a local law enforcement
agency that can no longer afford to operate independently, or for an agency that can no longer fund
a full-service police department.
Annexation of County Islands
This report identified 12 unincorporated islands in six cities which qualify for the for the
streamlined annexation procedures under Government Code Section 56375.3 because they are
developed and less than 150 acres in size. Two are in San Pablo, two in Pleasant Hill, three in
Antioch, one in Brentwood, two in Concord, and two in Walnut Creek. The City Councils of these
cities should give serious consideration to annexing these unincorporated islands in order to
reduce or eliminate duplication of services, including law enforcement.
Sphere of Influence Cleanup
As indicated above, LAFCO is required to identify governance options, and may use spheres of
influence as the basis for such options.
The following options for existing city and special district SOI’s are proposed:
20
Executive Summary
El Cerrito An area along Vista Heights Road east of the Mira Vista Country Club is within the El
Cerrito SOI but is within the Richmond city limits and should be removed from the
El Cerrito SOI. (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’ SOI 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’ SOI 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 SOI 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
County-wide special district (minus the cities and Kensington PPCSD) 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 meets 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 15 parcels that are in the Town limits).
Both the TRA allocation and the special tax should be eliminated from these properties;
Existing Zones which consist of four parcels or less should be eliminated after paying a
total of $1,000 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 Valley reaches build-out, it is likely that the revenues generated by CSA M-29
will not be sufficient to account for all the costs attributed to CSA M-29. 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 CM-29, should
consider payment of this debt out of existing CSA M-29 reserves, which had an available fund
balance of $6.28 million as of June 30, 2010.
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-2/ Zone B (Alamo area); and CSA P-6 (County-wide unincorporated
area except Kensington). (Refer to Map 23-5.) In addition to the approximate $22,263 that CSA M-
30 residents are assessed each year for services they receive from the Town of Danville, they also
pay $24,764 to CSA P-2 and CSA P-6. As a governance and financial issue, it makes more sense to
dissolve CSA M-30 (thereby detaching from CSA P-2/Zone B and 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 (SOI).
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 one mile away from the CSA M-30 boundary. 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-2/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-2/Zone B and 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-2 includes three distinct areas: Blackhawk (which includes Zone A of CSA P-2); Alamo
(which includes Zone B of CSA P-2); and an unincorporated area adjacent to the Town of Danville
(with no designated Zone). (Refer to Map 23-1.) The following governance measures have been
identified for CSA P-2:
At the present time, the boundary for CSA P-2 in the Blackhawk/Camino Tassajara area
consists of 4.3 square miles with an SOI coterminous with its boundary. This portion of
CSA P-2 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-
2 SOI in the Blackhawk/Camino Tassajara area to 9.3 square miles consistent with the
Blackhawk-Camino Tassajara CDP. (Refer to Map 23-1.)
At the present time, the boundary for CSA P-2 in the Alamo area consists of 5.3 square
miles with an SOI coterminous with its boundary. This portion of CSA P-2 is within the
larger Alamo CDP which is 20.6 square miles (and also includes the adjacent CSA P-5,
Roundhill). Consideration should be given to increasing the CSA P-2 SOI in the Alamo
area to 20.6 square miles consistent with the Alamo CDP; or the area which was
proposed for incorporation. Consideration should also be given to including the district
22
Executive Summary
boundaries (1.2 square miles) of CSA P-5 (Roundhill) within the CSA P-2 Alamo area
SOI. (Refer to Map 23-1 and Map 23-2.)
As an alternative, consideration could be given to expanding the SOI for CSA P-5
(Roundhill) 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 SOI).
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 SOI 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:
City of 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 – Community Preservation and Safety Unit (CPSU) combines community
policing, code enforcement, community relations, business alert, and neighborhood
watch provided by an integrated team (Crime Prevention Officer, Code Enforcement
Officer and Community Safety Specialist).
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 by e-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
become immediately available for forwarding to other agencies including the District
Attorney.
23
Law Enforcement MSR
Brentwood PD -- 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
Brentwood. 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.
Antioch PD -- 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. The Lexipol System to is used to research successful
best practices information submitted by other police agencies.
Consolidation of KFPD and KPPCSD
The consolidation of Kensington Fire Protection District (KFPD) and Kensington Police
Protection and Community Services District (KPPCSD) was identified in two previous LAFCO MSRs
-- Fire and West County Sub-Regional. At the time these two MSRs were prepared, the KPPCSD was
having significant fiscal issues. Subsequently, KPPCSD successfully passed a special tax to remedy
(at least in the short-term) their fiscal crisis. Consolidation of these two districts is still a
governance/boundary option. However, until such time as the residents of Kensington are
unwilling to fund high-level police and fire protection services, the status quo should remain.
It is also noted that the Kensington Community is within the SOI of the City of El Cerrito, and
that KPPCSD has the option of contracting for police services from El Cerrito, similar to the KFPD
currently contracting with El Cerrito for fire protection services.
Decentralization of Booking
Law enforcement agencies in the West County area, the East County area and the South Central
County area would each benefit from a sub-regional detention facility that would allow
‘decentralized booking.’ In the present budget climate, such an approach is not financially feasible.
The ancillary costs associated with a booking/detention facility (including fingerprint and
identification services, medical staff, food service, and mental health services) preclude anything
other than a main booking/detention facility. As an alternative (and to avoid arrestee transport
time by officers and deputies) a regional or sub-regional ‘van pool’ system could be implemented,
with costs allocated on a per capita-per trip basis.
Reporting Criteria
In compiling the statistical data for this MSR , a number of inconsistencies were identified.
These inconsistencies covered such topics as: Priority 1 response time; crime clearance rates; and
calls for service. In order to be able compare these types of statistics between agencies, it is
suggested that a representative from the SO and a representative from each PD meet to discuss
these topics, and develop common criteria for recording and analyzing each type of statistic.
24
Executive Summary
MSR Determinations
This section addresses those determinations required by Government Code §56430 with
respect to the service-related evaluation categories based upon this review of law enforcement
municipal services for Contra Costa County.
Growth and Population Projections
General
Population growth within Contra County, although slowed by the recession and lack of
housing starts, is still expected to be one of the higher growing counties in the Bay Area.
ABAG projections show an increase of 87,000 people in the next ten years.
Agency Specific
Given the current land available for development, along with recent growth patterns,
those law enforcement agencies that serve growth areas will need to increasing staffing
levels or reduce the level of service. These include Brentwood, San Ramon, Oakley,
Richmond, Hercules, and Discovery Bay (unincorporated).
The unincorporated communities of El Sobrante, Tara Hills, San Miguel, Saranap, Vine
Hill, and Pacheco will require additional law enforcement resources if they grow beyond
their current population.
Those communities that are growing can expect to have higher crime rates than those
communities that are built-out or not growing. The City of Richmond is both growing
and has a high crime rate. The city is aggressively addressing these issues through a five
year strategic plan.
Over the ten year period from 2000 to 2010, the following cities have lost population:
Lafayette (-0.06%), Martinez (-0.1%), Moraga (-2.0%), Pinole (-3.0%), San Pablo (-
4.0%), and Walnut Creek (-0.2%).
Present and Planned Capacity of Public Facilities
General
With the announced opening of the new police facility in San Ramon, all of the cities
have sufficient and adequate facilities to provide police services in their communities.
There are small remodels and security fencing projects that are still necessary, but in
general, police headquarters buildings are adequate.
The closure of police substations (especially in Concord and Bay Point) have reduced
the effectiveness of police protection in those communities.
Agency Specific
The Office of the Sheriff has significant facilities needs that are not yet funded. The most
critical appears to be the need for a new detention facility to relieve overcrowding at the
Martinez Detention Facility.
25
Law Enforcement MSR
Adequacy of Public Services
General
The outlook for the immediate future (beginning with FY 11-12) is for ever increasing
cuts in personnel, and efforts by local law enforcement agencies to simply keep patrol
officers on the beat.
Agency Specific
Except for the Office of the Sheriff, law enforcement agencies in the County have been
able to maintain their historic levels of service, albeit with less flexibility than in
previous years. The SO has had significant reductions in patrol deputies, while city
police departments have laid off specialty personnel such as K-9 units, traffic
enforcement units, school resource officers, community service officers, and detectives.
Infrastructure Needs or Deficiencies
General
With fewer grant funding opportunities, law enforcement agencies are purchasing less
equipment, including personal equipment for officers.
PDs and the SO are attempting to ‘stretch out’ the serviceable life of patrol vehicles, and
are purchasing fewer new patrol vehicles.
Financial Ability of Agency to Provide Services
General
Because most law enforcement providers are funded by General Fund monies, fewer
financial resources will be available until recovery from the recession begins. For the
FY 11-12 fiscal year, there was a $700 million decrease in the local tax base resulting in
a loss of 0.49% in assessed value countywide. Property tax revenue (the main General
Fund revenue source for cities and the County) will continue to stagnate.
Sales tax revenues have also declined from their historic highs, down as much as three
to four percent per year. This is another major source of local government funding.
A number of PDs charge for services including: bicycle license fees, security alarm use
permits, false alarm response fees, fingerprint fees, crime report fees, massage permit
fees, cost of photo copies, and processing or service fees. However, unlike Planning
Departments and Public Works Departments, Police Departments do not readily publish
a fee schedule, nor do they update their fees regularly. Cost recovery is more important
in this era of limited budgets, so charging fees for services is an appropriate PD activity.
Use of volunteers to assist in the provision of municipal services represents a
potentially large source of free or low cost help for local governments searching for
ways to deliver more services for less money.
Agency Specific
The City of San Pablo relies heavily on the business license fees paid by the Lytton San
Pablo Casino, which are around $1.1 million per month. Any loss of these funds will
have a catastrophic effect on the city and on the PD.
26
Executive Summary
The City of Hercules is suffering from extensive costs associated with bonded
indebtedness, which may affect daily city functions including the PD.
Status of and Opportunities for Shared Facilities
General
For the most part, police departments are stand-alone operations due to their need for
secure facilities and confidentiality. There is some limited facilities sharing such as the
SO Delta Substation utilizing space at the Oakley PD office. Kensington PPCSD leases
space in the Fire District building.
Accountability for Community Service Needs
General
Every law enforcement agency in Contra Costa County is striving to meet the needs of
their respective communities. This MSR details how local accountability can be
measured by looking at each agency’s decision making process, visibility and
accessibility, community outreach and education, and customer service. Refer to each
chapter for details.
Governmental Structure and Operational Efficiencies
General
Law enforcement agencies by their nature are highly structured and operate in an
efficient manner. These characteristics are detailed in this MSR for each law
enforcement service provider. Refer to each chapter for details.
27
Law Enforcement MSR
2. LAFCO and Municipal Service Reviews
This report is prepared pursuant to legislation enacted in 2000 that requires LAFCO to conduct
a comprehensive review of municipal service delivery and update the spheres of influence (SOIs) of
all agencies under LAFCO’s jurisdiction. This chapter provides an overview of LAFCO’s history,
powers and responsibilities. It discusses the origins and legal requirements for preparation of the
municipal service review (MSR). Finally, the chapter reviews the process for MSR review, MSR
approval and SOI updates.
LAFCO Overview
After World War II, California experienced dramatic growth in population and economic
development. With this boom came a demand for housing, jobs and public services. To
accommodate this demand, many new local government agencies were formed, often with little
forethought as to the ultimate governance structures in a given region, and existing agencies often
competed for expansion areas. The lack of coordination and adequate planning led to a multitude
of overlapping, inefficient jurisdictional and service boundaries, and the premature conversion of
California’s agricultural and open-space lands.
Recognizing this problem, in 1959, Governor Edmund G. Brown, Sr. appointed the Commission
on Metropolitan Area Problems. The Commission's charge was to study and make
recommendations on the “misuse of land resources” and the growing complexity of local
governmental jurisdictions. The Commission's recommendations on local governmental
reorganization were introduced in the Legislature in 1963, resulting in the creation of a Local
Agency Formation Commission, or LAFCO.
The Contra Costa LAFCO was formed as a countywide agency to discourage urban sprawl and
encourage the orderly formation and development of local government agencies. LAFCO is
responsible for coordinating logical and timely changes in local governmental boundaries, including
annexations and detachments of territory, incorporations of cities, formations of special districts,
and consolidations, mergers and dissolutions of districts, as well as reviewing ways to reorganize,
simplify, and streamline governmental structure. The Commission's efforts are focused on ensuring
that services are provided efficiently and economically while agricultural and open-space lands are
protected. To better inform itself and the community as it seeks to exercise its charge, LAFCO
conducts service reviews to evaluate the provision of municipal services within the County.
LAFCO regulates, through approval, denial, conditions and modification, boundary changes
proposed by public agencies or individuals. It also regulates the extension of public services by
cities and special districts outside their boundaries. LAFCO is empowered to initiate updates to the
SOIs and proposals involving the dissolution or consolidation of special districts, mergers,
establishment of subsidiary districts, formation of a new district or districts, and any reorganization
including such actions. Otherwise, LAFCO actions must originate as petitions or resolutions from
affected voters, landowners, cities or districts.
Contra Costa LAFCO consists of seven regular members: two members from the Contra Costa
County Board of Supervisors, two city council members, two independent special district members,
and one public member who is appointed by the other members of the Commission. There is an
alternate in each category. All Commissioners are appointed to four-year terms. The Commission
members are shown in Table 2-1.
28
LAFCO and Municipal Service Reviews
Figure 2-1: Commission Members, 2010
Appointing Agency Members Alternative Members
Two members from the Board of Federal Glover Mary N. Piepho
Supervisors appointed by the Board of Gayle B. Uilkema
Supervisors.
Two members representing the cities in the Don Tatzin, City of Lafayette Tom Butt, City of
County. Must be a city officer and Rob Schroder, City of Richmond
appointed by the City Selection Committee. Martinez
Two members representing the Dwight Meadows, Contra George H. Schmidt,
independent special districts in the County. Costa Resource Conservation West County
Must be a district governing body member Dist. Wastewater Dist.
and appointed by the independent special Michael R. McGill, Central
district selection committee. Contra Costa Sanitary Dist.
One member from the general public Martin B. McNair Sharon Burke
appointed by the other six Commissioners.
Municipal Service Review Origins
The MSR requirement was enacted by the Legislature months after the release of two studies
recommending that LAFCOs conduct reviews of local agencies. The “Little Hoover Commission”
focused on the need for oversight and consolidation of special districts, whereas the “Commission
on Local Governance for the 21st Century” focused on the need for regional planning to ensure
adequate and efficient local governmental services as the California population continues to grow.
Little Hoover Commission
In May 2000, the Little Hoover Commission released a report entitled Special Districts: Relics of
the Past or Resources for the Future? This report focused on governance and financial challenges
among independent special districts, and the barriers to LAFCO’s pursuit of district consolidation
and dissolution. The report raised the concern that “the underlying patchwork of special district
governments has become unnecessarily redundant, inefficient and unaccountable.”2
In particular, the report raised concern about a lack of visibility and accountability among some
independent special districts. The report indicated that many special districts hold excessive
reserve funds and some receive questionable property tax revenue. The report expressed concern
about the lack of financial oversight of the districts. It asserted that financial reporting by special
districts is inadequate, that districts are not required to submit financial information to local
elected officials, and concluded that district financial information is “largely meaningless as a tool to
evaluate the effectiveness and efficiency of services provided by districts, or to make comparisons
with neighboring districts or services provided through a city or county.”3
2 Little Hoover Commission, 2000, p. 12.
3 Little Hoover Commission, 2000, p. 24.
29
Law Enforcement MSR
The report questioned the accountability and relevance of certain special districts with
uncontested elections and without adequate notice of public meetings. In addition to concerns
about the accountability and visibility of special districts, the report raised concerns about special
districts with outdated boundaries and outdated missions. The report questioned the public benefit
provided by health care districts that have sold, leased or closed their hospitals, and asserted that
LAFCOs consistently fail to examine whether they should be eliminated. The report pointed to
service improvements and cost reductions associated with special district consolidations, but
asserted that LAFCOs have generally failed to pursue special district reorganizations.
The report called on the Legislature to increase the oversight of special districts by mandating
that LAFCOs identify service duplications and study reorganization alternatives when service
duplications are identified, when a district appears insolvent, when district reserves are excessive,
when rate inequities surface, when a district’s mission changes, when a new city incorporates and
when service levels are unsatisfactory. To accomplish this, the report recommended that the State
strengthen the independence and funding of LAFCOs, require districts to report to their respective
LAFCO, and require LAFCOs to study service duplications.
Commission on Local Governance for the 21st Century
The Legislature formed the Commission on Local Governance for the 21st Century (“21st
Century Commission”) in 1997 to review statutes on the policies, criteria, procedures and
precedents for city, county and special district boundary changes. After conducting extensive
research and holding 25 days of public hearings throughout the State at which it heard from over
160 organizations and individuals, the 21st Century Commission released its final report, Growth
Within Bounds: Planning California Governance for the 21st Century, in January 2000.4 The report
examines the way that government is organized and operates and establishes a vision of how the
State will grow by “making better use of the often invisible LAFCOs in each county.”
The report points to the expectation that California’s population will double over the first four
decades of the 21st Century, and raises concern that our government institutions were designed
when our population was much smaller and our society was less complex. The report warns that
without a strategy open spaces will be swallowed up, expensive freeway extensions will be needed,
job centers will become farther removed from housing, and this will lead to longer commutes,
increased pollution and more stressful lives. Growth Within Bounds acknowledges that local
governments face unprecedented challenges in their ability to finance service delivery since voters
cut property tax revenues in 1978 and the Legislature shifted property tax revenues from local
government to schools in 1993. The report asserts that these financial strains have created
governmental entrepreneurism in which agencies compete for sales tax revenue and market share.
The 21st Century Commission recommended that effective, efficient and easily understandable
government be encouraged. In accomplishing this, the 21st Century Commission recommended
consolidation of small, inefficient or overlapping providers, transparency of municipal service
delivery to the people, and accountability of municipal service providers. The sheer number of
special districts, the report asserts, “has provoked controversy, including several legislative
attempts to initiate district consolidations,”5 but cautions LAFCOs that decisions to consolidate
districts should focus on the adequacy of services, not on the number of districts.
Growth Within Bounds stated that LAFCOs cannot achieve their fundamental purposes without a
comprehensive knowledge of the services available within its county, the current efficiency of
4 The Commission on Local Governance for the 21st Century ceased to exist on July 1, 2000, pursuant to a statutory sunset provision.
5 Commission on Local Governance for the 21st Century, 2000, p. 70.
30
LAFCO and Municipal Service Reviews
providing service within various areas of the county, future needs for each service, and expansion
capacity of each service provider. Comprehensive knowledge of water and sanitary providers, the
report argued, would promote consolidations of water and sanitary districts, reduce water costs
and promote a more comprehensive approach to the use of water resources. Further, the report
asserted that many LAFCOs lack such knowledge and should be required to conduct such a review
to ensure that municipal services are logically extended to meet California’s future growth and
development.
MSRs would require LAFCO to look broadly at all agencies within a geographic region that
provide a particular municipal service and to examine consolidation or reorganization of service
providers. The 21st Century Commission recommended that the review include water, wastewater,
and other municipal services that LAFCO judges to be important to future growth. The Commission
recommended that the service review be followed by consolidation studies and be performed in
conjunction with updates of SOIs. The recommendation was that service reviews be designed to
make nine determinations, each of which was incorporated verbatim in the subsequently adopted
legislation. The legislature since consolidated the determinations into six required findings.
Municipal Service Review Legislation
The Cortese-Knox-Hertzberg Local Government Reorganization Act of 2000 requires LAFCO
review and update SOIs not less than every five years and to review municipal services before
updating SOIs. The requirement for service reviews arises from the identified need for a more
coordinated and efficient public service structure to support California’s anticipated growth. The
service review provides LAFCO with a tool to study existing and future public service conditions
comprehensively and to evaluate organizational options for accommodating growth, preventing
urban sprawl, and ensuring that critical services are provided efficiently.
Effective January 1, 2008, Government Code §56430 requires LAFCO to conduct a review of
municipal services provided in the county by region, sub-region or other designated geographic
area, as appropriate, for the service or services to be reviewed, and prepare a written statement of
determination with respect to each of the following topics:
1) Growth and population projections for the affected area;
2) Present and planned capacity of public facilities and adequacy of public services, including
infrastructure needs or deficiencies;
3) Financial ability of agencies to provide services;
4) Status of, and opportunities for shared facilities;
5) Accountability for community service needs, including governmental structure and
operational efficiencies; and
6) Any other matter related to effective or efficient service delivery, as required by
commission policy.
31
Law Enforcement MSR
Spheres of Influence
An SOI is a LAFCO-approved plan that designates an agency’s probable future boundary and
service area. Spheres are planning tools used to provide guidance for individual boundary change
proposals and are intended to encourage efficient provision of organized community services,
discourage urban sprawl and premature conversion of agricultural and open space lands, and
prevent overlapping jurisdictions and duplication of services. Every determination made by a
commission must be consistent with the SOIs of local agencies affected by that determination;6 for
example, territory may not be annexed to a city or district unless it is within that agency's sphere.
SOIs should discourage duplication of services by local governmental agencies, guide the
Commission’s consideration of individual proposals for changes of organization, and identify the
need for specific reorganization studies, and provide the basis for recommendations to particular
agencies for government reorganizations.
Contra Costa LAFCO policies are that LAFCO discourages inclusion of land in an agency’s SOI if a
need for services provided by that agency within a 5-10 year period cannot be demonstrated. SOIs
generally will not be amended concurrently with an action on the related change of organization or
reorganization. A change of organization or reorganization will not be approved solely because an
area falls within the SOI of any agency. In other words, the SOI essentially defines where and what
types of government reorganizations (e.g., annexation, detachment, dissolution and consolidation)
may be initiated. If and when a government reorganization is initiated, there are a number of steps
that must be conducted for a reorganization to be approved. Such steps include more in-depth
analysis of services and other issues, LAFCO consideration at a noticed public hearing, and
processes by which affected agencies and/or residents may voice their approval or disapproval.
The Cortese-Knox-Hertzberg Act requires LAFCO to develop and determine the SOI of each local
governmental agency within the county and to review and update the SOI every five years. LAFCOs
are empowered to adopt, update and amend the SOI. They may do so with or without an
application and any interested person may submit an application proposing an SOI amendment.
LAFCO may recommend government reorganizations to particular agencies in the county, using
the SOIs as the basis for those recommendations. Based on review of the guidelines and practices
of Contra Costa LAFCO as well as other LAFCOs in the State, various conceptual approaches have
been identified from which to choose in designating an SOI:
1) Coterminous Sphere: The sphere for a city or special district that is the same as its existing
boundaries.
2) Annexable Sphere: A sphere larger than the agency’s boundaries identifies areas the agency
is expected to annex. The annexable area is outside its boundaries and inside the sphere.
3) Detachable Sphere: A sphere that is smaller than the agency’s boundaries identifies areas
the agency is expected to detach. The detachable area is the area within the agency bounds
but not within its sphere.
4) Zero Sphere: A zero sphere indicates the affected agency’s public service functions should
be reassigned to another agency and the agency should be dissolved or combined with one
or more other agencies.
5) Consolidated Sphere: A consolidated sphere includes two or more local agencies and
indicates the agencies should be consolidated into one agency.
6 Government Code §56375.5.
32
LAFCO and Municipal Service Reviews
6) Limited Service Sphere: A limited service sphere is the territory included within the SOI of
a multi-service provider agency that is also within the boundary of a limited purpose
district which provides the same service (e.g., fire protection), but not all needed services.
7) Sphere Planning Area: LAFCO may choose to designate a sphere planning area to signal that
it anticipates expanding an agency’s SOI in the future to include territory not yet within its
official SOI.
8) Provisional Sphere: LAFCO may designate a provisional sphere that automatically sunsets if
certain conditions occur.
LAFCO is required to establish SOIs for all local agencies and enact policies to promote the
logical and orderly development of areas within the SOIs. Furthermore, LAFCO must update those
SOIs every five years. In updating the SOI, LAFCO is required to conduct a MSR and adopt related
determinations. In addition, in adopting or amending an SOI, LAFCO must make the following
determinations:
Present and planned land uses in the area, including agricultural and open-space lands;
Present and probable need for public facilities and services in the area;
Present capacity of public facilities and adequacy of public service that the agency provides
or is authorized to provide; and
Existence of any social or economic communities of interest in the area if the Commission
determines these are relevant to the agency.
MSR and SOI Update Process
The MSR process does not require LAFCO to initiate changes of organization based on service
review findings, only that LAFCO identify potential government structure options. However, LAFCO,
other local agencies, and the public may subsequently use the determinations to analyze
prospective changes of organization or reorganization or to establish or amend SOIs. LAFCO may
act with respect to a recommended change of organization or reorganization on its own initiative,
at the request of any agency, or in response to a petition.
MSRs are exempt from California Environmental Quality Act (CEQA) pursuant to §15262
(feasibility or planning studies) or §15306 (information collection) of the CEQA Guidelines.
LAFCO’s actions to adopt MSR determinations are not considered “projects” subject to CEQA.
Once LAFCO has adopted the MSR determinations, subsequent SOI updates for affected cities
and special districts may be undertaken. As a result of this Law Enforcement MSR, it is anticipated
that the SOIs for a limited number of special districts that provide law enforcement services only
(County Service Areas P-2, P-5 and P-6) will be updated. For the cities and other special districts
which provide multiple services, including law enforcement services, SOI updates will occur during
their respective five-year cycles. In the past three years, Contra Costa LAFCO updated the SOIs for
all of the cities and some of the districts covered in the Law Enforcement MSR. SOI updates involve
additional steps, including development of recommendations by LAFCO staff, opportunity for public
input at a LAFCO public hearing, and consideration and changes made by Commissioners. A CEQA
determination is made on a case-by-case basis once the SOI characteristics are clearly identified.
33
Law Enforcement MSR
The CKH Act stipulates several procedural requirements in updating SOIs. It requires that
special districts file written statements on the class of services provided and that LAFCO clearly
establish the location, nature and extent of services provided by special districts. Accordingly, each
local agency’s class of services provided is documented in this 2009 MSR. The MSR described the
nature, location, and extent of functions or classes of services provided by existing districts, which
is a procedural requirement for LAFCO to complete when updating SOIs.
LAFCO must notify affected agencies 21 days before holding a public hearing to consider the SOI
and may not update the SOI until after that hearing. The LAFCO Executive Officer must issue a
report including recommendations on the SOI amendments and updates under consideration at
least five days before the public hearing.
34
Law Enforcement Services Overview
3. Law Enforcement Services Overview
This chapter provides an overview of the public agencies providing law enforcement services
within Contra Costa County, including how these services are provided, as well as staffing levels,
funding levels, service demand and service indicators, facilities and equipment, dispatch, and
specialized services. A summary of critical issues is also provided. The focus of the chapter is on
law enforcement service providers under Contra Costa LAFCO jurisdiction; however, other
providers (including private sector providers) are listed in the provider overview section for
completeness and profiled as non-LAFCO entities in this report.
Provider Overview
Law enforcement providers include Contra Costa County, 19 cities, seven special districts, eight
college campuses, one high school district, two regional agencies, three state agencies, four federal
agencies, and 11 private companies. City and special district boundaries are shown on Maps 3-1, 3-
2, 3-3 and 3-4: Overview of Police Services in Contra Costa County. Providers are as shown in
Figure 3-1.
Figure 3-1: Law Enforcement Providers
Cities Special Districts
Antioch CSA P-2/Zone A (Blackhawk)
Brentwood CSA P-2/Zone B (Alamo)
Clayton CSA P-5/(Roundhill)
Concord CSA P-6/(County-wide except incorporated cities)
Danville1 Diablo CSD2
El Cerrito CSA M-29 (Dougherty Valley)3
Hercules CSA M-30 (Alamo Springs)4
Lafayette1 Kensington PP & CSD5
Martinez Federal Agencies
Moraga Amtrak, Martinez
Oakley1 Military Ocean Terminal, U.S. Army Police, Concord
Orinda1 United States Coast Guard, Vallejo
Pinole United States Marshall
Pittsburg Private Companies
Pleasant Hill Calpine Delta Energy Center and Los Medanos Energy Center, Pittsburg
Richmond Cheveron Richmond Refinery, Richmond
San Pablo Conoco Phillips San Francisco Refinery, Rodeo
San Ramon Crockett Cogeneration Plant, Crockett6
Walnut Creek Shell Martinez Refinery, Martinez
Contra Costa County General Chemical Bay Point Works, Bay Point
Office of the Sheriff (SO) MWECS, Inc. (Monsanto) Avon Plant, Martinez
Administrative Services Rhodia Chemical Martinez Plant, Martinez
Communications (Dispatch) Shell Chemical Catalyst Plant, Martinez
Coroner Tesoro Golden Eagle Refinery, Pacheco
Custody Services (Detention) Union Pacific Railroad, Martinez
Emergency Services Educational Agencies
Forensic Services Contra Costa Community College District
Investigative Services Contra Costa College, San Pablo
Patrol Services Diablo Valley College, Pleasant Hill
Regional Agencies Los Medanos College, Pittsburg
San Francisco Bay Area Rapid Transit District (BART) San Ramon Campus, San Ramon
East Bay Regional Park District (EBRPD) Brentwood Center, Brentwood
State Agencies John F. Kennedy University, Pleasant Hill
California Department of Fish and Game, North Coast Enforcement District St. Mary's College, Moraga
California Highway Patrol, Contra Costa Area Office, Martinez California State University East Bay, Concord Campus
Mount Diablo State Park West Contra Costa Unified School District, Richmond
Notes:
(1) These agencies contract with the Office of the Sheriff for law enforcement services.
(2) Each of these districts provides funding for 'enhanced' law enforcement services from the Office of the Sheriff.
(3) Each of these CSAs provides funding for enhanced law enforcement services from the City of San Ramon.
(4) Each of these CSAs provides funding for enhanced law enforcement services from the Town (City) of Danville.
(5) This CSD provides its own law enforcement services to the unincorporated community of Kensington.
(6) The unincorporated community of Crockett benefits from 'return to source' funding prov ided by the Crockett Cogeneration Plant for enhanced law enforcement services from the
Office of the Sheriff.
35
Map 3-1 OverviewofPoliceServicesinContraCostaCounty
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Contra Costa County LAFCO
Police Services in West Contra Costa County
Map 3-2
Crockett
§¨¦ Port
San
Note: The cities of Danville, Lafayette, Pablo Rodeo 80 Costa Carquinez
Oakley, Orinda, and the Diablo CSD Bay
contract with the County for Police services.
Strait
These agencies are marked in red with
two asterisks (**) on the map.
Bayview
}þ
MARTINEZ
4
Montalvin
PINOLE
Manor Tara HERCULES
Hills
El
Sobrante
Alhambra
Rollingwood
Valley
SAN
North
PABLO
Richmond
Briones
East
§¨¦ Richmond
80 Heights
§¨¦ RICHMOND
580 San
EL Pablo
Reservoir
CERRITO Briones
Reservoir
City Boundaries San
Kensington
Francisco
Kensington CSD ORINDA
Bay LAFAYETTE
CSA P-6 ** }þ **
24
I
This map or dataset was created by the Contra Costa County Conservation and Development
Miles Map Created on April 11, 2011 D in e c p lu a d r i t n m g e C n i t t y w i L t i h m d it a s t , a i s f r o o r m ig i t n h a e ll y C o d n e t r r i a v e C d o f s r t o a m C o th u e n t C y A G S IS ta P te ro B g o r a a r m d . o A f ll E D qu is a t l r i i z c a t t D io a n t ' a s
Contra Costa County Department of Conservation & Development tax rate areas. While obligated to use this data the County assumes no responsibility for
0 3 6 9 651 Pine Street 3 , 7 4 : t 5 h 9 F :4 lo 8 o .4 r 5 - 5 N N . W 12 i 2 n : g 0 , 6 M :3 a 5 rt . i 3 n 8 e 4 z W , CA 94553-0095 its r e a p c a r c c o u c d r e u a p c c t e y d t . h T i e n h C i i s t o s m u c n a u t p r y r e c o o n f n t C t s o a t i n a n t t s r e a c i o f C p t o h y s e r t i a g s h d o t u i e s r c d c l e a in im i f s o e c r r m i t o e a f d t . i l o i a U n b s i a e li n r t s y d o f m o f r a t h y g i e s n o o m g t r a a b p p e h a a i g c lt r e e in r e e f o t d o r . m r I e a t a t i m d o n a a . y n d b e
Map 3-3
Contra Costa County LAFCO
Police Services in Central Contra Costa County
Suisun
Bay
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Bay
§¨¦
80
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}þ
}þ §¨¦ Clyde
4 Mt 680 Vine 4
View Hill
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Valley
CONCORD
Briones
Reliez PLEASANT
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Briones Contra
S P an ablo Reservoir Costa
Reservoir §¨¦ Centre
680 Shell
Acalanes
Ridge WALNUT Ridge North
}þ CREEK Gate
LAFAYETTE
24 Saranap San
** Miguel Mt Diablo
Castle
Hill
ORINDA
** Alamo
MORAGA
Diablo
Canyon
DANVILLE
Blackhawk
**
§¨¦
San 680 Camino
Leandro
Reservoir Tassajara
SAN
RAMON
Norris
Canyon
City Boundaries
CSA P-2
CSA P-5
Diablo CSD
CSA M-29 Note: The cities of Danville, Lafayette,
Oakley, Orinda, and the Diablo CSD
CSA M-30
contract with the County for Police services.
These agencies are marked in red with
CSA P-6
two asterisks (**) on the map.
I
This map or dataset was created by the Contra Costa County Conservation and Development
Miles Contra Costa Coun M t a y p D C e r p e a a r t t e m d e o n n t o A f p C ri o l n 1 s 1 e , r 2 v 0 a 1 ti 1 on & Development D in e c p lu a d r i t n m g e C n i t t y w i L t i h m d it a s t , a i s f r o o r m ig i t n h a e ll y C o d n e t r r i a v e C d o f s r t o a m C o th u e n t C y A G S IS ta P te r o B g o r a a r m d . o A f ll E D qu is a t l r i i z c a t t D io a n t ' a s
0 1.5 3 4.5 651 Pine Street 3 , 7 4 : t 5 h 9 F :4 lo 8 o .4 r 5 - 5 N N . W 12 i 2 n : g 0 , 6 M :3 a 5 rt . i 3 n 8 e 4 z W , CA 94553-0095 its r t e a a p x c r c o r u a d r t u a e c c e a y d r . e T i a n h s i i . s t s W m c h a u i p l r e r e c o o n b n t l t i s g a t a i a n t t s e e d c i o f t o p th y u e r s i g e s h o t t u h e r i d c s e i d n i a f s o t a c rm it t e h a d e t . i o C U n o s u a e n n r t s d y o m a f s a t s h y u i s m n o m e t s a b p n e o a a g r l e t r e e s r e p e o t d n o . s r i I b e t i a l m i d ty a a y f n o d b r e
accept the County of Contra Costa disclaimer of liability for geographic information.
Map 3-4
Contra Costa County LAFCO
Police Services in East Contra Costa County
Ho
B
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k
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er
Sacramento
River
}þ P
B
o
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}þ
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}þ
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Discovery
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}þ
Mt Diablo 4
Byron
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J4
Clifton
Court
Forebay
Los
Vaqueros
Reservoir
§¨¦
680
Note: The cities of Danville, Lafayette,
Oakley, Orinda, and the Diablo CSD City Boundaries
contract with the County for Police services.
These agencies are marked in red with
CSA P-6
two asterisks (**) on the map.
I
This map or dataset was created by the Contra Costa County Conservation and Development
Miles Contra Costa Coun M t a y p D C e r p e a a r t t e m d e o n n t o A f p C ri o l n 1 s 1 e , r 2 v 0 a 1 ti 1 on & Development D in e c p lu a d r i t n m g e C n i t t y w i L t i h m d it a s t , a i s f r o o r m ig i t n h a e ll y C o d n e t r r i a v e C d o f s r t o a m C o th u e n t C y A G S IS ta P te r o B g o r a a r m d . o A f ll E D qu is a t l r i i z c a t t D io a n t ' a s
0 1.5 3 4.5 651 Pine Street 3 , 7 4 : t 5 h 9 F :4 lo 8 o .4 r 5 - 5 N N . W 12 i 2 n : g 0 , 6 M :3 a 5 rt . i 3 n 8 e 4 z W , CA 94553-0095 its r t e a a p x c r c o r u a d r t u a e c c e a y d r . e T i a n h s i i . s t s W m c h a u i p l r e r e c o o n b n t l t i s g a t a i a n t t s e e d c i o f t o p th y u e r s i g e s h o t t u h e r i d c s e i d n i a f s o t a c rm it t e h a d e t . i o C U n o s u a e n n r t s d y o m a f s a t s h y u i s m n o m e t s a b p n e o a a g r l e t r e e s r e p e o t d n o . s r i I b e t i a l m i d ty a a y f n o d b r e
accept the County of Contra Costa disclaimer of liability for geographic information.
Law Enforcement MSR
Police Services
Although patrol is the most visible service, law enforcement agencies provide a host of other
public safety services including dispatch, crime lab, bomb squad, SWAT, canine, search and rescue,
temporary and long-term holding, emergency services, training, animal shelter, and unique patrol
services.
Patrol services are provided by officers traveling by vehicle, bicycle, horse, boat, helicopter and
on foot.
Dispatch services include receiving 911 calls and notifying response units through emergency
communication systems. Police dispatchers typically answer 911 calls related to police, fire and
medical emergencies. For fire and medical emergencies, some police dispatchers may directly
perform the dispatching while others may route calls to a dispatch center specialized in handling
fire and medical emergencies.
Crime laboratories provide analysis of latent fingerprints, questioned documents, firearms,
controlled substances, toxicology, trace evidence, and DNA, and may provide crime scene evidence-
gathering services. While some crime laboratories provide all of these services, other laboratories
may provide only limited, frequently-used services such as latent fingerprints analysis and
photographic work.
Bomb squad services typically are provided by explosives experts, bomb-sniffing dogs and their
handlers. Experts are needed to identify and defuse explosives with the assistance of dogs trained
to detect and locate different types of explosives.
Special weapons and tactics (SWAT) services are special response teams that handle complex,
high-risk crimes and confrontations. SWAT teams provide not only traditional counter-sniper
services, but also respond to hostage taking, barricaded suspects, and terrorist acts. SWAT teams
may also serve high-risk warrants and protect dignitaries. SWAT team members are typically
trained in special weapons as well as verbal tactics. Trained hostage negotiators are frequently an
integral component of SWAT teams.
Canine (K-9) units may be specially oriented toward drug detection, bomb detection, finding
missing persons, or protecting police officers.
Search and rescue services involve finding people who may be missing, lost, buried by debris, or
trapped in dangerous situations on trails or cliffs. Search and rescue teams are typically
coordinated by law enforcement agencies in collaboration with fire departments.
Temporary holding services involve pre-arraignment incarceration of arrestees, and typically
involve jailing for less than 72 hours. Long-term holding services involve incarceration of arraigned
suspects. Most law enforcement agencies have some type of temporary holding facilities, but few
have long-term facilities.
Animal control services are often provided by law enforcement agencies, and involve capturing,
sheltering and disposing of lost animals.
Specialized Services
The Contra Costa County law enforcement community is an integrated service provider,
utilizing specialized services from specific agencies that provide benefits to each other. Specific
specialized services include:
40
Law Enforcement Services Overview
Animal Control
Provided by the Contra Costa County Animal Services Department by contract with the cities
and the Sheriff’s Office; except for Antioch which provides its own animal control services.
Bomb Squad
Provided by the Walnut Creek Police Department and the University of California, Berkeley
Police Department. The Walnut Creek Bomb Squad is available to all law enforcement agencies in
the County. UC Berkeley will assist if requested, usually to the southern cities of Richmond, El
Cerrito, and the community of Kensington.
Canine (K-9) Units
Consisting of a police officer/handler and trained police dog. Available from Antioch,
Brentwood, Concord, Danville, El Cerrito, Martinez, Oakley, Orinda, Pittsburg, Pleasant Hill, Pinole,
Richmond, San Pablo, San Ramon, Walnut Creek, and the Office of the Sheriff.
Crime Scene Investigations (CSI)
Includes Forensics and Narcotics investigations. Provided by the Sheriff’s Office; Pleasant Hill
PD also has the capability. Services are available to all law enforcement agencies in the County.
Search and Rescue
Provided through the Sheriff’s Office by 231 volunteers. Available to assist within the County as
well as regionally upon request.
S.W.A.T./Hostage Negotiations
Provided by the Sheriff’s Office, Brentwood PD, Concord PD, Martinez PD, Pittsburg PD, San
Ramon PD, and Walnut Creek PD. Available to any agency in the County upon request.
Temporary Holding Cells
Available at Concord PD, Martinez PD, and Moraga PD.
Dispatch
There is a sub-regional dispatch system in which larger agencies provide dispatch services to
smaller agencies. For those police departments that contract for dispatch services, costs have been
escalating, but not to the point where it would be cost effective to provide their own dispatching.
The overall dispatch system appears to be operating seamlessly, with few problems detected
and significant cooperation between the agencies.
Dispatch services in the County operate as follows:
The Sheriff dispatches for the SO in the unincorporated areas, and the four contract cities
(Danville, Lafayette, Oakley and Orinda), plus Moraga, Pittsburg, and San Ramon;
Antioch PD dispatches for itself and Brentwood;
Concord PD dispatches for itself and Clayton;
41
Law Enforcement MSR
Martinez PD dispatches for itself;
Pleasant Hill PD dispatches for itself;
Pinole PD dispatches for itself and Hercules;
Richmond PD dispatches for itself, El Cerrito, Kensington PPCSD, and San Pablo; and
Walnut Creek PD dispatches for itself.
The County Sheriff also dispatches for Contra Costa County Animal Control, Los Medanos
College, and the City of Rio Vista. Richmond PD also dispatches for Contra Costa College. Pleasant
Hill PD also dispatches for Diablo Valley College.
In 2007, the counties of Alameda and Contra Costa, through the East Bay Regional
Communications System Authority (EBRCSA), a Joint Powers Agency (JPA), began working on an
interoperable, P-25 compliant radio communications system connecting all public agencies in
Alameda and Contra Costa County. The system is scheduled to become operational in 2013. P-25
establishes common radio standards for first responders and homeland security/emergency
response agencies.
9-1-1 calls are first answered by the law enforcement agency dispatch center listed above
(answering point) and routed to the appropriate responder (police, fire or emergency medical).
Wireless (cell phone) 9-1-1 calls are currently answered by the California Highway Patrol Center
located in Vallejo, but will be answered by the Sheriff’s Office dispatch center once that capability is
available and funding becomes available to staff the center. This is expected to occur in 2012.
Staffing Levels
Over the past three fiscal years, most of the City Police Departments (along with the Kensington
Police Protection and Community Services District) have been able to maintain their existing Patrol
Officers. The trend appears to be a reduction in the number of specialty officers (K-9, School
Resource Officer, Detective, Community Service Officer, and Traffic Control Officer) and support
staff. Current losses are as follows:
Antioch PD eliminated three School Resource Officers and one Community Service
Officer for a total of four positions.
Concord PD eliminated one Captain, one Lieutenant, one Detective, three Police Officers,
one K-9 Officer, three Dispatchers, five Community Service Officers, one
Records Specialist, and four Office Support Staff for a total of 20 positions.
Hercules PD Eliminated two Sergeants, one Detective, five Police Officers, one Traffic
Control Officer, one Records Specialist, and five office support staff for a
total of 15 positions.
Lafayette PD eliminated one K-9 Officer.
Moraga PD eliminated two Police Officers and one Community Service Officer for a total
of three positions.
Oakley PD eliminated one K-9 Officer, one School Resource Officer, one Detective, and
one Community Services Officer for a total of four positions.
42
Law Enforcement Services Overview
Pinole PD eliminated one Commander, five Police Officers, one Dispatcher, one
Community Service Officer, and one Records Specialist for a total of nine
positions.
Pittsburg PD eliminated one Captain, one Sergeant, one Police Officer, one Community
Service Officer, four Records Specialists, and two Office Support Staff for a
total of 10 positions.
Pleasant Hill PD eliminated two Police Officers and one Community Service Officer for a total
of three positions.
Walnut Creek PD eliminated one Lieutenant, two Police Officers, two Dispatchers, and one
Civilian Police Manager for a total of six positions.
Over the past three years, the Richmond PD has actually increased its staffing by 56 positions
including six Detectives, three Sergeants, 16 Police Officers, one Dispatcher, one Traffic Control
Officer, 15 Code Enforcement Officers, and 14 Support Staff.
The reverse is true for the Office of the Sheriff. During the past three years, the overall staffing
levels for the Sheriff’s Office have been reduced by 70 positions including 50 sworn staff and 20
support staff. This continues a trend which began in 2003, and has resulted in an overall reduction
of 84 sworn positions (approximately 11% of the 2003 level).
Sheriff’s Office staffing levels have remained relatively static for the Administrative Services
Bureau (Training, Personnel, Finance, Inspection & Control), the Custody Services Bureau
(Martinez, West County and Marsh Creek Detention Centers, and Court Security), and the Support
Services Bureau (Dispatch, Records. Emergency Services & Homeland Security, and Forensic
Services). Over the past eight years, the major reductions have been in sworn staff within the
Patrol Services Division (70 Deputies), and the Criminal Investigation Unit of the Investigations
Services Division (9 Deputies).
Figure 3-2: Staffing Levels per 1,000 Residents (FY 10-11)
Since 2003, there are 40 less deputies
SO
assigned to patrol the unincorporated areas of
Antioch
the County and 30 less deputies to serve the Brentwood
contract cities (Danville, Lafayette, Oakley and Clayton
Orinda), the special districts (primarily CSA P-6) Concord
Danville*
and the contract agencies (primarily AC
El Cerrito
Transit). The Office of the Sheriff currently has
Hercules
59 positions unfilled and unfunded, including 10
Kensington…
Sergeants, and 49 support staff including 9 Lafayette*
Dispatchers. Martinez
Moraga
The number of sworn officers per capita is a Oakley*
traditional indicator of service level. There are Orinda*
no established State or national standards for Pinole
Pittsburg
police staffing levels. Staffing ratios in Contra
Pleasant Hill
Costa County ranged from 0.7 sworn staff per
Richmond
1,000 residents in Danville, Moraga and
San Pablo
Lafayette to 2.0 in Kensington CSD, as shown in San Ramon
Figure 3-2. Agencies countywide averaged 1.2 Walnut Creek
sworn officers per 1,000 residents. Average
0 1 2 3
* Denotescities contracting for services from the Sheriff's Office.
43
Law Enforcement MSR
Refer to Table 3-1: Staffing and Budget Indicators, for a comparison of agency staffing levels.
Funding Levels
Comparing budgets between police agencies is not an exact science, as it depends on the source
of funds and the ability of the agency to secure additional funding through government grants,
charges for services, fines and forfeitures, and the like.
Law enforcement services are generally funded through General Fund monies and
supplemented by other governmental funds. Law enforcement services are a primary expense
among municipal service providers. Cities generally spend greater than 25 percent of their
allocated general fund expenditures on police services, with the majority of agencies in Contra
Costa County spending 50 percent. Refer to Table 3-1: Staffing and Budget Indicators, for a
comparison.
Figure 3-3: General Fund Expenditures Per Capita (FY 09-10)
Expenditures for law enforcement
SO NA
services may vary depending on type and
Antioch
degree of services provided. General
Brentwood
Fund expenditures per capita for police
Clayton
services throughout the County ranged Concord
from $125 in Moraga to $606 in Danville*
Richmond, in FY 09-10, as shown in El Cerrito
Figure 3-3. The average rate of General Hercules
Kensington CSD
Fund expenditures throughout the
Lafayette*
County was $296 per capita, during that
Martinez
same time period.
Moraga
For a comparison of budget data, Oakley*
Orinda*
refer to Table 3-1: Staffing and Budget
Pinole
Indicators.
Pittsburg
Beginning with the 2008-09 Fiscal Pleasant Hill
Richmond
Year, most law enforcement agencies
San Pablo
have been able to maintain their budget
San Ramon
levels or have actually increased
Walnut Creek
expenditures. However, because of
Average
increased costs (primarily for increased
$- $200 $400 $600 $800
retirement and medical benefits), several
agencies (as listed above) have reduced * Denotescities contracting for services from the Sheriff's Office.
law enforcement-related personnel.
Listed below are those police agencies whose General Fund budgets have increased over the
past three years.
Brentwood increased from $14.2 million to $16.0 million; a 12.7% increase.
Clayton increased from $1.7 million to $1.8 million; a 5.9% increase.
Danville increased from $6.5 million to $7.5 million; a 15.1% increase.
El Cerrito increased from $7.8 million to $9.4 million; a 21.0% increase.
44
Law Enforcement Services Overview
Hercules increased from $5.3 million to $7.0 million; a 33.4% increase.
Kensington CSD increased from $2.0 million to $2.1 million; a 6.7% increase.
Lafayette increased from $3.8 million to $4.1 million; a 7.3% increase.
Oakley increased from $7.0 million to $7.3 million; a 3.9% increase.
Orinda increased from $3.3 million to $4.0 million; a 23.0% increase.
Pinole increased from $6.3 million to $6.5 million; a 4.0% increase.
Pittsburg increased from $18.4 million to $20.1 million; a 9.3 % increase.
Richmond increased from $57.6 million to $62.9 million; a 9.3% increase.
San Pablo increased from $13.9 million to $14.1 million; a 1.6% increase.
San Ramon increased from $9.7 million to $10.2 million; a 4.5% increase.
Listed below are those police agencies whose General Fund budgets have remained static over
the past three years.
Martinez an average of $10.1 million per year over the past three years.
Walnut Creek an average of $22.7 million per year over the past three years.
Listed below are police agencies whose General Fund budgets have been reduced over the past
three years.
Antioch reduced from $26.3 million to $24.9 million; a 5.3% reduction.
Concord reduced from $42.6 million to $41.6 million; a 2.3% reduction.
Moraga reduced from $2.2 million to $2.0 million; an 8.1% reduction.
Pleasant Hill reduced from $10.2 million to $9.7 million; a 5.3% reduction.
Sheriff's Office reduced from $212.6 million to $207.3 million (General Fund monies only); a
2.5% reduction.
In the coming years, most law enforcement agencies anticipate reduced funding, given the
overall reduction in General Fund revenues due to the continuing downturn in the economy, and
the increased costs to public agencies for increased contributions to retirement programs.
Generally speaking, local agencies continue to experience reduced or ‘flat’ revenues from
property tax and sales tax, the two major components of General Fund revenues. Property tax
revenues continue to decline at approximately three percent per year, primarily due to the reduced
assessed value of residential units. Sales tax revenues are also showing annual reductions of three
to four percent.
45
Law Enforcement MSR
Retirement programs (especially the California Public Employees’ Retirement System –
CalPERS), will require increased contributions from local agencies, which are being phased in over
the next three years and are expected to remain in place for the next 30 years. The current
contribution rate for public safety employees and retirees is approximately 33% of wages, while the
rate for miscellaneous employees is around 14%. These rates are expected to increase.
Cost Reduction Strategies
There are several strategies that low-cost police departments have implemented, or are
planning to implement, which may help curtail their operating costs. They include: strict
monitoring of overtime; utilizing longer than traditional eight hour work shifts; reductions in
personnel that are offset by the use of non-sworn personnel for administrative positions and lower
priority policing; increased reliance on volunteers; and consolidation or contracting for dispatching.
Several law enforcement agencies in Contra Costa make use of community service officers that
are assigned to non-emergency and support tasks, rely heavily on volunteers and explorers, and
contract for dispatching services.
Use of Non-sworn Personnel
Reclassifying sworn officers performing administrative jobs to civilians is a strategy that could
reduce costs. Many administrative tasks can be performed by non-sworn personnel at a reduced
cost. Several cities in California, including Los Angeles and Oakland, are pursuing this cost
reduction strategy as a means of minimizing costs, and at the same time ensuring that highly
trained personnel are used in a way to maximize their effectiveness and maintain a high level of
service. The cost for pay, benefits and training are significantly less for a civilian employee than
that of a sworn officer. Functions that would ideally be designated to non-sworn personnel include:
Planning and Research
Media Relations
Communications
Records
Animal Control
Property/Evidence
Victim Advocacy
Police Auxiliary/Reserve
Legal Affairs
Fleet Maintenance
Detention
Arrestee/Prisoner Transport
Forensics
Use of Volunteers
As cities are becoming more strapped for revenues and are faced with the juggling act of
reducing staffing levels yet maintaining an adequate level of service, many are looking to volunteers
to fill the staffing gap.
46
Law Enforcement Services Overview
Use of volunteers to assist in the provision of municipal services represents a potential source
of low cost help for local governments searching for ways to deliver more services for less money.
An example is the City of Redlands, where over the last three years the City has managed to
increase volunteer levels from approximately 24 volunteers to 291 active volunteers as part of the
Citizen Volunteer Patrol Unit in the Police Department. The volunteers cordon off crime scenes,
direct traffic, patrol parks, issue parking tickets, assist with animal control, and provide crowd
control at special events. They are also trained to check in parolees, assist with records processing,
help staff DUI checkpoints, take reports on routine property crimes, serve as the liaison with the
district attorney’s office, provide counseling to crime victims, and monitor sex offenders remotely.
In FY 07-08, the Police Department in Redlands (population 71,000) had 98 sworn officers, 208
civilians and about 24 volunteers. The Police Department’s budget was $23.8 million, nearly half of
the city’s operating budget. As of FY 10-11, the Department employs 75 sworn officers and 138
civilians and relies on 291 active volunteers, who last year contributed more than 31,000 hours of
their time to the city. The overall department budget in FY 10-11 is $20.6 million, meaning law
enforcement costs per capita have been reduced from $333 to $287 (or 14 percent) over the three
year period.
Service Demand
This section provides indicators of service demand such as crimes and calls for service. As the
County population grows and law enforcement funding remains static or actually declines,
additional pressure will come to bear on local law enforcement agencies to ‘protect and serve.’ The
overall population of the County grew from 948,816 in 2000 to 1,049,025 in 2010 (a 10.6 percent
increase). Only the slow-down in new housing starts will suppress new population gains over the
next ten years.
Service Calls
The police workload involves responding to 911 calls, burglar alarms and non-emergency calls,
in addition to patrol activities. Most service calls are not emergency responses, and most do not
involve a crime. Service calls reflect a community’s need for emergency and non-emergency
services.
Figure 3-4 Annual Average Service Calls per Capita (CY 07-09)
For the smaller jurisdictions, the number of SO
service calls has remained relatively constant. Antioch
Brentwood
In the larger jurisdictions, an annual increase Clayton
in call volume is the norm. Existing dispatch Concord
Danville*
centers are operating at capacity, and will be
El Cerrito
further burdened when 9-1-1 wireless calls are Hercules
Kensington CSD
directed to their respective answering points.
Lafayette*
Martinez
Service providers countywide averaged 1.5
Moraga
service calls per capita per year in 2007, 2008 Oakley*
Orinda*
and 2009. The Sheriff’s Office had substantially
Pinole
more calls per capita than the other Pittsburg
jurisdictions, with 2.8 calls per each resident, Pleasant Hill
Richmond
as shown in Figure 3-4. This is attributed to
San Pablo
use of the SO dispatch for animal control, as San Ramon
Walnut Creek
Average
0 1 2 3
* Denotescities contracting for services from the Sheriff's Office.
47
Law Enforcement MSR
well as callers who are unsure of the proper jurisdiction to call.
Demand management strategies including false alarm fees, 911 call response fees, and public
outreach could be used to reduce the number of unnecessary service calls and related costs.
Crime Rates
The Uniform Crime Reporting (UCR) Program provides nationally standardized criminal
statistics for use in law enforcement. In California, this program is administered by the State
Department of Justice (DOJ). Reported crimes are classified by UCR definitions designed to
eliminate differences among the various service providers. The crimes, selected because of
“seriousness, frequency of occurrence, and the likelihood of being reported to the police,” are
homicide, forcible rape, robbery, aggravated assault, burglary, larceny-theft over $400, motor
vehicle theft, and arson. DOJ categorizes these crimes as either violent (homicide, forcible rape,
aggravated assault, and robbery) or property (burglary, motor vehicle theft, and larceny-theft over
$400) crimes.
Figure 3-5: Total Crimes per 1,000 Population (CY 07-09)
Crime statistics tend to fluctuate from
SO
year to year. However, looking at the
Antioch
most recent data from 2007, 2008 and Brentwood
2009, both violent crimes and property Clayton
crimes are declining in most jurisdictions. Concord
Danville*
The criminal clearance rates however, are
El Cerrito
minimal for most agencies. Additional
Hercules
resources will be necessary in order to Kensington CSD
solve more crimes. Lafayette*
Martinez
The crime rate reflects the ratio of Moraga
violent and serious property crimes per Oakley*
Orinda*
capita, and is expressed as crimes per
Pinole
1,000 population. Based on the number of
Pittsburg
property and violent crimes between Pleasant Hill
2007 and 2009, providers countywide Richmond
San Pablo
averaged 21 crimes per 1,000 residents.
San Ramon
As shown in Figure 3-5, the number of
Walnut Creek
crimes per 1,000 population ranged from Average
7.4 in Danville to 48.8 in San Pablo.
0 20 40 60
The prevalence of the various types of * Denotescities contracting for services from the Sheriff's Office.
crimes varies by jurisdiction. Based on
crimes reported in 2009, Richmond (10.4), San Pablo (8.9), and Antioch (8.8) have a relatively high
ratio of violent crimes per 1,000 capita compared to other providers countywide which averaged
3.2 violent crimes per 1,000 capita. Violent crimes in these cities largely consisted of robberies and
aggravated assault. Providers countywide averaged 15.5 property crimes per 1,000 residents.
Property crime rates were highest in Richmond (31.6), San Pablo (29.9), Pittsburg (21.9) and
Walnut Creek (20.9). While the property crimes in Richmond, San Pablo, and Pittsburg largely
consisted of burglary and motor vehicle theft, property crimes in Walnut Creek were primarily
larceny-theft of over $400. Arson is most prevalent in El Cerrito and San Pablo.
48
Law EEnforcement Services Oveerview
Servicce Adequaacy
Each law enforcemment agencyy has been evvaluated usinng a number of factors. EExact comparrisons
are not allways possibble due to thee differing coonditions andd policing meethods used. Adequacy oof law
enforcemment servicess can be evaluated basedd on a numbber of elemennts. For thee purposes oof this
report, services are assessed acccording to accreditatioon, responsee times, cleaarance ratess (the
portion oof crimes solvved), managgement practtices and staffing ratios. For a comparison of serrvice-
related data, refer to TTable 3-2: Service Indicaators.
Accrreditation
The Commissionn on Accredditation for Law Enforccement Agenncies (CALEEA) is a nattional
organizattion that funnctions as ann independent accreditinng authorityy. Law enforrcement ageencies
may voluuntarily chooose to apply for CALEA aaccreditationn. CALEA offfers an accreeditation proogram
as well ass a law enforrcement recoognition program in whiich the agenccy is requireed to meet a more
modest llist of standdards. CALLEA law enforcement aaccreditationn does not require thee law
enforcemment agency tto meet speccific benchmaarks in termss of responsee time, staffinng levels or ccrime
clearancee rates. CALEEA accreditaation requires the police sservice provvider to pass inspection aand to
meet dozens of reqquirements such as annual docummented perfoormance evvaluation of each
employeee, investigatiion of all commplaints agaiinst the agenncy and its eemployees, and annual reeview
of allocattion and disttribution of ppersonnel. OOf the servicce providers in the Counnty, only Easst Bay
Regional Park Districtt Police Depaartment is acccredited by CALEA.
Clearance Ratess
The eeffectiveness of a law enfforcement aggency can bee gauged by mmany factorss, including ccrime
clearancee rates or thee portion of ccrimes that are solved.
Figure 3--6: Clearancee Rates (CY 007-09)
Cleared crimes rrefer to offenses for
which at least one pperson was aarrested,
charged wwith the offense, and turnned over
to the Diistrict Attornney for prossecution.
A crime is also connsidered cleeared by
exceptionnal means if the offendder dies,
the victim refuses to cooperrate, or
extraditioon is denieed. There are no
standards or guidelinnes on the prooportion
of crimess that should be cleared.
Figurre 3-6 depicts the clearannce rates
of all vviolent and property ooffenses,
which is calculated as the averaage rate
between 2007 and 2009. Providers
countywiide on aveerage cleareed 38.3
percent of violent crimes (homicide,
forcible rape, robbeery and agggravated
assault) committed in 2007, 20008 and
2009, annd 10.6 peercent of pproperty
crimes (bburglary, mottor vehicle thheft, and
thefts of greater thann $400) durring that
same timme period. Thhe clearancee rate for
449
Law Enforcement MSR
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 El 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 authors are attempting to reconcile these discrepancies for publication in the
final report. 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.
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
7 Walker and Katz, 2002.
50
Law Enforcement Services Overview
Figure 3-7: Priority 1 Response Times (2009)
Response times are dependent on
SO
the agency’s staffing level and size of
Antioch
the jurisdiction served. More
Brentwood
compact service areas will generally
Clayton
have lower response times. Law Concord
enforcement providers countywide Danville*
averaged five minutes and 44 seconds El Cerrito
Hercules
for Priority 1 incidents. Response
Kensington CSD
times ranged from one minute and 30
Lafayette*
seconds in Kensington to 12 minutes
Martinez
and 15 seconds in Concord. Refer to
Moraga
Figure 3-7 for the average Priority 1 Oakley*
response times of each agency.8 Orinda*
Pinole
Pittsburg
Pleasant Hill
Richmond
San Pablo
San Ramon
Walnut Creek
Average
0 5 10 15
* Denotescities contracting for services from the Sheriff's Office.
8 Discrepancies currently exist with respect to Priority 1 response times. The authors are attempting to reconcile these discrepancies
for publication in the final report.
51
Law Enforcement MSR
Table 3-1: Staff and Budget Indicators
Staff and Budget Indicators
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 176¹ 1.1 207.3 million 16.90% N.A.
Antioch 102,372 113 1.1 24.9 million 73.00% 243
Brentwood 51,481 62 1.3 16.0 million 45.10% 311
Clayton 10,897 11 1 1.8 million 50.00% 168
Concord 122,067 152 1.2 41.6 million 58.60% 341
Danville 42,039 31 0.7 7.5 million 42.20% 182
El Cerrito 23,549 43 1.8 9.4 million 35.70% 400
Hercules 24,060 32 1.3 7.0 million 27.40% 292
Kensington CSD 5,077 10 2 2.1 million² N.A. 415
Lafayette 23,893 16 0.7 4.1 million 43.10% 172
Martinez 35,824 39 1.1 10.1 million 52.50% 283
Moraga 16,016 11 0.7 2.0 million 32.80% 125
Oakley 35,432 30 0.8 7.3 million 59.40% 207
Orinda 17,643 14 0.8 4.0 million 40.70% 229
Pinole 18,390 32 1.7 6.5 million 53.10% 355
Pittsburg 63,264 75 1.2 20.1 million 63.90% 318
Pleasant Hill 33,152 40 1.2 9.7 million 52.70% 292
Richmond 103,701 181 1.7 62.9 million 51.50% 606
San Pablo 29,139 57 1.9 14.1 million 73.70% 485
San Ramon 72,148 58 0.8 10.2 million 27.10% 141
Walnut Creek 64,173 77 1.2 22.4 million 36.90% 353
Total or Average 1,049,025 total 1,263 total 1.2 average $491 million total 47% 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.
52
Law Enforcement Services Overview
Table 3-2: Service Indicators
Service Indicators
Calls per Violent Property Total Crimes per Violent Crimes Property Crimes Response
Agency Service Calls¹ Capita Crimes² Crimes² 1,000 population Clearance Rate Clearance Rates Time - 1³
Office of the Sheriff 425,800 5 590 2,085 17.3 29% 35% 8:39
Antioch 85,200 0.8 877 2,219 30.2 0 19% 7:21
Brentwood 38,000 0.7 124 631 14.7 47% 14% 4:40
Clayton 7,450 0.7 8 105 10.4 62% 8% 1:30
Concord 122,300 1 438 2,593 24.8 39% 16% 12:15
Danville 35,000 0.8 22 290 7.4 42% 6% 5:36
El Cerrito 10,500 0.5 155 570 30.8 35% 15% 4:45
Hercules 23,300 1 58 300 14.9 35% 9% 5:00
Kensington CSD 5,000 1 4 64 13.4 44% 2% 1:30
Lafayette 21,400 0.9 24 317 14.3 23% 5% 6:50
Martinez 28,200 0.8 123 703 23.1 23% 4% 7:30
Moraga 3,100 0.2 11 112 7.7 40% 6% 6:02
Oakley 36,165 1 88 452 15.2 49% 9% 5:35
Orinda 16,200 0.9 11 177 10.7 39% 5% 5:33
Pinole 12,700 0.7 119 452 31.0 37% 16% 6:20
Pittsburg 72,200 1.1 202 1,526 27.3 37% 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% 9% 2:30
Total or Average 1.57 mil. 1.0 4,586 20,684 21.1 38.3% 10.6% 5:44
total average total total average average average average
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 minutes and seconds.
53
Law Enforcement MSR
Facilities and Equipment
In the context of police service, infrastructure needs signify facilities that do not provide
adequate capacity to accommodate current or projected demand for service for the region as a
whole or for the jurisdictions within the region. The police departments provided the facility age
and an assessment of each facility’s condition and deficiencies. Facility locations and conditions are
indicated in each Police Department chapter.
Half of the law enforcement agencies within the County are housed in stand-alone facilities; that
is, they are located in a separate building from other agency facilities. The other half are part of a
‘City Hall’ type building, or combined with a fire department. Overall, police facilities for all
agencies are in very good condition, and provide adequate space for the various functions that are
part of day-to-day police activities. Most have secure parking for police vehicles and specialty
equipment.
Those police departments who share building space, or who have facility needs are as follows:
Clayton PD shares offices with other City departments at City Hall.
Danville PD is currently housed on the bottom floor of ‘Town Hall’ which also serves
other Town departments. Any significant increase in staff will require
additional space. The need exists for an exercise area.
El Cerrito PD shares a building with the Fire Department. Currently at capacity for office
space; some functions located off-site. Does not have secured parking.
Hercules PD is located in the west wing of City Hall, and shares a common entry but is
separate from other City offices.
Kensington PD is a tenant in a building owned by and shared with the Kensington Fire
Protection District. The building houses a joint Police Station and Fire
Station.
Lafayette PD is housed in a converted office building; shares the building with other City
offices. Currently at maximum capacity for personnel. Does not have secure
parking.
Martinez PD housed in the west wing of the City Hall Building. Secure parking area
recently added.
Moraga PD housed in the east wing at City Hall; does not have secured parking.
Orinda PD housed in the easterly half of the main floor at City Hall. Has a need for a
secure reception area and separate restrooms. Does not have secured
parking.
Pinole PD shares a building with the Pinole Fire Department and is located adjacent to
City Hall.
Pittsburg PD is housed in the west wing of the Civic Center and shares the building with
‘City Hall’ functions. Additional secured parking is needed.
54
Law Enforcement Services Overview
Pleasant Hill PD currently at maximum capacity for office space. In need of a secure parking
area.
San Ramon PD currently operating in an overcrowded office awaiting rehabilitation of an
existing building for new offices. Several functions currently located ‘off-site’
from the police department. Need a secured vehicle parking area. Operates
a ‘store-front’ satellite office in Dougherty Valley.
Critical Issues
Throughout the course of this study, a number of significant issues have been identified which
will impact law enforcement services in Contra Costa County. These issues are summarized as
follows:
Staffing Levels
It will become increasingly more difficult to maintain specialty components such as K-9
Officers, School Resource Officers, Community Service Officers, Narcotics Investigations,
Gang Suppression, and Graffiti Abatement as limited financial resources are directed to
patrol activities.
Heading up their respective law enforcement agencies in 2011 are five new Chiefs of Police
and the County Sheriff.
More Senior Staff will retire to take advantage of the current ‘3% at 50’ retirement benefit.
Current positions which are vacant or ‘frozen’ will not likely be re-filled for a number of
years.
Since June of 2008, Sheriff Deputies, Dispatchers, Aides and Specialists have been working
without a contract.
Funding Levels
Due to the global recession, the significant downturn in housing starts, reduced sales tax
revenue and property tax revenue, and the number of homes in foreclosure or ‘underwater,’
the County and the cities will experience continuing reductions in the amount of General
Fund monies available for law enforcement over the next several years. Fiscal Year 11-12
will be most telling for local law enforcement agencies as they try to maintain the levels of
service expected of them.
For the most part, recent ballot measures to increase the local sales tax to fund law
enforcement activities have not been successful.
Service Demand
In order to increase crime clearance rates (especially property crimes), it will be necessary
to fund additional Special-Response Justice Units (J-Teams) responsible for crime-solving,
acting on search warrants, arrests for drug sales, and recovery of stolen firearms and
vehicles.
Additional capacity (in both personnel and equipment) will be needed at the dispatch
centers to handle 9-1-1 wireless calls for service.
55
Law Enforcement MSR
Facilities and Equipment
The County maximum-security Martinez Detention Facility is operating at near capacity.
With the exception of San Ramon PD, all capital improvement projects for the Sheriff’s
Office and for city police departments are either unfunded or on hold.
Police stations serving the cities of El Cerrito, Lafayette, Pleasant Hill, and San Pablo are at
maximum capacity.
Secure parking areas for police vehicles are needed in Lafayette, Moraga, Pittsburg, and
Pleasant Hill.
The serviceable life for police patrol vehicles is being extended from four years and 85,000-
90,000 miles, to five years and 100,000-105,000 miles.
Ford Motor Company is scheduled to discontinue its line of Crown Victoria police cruisers in
late 2011 and replace them with a Ford Police Interceptor based on the Ford Explorer.
The rising cost of gasoline will impact all Patrol Divisions.
Dispatch
Police Departments who contract for dispatch services with other law enforcement agencies
are experiencing rapidly rising costs; but they are unable to provide such services
themselves.
A P-25 compliant communications system providing fully interoperable communications to
all public agencies in Alameda and Contra Costa County is scheduled to become operational
in 2013. Equipment funding and operational costs are issues for local law enforcement
agencies.
With the advent of the two-county interoperable radio communication system, along with
the transfer of 911 cell phone calls to the Sheriff’s dispatch center, a coordinated effort
among all law enforcement, fire and emergency medical dispatch operations will be
necessary. This is a task that the PSAP Manager’s Group may wish to undertake, in
conjunction with the SO.
Grant Funding
Grant funding, primarily through the Federal Community Oriented Policing Services (COPS)
program and the California Citizen’s Option for Police Programs (COPPS) is becoming more
competitive, and grant awards are more difficult to obtain.
56
City of Antioch
4. City of Antioch
The City of Antioch 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 Antioch 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 Antioch is a general law city, which was incorporated in 1872. Its boundary area is
approximately 28.3 square miles (land only). The City’s SOI encompasses four unincorporated
islands in the northerly portion of the City, as well as a future development area in the south.
(Refer to Map 4-1.)
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,
as the department head for the Police Department (PD), reports to the City Manager. The City
Council, City Manager, and the Police Chief communicate regularly on issues relating to law
enforcement and crime prevention. The Police Chief is Alan Cantando who was appointed in July
2011.
A Police Crime Prevention Commission, composed of seven Antioch residents, provides input on
law enforcement issues to the City Council. The Commission makes recommendations to the City
Council relative to crime prevention, and makes reports on programs which might be initiated to
help the Police Department and the citizens create a safer community. The Commission is
appointed by the Mayor and City Council and is not an oversight entity.
Constituent outreach efforts aimed at crime prevention, education about the Department’s
activities, and involving constituents in police efforts in the City include Antioch’s Community
Action Team, presentations in schools by school resource officers, as well as 11 community
partnership programs, such as the Volunteers in Police Service (VIPS) - a volunteer organization
committed to assisting the Department in enhancing community safety), a neighborhood watch
program, and the Reach Project (a youth intervention program in lieu of juvenile probation). In
addition, as part of a department reorganization, Antioch PD revised its media information release
policy, created a public information officer position, expanded the role of the Crime Prevention
Commission in educating the public, used the city website to create videos for educating the public
57
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.
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 162 positions for the Antioch PD, of which 113 were
sworn 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 tenants for
department operations, focusing on 1) leadership and relationships, 2) communication, 3) staffing,
4) reducing crime, 5) 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
five-year capital improvement plan, at present there are no plans for law enforcement related
capital improvements.
58
City of Antioch
General Plan Service Standards for police are as follows:
Maintain a force level within a range of 1.2 to 1.5 officers, including Community Services
Officers assigned to community policing and prisoner custody details, per 1,000 population;
and
The ratio of Community Service Officers assigned to community policing and prisoner
custody details to sworn officers shall not exceed 20 percent of the total number of sworn
officers.
Antioch PD currently meets both of these standards.
Population and Growth Projections
According to the 2010 Census, the population of the City is 102,372. Over the last 10 years, the
population of Antioch has grown by 13 percent.
The City reported that new population-based growth will be primarily in-fill development and
new development driven industrial, commercial and residential growth. Growth expectations
reported in the City’s General Plan are based on population projections from ABAG. The southern
section of the City has been the location for most of the new residential development. Currently
pending, is a development application designed to provide luxury homes in the southern sector of
the City.
Based on ABAG projections, the City is anticipated to grow by 11 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
anticipates that the City’s population will be 119,200 in 2035.
Antioch PD does not anticipate difficulties serving any growth in the near future; however, the
Department indicated that its ability to serve new development would depend greatly on the level
of future budget cutbacks caused by the recession, the nature and size of the new development,
location, and traffic generated.
The Department reported that it is involved early in evaluating new development and works
closely with planners on land use issues. 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.
There are four unincorporated islands within the City Limits where the Sheriff provides
services. The first is the Contra Costa County Fairgrounds located at West 10th Street and L Street.
The Fair contracts with the Sheriff’s Office for law enforcement services during the fair, and
contracts with a security company for private events throughout the year. The second is a 78-acre
parcel located east of Somersville Road and James Donlon Boulevard and site of the former Contra
Costa Sanitary Landfill. The third is a 108-acre area bounded by 18th Street and the Burlington
Northern Sante Fe railroad tracks in the Wilbur Avenue area. This area is inhabited, has significant
infrastructure issues, minimal code and law enforcement, and was the location of the 2009 Jaycee
Dugard kidnapping case. The fourth island is a 196-acre parcel surrounded by the City of Antioch
on three sides and the City of Pittsburg on the fourth side, and is part of the Somersville Road
Corridor Focus Area. (Refer to Map 4-1.)
59
Map 4-1
City of Antioch Boundary, SOI, and Urban Growth Boundary
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65 b 1 y P C i o n n e t r S a t r C ee o t s , t 3 a 4 7 t C h :5 o F 9 M u l : o 4 n a o t 8 p y r . 4 c C N 5 r o e 5 o m a N r t t m e h d 1 u W 2 n 6 2 i i / n t 1 : y 0 g 3 6 D , / 2 : M e 3 0 v 5 a 1 e . r 0 3 t lo i 8 n p 4 e m W z, e C nt A , G 94 IS 5 5 G 3 r - o 0 u 0 p 95 its r t e a a p b x c r a c r o a s u d e t r e u a D d c c a e a e y r p t d . e a a T a , i r n s h t p m . i i r s t i W s e m m n c h a t u a i r l w p e i r l r y i e t c o h C n o b t n d i l t i s y g a ta t a t a L a in t t i e e m s f d r o i i c f t t m o s o t , h p u i e t y s h s r s e i e d g o e h C t u h r t o i r e i v c s n d e e t d d r i i a n a s f f t r C o a c o r i o m t m th e s d a e t t a h t . i C e o U C o n C s o u e a u A n r n n t s y S d t y o t a m a f G s t t a e s h IS y u i B s m n P o m o e r a o t s a r g b d p n r e o a o a a f m g r E l e r t . e e s q e r S p u e o a o t d o n l m . i z s r e e a i I b t a t i i m l o d it n a y a ' y s n f o d b r e 0 0.5 1 Miles
accept the County of Contra Costa disclaimer of liability for geographic information.
City of Anntioch
Finaancing
Econoomic recessiion issues haave put growwth on hold aand decreased budget alllocations for city
services aand programms. The Deppartment is ffacing severee budget cuttbacks whichh have resultted in
the layofff or transfeer of essenttial sworn ppersonnel noormally assigned to speecialized serrvices
(including Detectivess, Traffic Enfoorcement annd Resource Officers). TThe implications may ressult in
labor unrrest during tthe meet andd confer proocess, especially as it pertains to pennsion and beenefit
issues. Further buddget cutbackks are expeccted in the next fiscal pperiod and beyond, andd the
Departmeent is evaluating methoods of reducing personnnel and proggrams while still maintaaining
reasonabble effectivenness in achieeving stated proactive deepartment gooals and objectives. Redduced
budget alllocation havve cost the deepartment thhe eliminatioon of six policce officers, wwhich necessiitated
returningg five detectives to patroll duties, and eliminated aa selective traaffic enforceement positioon. In
addition, the departmment has eliiminated thrree School RResource Offficers, six Coommunity Seervice
Officers aand four suppport staff poositions. Thhe public serrvices counteer and the RRecords Unit have
limited hours, currently Monday tthrough Thurrsday from 99:00 AM to 1:00 PM. At aall other timees, the
entrance to the buildiing is locked and entry is granted via a phone locaated outside the building.
The DDepartment’ss services are financed primarily throough the Genneral Fund aand augmented by
three speecial revenuee funds. Revvenues relateed to law enfforcement acctivities whicch are includded in
the General Fund include sales taax income for public safeety services, federal grannts, fees and fines,
and serviice charges. Fees includde bicycle liccenses, falsee alarm permmit fees, falsee alarm respponse
fees, and abatement fees. Fines iinclude non--traffic fines and vehiclee code fines. The Departtment
provides security seervices for tthe school ddistrict and provides contract disppatch services to
Brentwoood for whichh it collects ccharges for service. In FYY 09-10, theese funding ssources combbined
compriseed 11 percentt of the Geneeral Fund moonies dedicatted to Police Department.
The SSupplementaal Law Enforcement Fundd tracks supplemental public safety funding allocated
in AB 32229. Funds must be ussed for frontt-line police services annd must suppplement andd not
supplant existing funnding for laww enforcemennt services. The Local LLaw Enforcemment Block GGrant
Fund accounts for public safeety funding allocated uunder the Fiscal Yearr 1996 Omnibus
Appropriiations Act. Funds may bbe used for aa wide varieety of activitiies from incrreasing persoonnel
and equippment resouurces for laww enforcemennt to developping and suppporting proggrams to enhhance
effective criminal justice processes. The thirrd special revvenue fund is the Animaal Control fuund; a
portion oof the revenuues required to operate tthis functionn comes fromm animal liceenses and shhelter,
adoption, handling, aand impoundd fees, and thhe reminderr comes fromm a subsidy ttransfer fromm the
General FFund. In FY 09-10, Geneeral Fund exppenditures aaccounted for 97 percentt of police seervice
expendituures, while special reveenue funds ffinanced thee remaining three perceent, of whichh, the
Animal Control fund iis the primarry contributoor.
FFigure 4-1: Anntioch PD Expenditures (FYs 08, 09, & 10)
Whilee there have been personnel
cuts to the Policce Departmment,
expendituures over thee last three fiiscal
years havve been relattively stable, and
in fact, acctually wentt up in FY 088-09
as shownn in Figure 44-1. With sttatic
expendituures, personnnel losses are
attributedd to higheer pension and
health cooverage costts. In FY 099-10,
the primmary expeenses for the
Departmeent were tthe Commuunity
Policing Division (54 perceent),
661
Law Enforcement MSR
administration (13 percent), investigations (10 percent), and communications (8 percent).
The City sponsored a ballot measure for the 2010 General Election (Measure P), which
proposed the addition of a one-half cent transaction and use tax for a period of eight years in order
to avoid police layoffs, maintaining neighborhood police patrols, and 911 emergency response. The
measure was defeated with 51.84% No votes. This vote will exacerbate funding shortages for law
enforcement services in the City.
There was no long-term debt related to law enforcement services at the end of FY 09-10.
Antioch takes part in the Municipal Pooling Authority joint powers authority for risk
management coverage.
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 Department is responsible for community policing, has a Community Action Team (CAT), a
Special Weapons and Tactics (SWAT) Team, conducts Emergency Preparedness training, and
advises the Police Crime Prevention Commission. Antioch PD is also involved in the East Bay
Terrorism Early Warning Group, Neighborhood Watch, and a vacation house check program.
Animal control services are provided through the Police Department, including programs
promoting animal welfare and public awareness. The Antioch Animal Services Center is responsible
for the enforcement of local and State laws related to the care, control, and protection of animals, as
well as the protection of area residents from animals. The Department relies on the Sheriff’s Office
for search and rescue services and long-term holding facilities, and the City of Walnut Creek for
bomb squad services.
Antioch PD provides contract police dispatch services to the Brentwood Police Department for
$700,000 to $800,000 annually.
The Sheriff’s Department provides safety services within the City in two capacities: patrolling
the Contra Costa County Fairgrounds during the fair’s four day run; and responding to a City of
Antioch “critical incident” in which a request has been made for “mutual aid.” The Sheriff’s
Department marine response boats are based at the Antioch Marina and provide a wide range of
essential services throughout the delta waterways that are adjacent to east County cities.
Patrol
Antioch PD patrols 27 square miles which are broken down into six beats. Patrols within each
beat are based on a team concept and features a ‘modified 4-10 schedule’ in which officers work
four 10-hour shifts. This allows officers to have every other weekend off, and facilitates a minimum
of ten hours of training per month. Antioch utilizes a single officer for each beat vehicle.
Under the Community Policing Program, the City is divided into 63 community policing
reporting zones (RZ’s), which include all neighborhoods. Every Community Policing Officer is
assigned to a specific RZ, which allows for community policing coverage 7-days per week.
62
City of Antioch
Staffing
Figure 4-2: Antioch PD Staffing Levels
Over the last two FYs (10, 11),
Position FY 08-09 FY 09-10 FY 10-11
the City has reduced the Police
Chief 1 1 1
Department staff by 13 positions
by eliminating sworn police officer Captain 2 2 2
and traffic control officers Lieutenant 6 6 6
position, and replacing those Detective 5 0 0
positions by transferring
Police Officer 116 106 105
detectives; and by eliminating six
K-9 Officer 5 5 5
Community Service Officers. (Refer
Disptacher 15 17 15
to Figure 4-2)
Community Service Officer 0 20 14
Currently, the department
Traffic Control Officer 5 0 0
determines staffing levels based
Animal Control Officer 3 3 3
upon the general plan standard of
a specified number of sworn Office Support Staff 7 11 7
officer’s per capita level, or 1.24 TOTAL 165 171 158
officers per 1,000 residents. By
including Community Service Officers in the sworn officer category, Antioch has maintained this
ratio, currently at 1.28 officers per 1,000 residents.
In light of recession caused budget restraints, and increased pension and benefit costs, police
staffing levels are expected to be reduced in the next budget cycle. Another method of determining
staffing levels used by some police agencies is based upon response times to emergency life
threatening events, such as injury accidents, serious crimes in progress involving threats or
weapons, violent domestic disturbances, and other essential emergency calls for services. This
performance based system uses arrival time on scene from the time the call is received as essential
criteria for determining the number of officers needed and available to respond to life threatening
calls for services, and is based upon the requisite to quickly deliver emergency life sustaining
services at the time and places when needed.
Location
Antioch PD provides services throughout the City’s territory, and in addition, provides services
outside its boundaries through mutual aid agreements. These 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 Officer Involved Fatal Incident Protocol which provides fatal incident
investigations for the entirety of Contra Costa County; 3) the County Wide Mutual Aid Program,
which is a countywide agreement to provide law enforcement services to any other provider when
needed; and 4) the Lone Tree Corridor Enforcement Agreement which is an agreement with
Brentwood PD to provide response to priority calls in the Brentwood-Antioch commercial area
without compensation. Antioch PD also provides dispatch services to Brentwood PD by contract.
The Department did not identify any areas within the City’s boundaries that are particularly
challenging to serve.
63
Law Enfoorcement MSRR
Infraastructure
Antiooch PD operaates out of a single policee headquarteers at 300 L Street whichh is a state-of-the-
art, 68,0000 square foot building ccontaining addministrativve offices, traaining roomss, computer-aided
dispatch system, inddoor firing raange, weight-training rooom, and loccker rooms. The facilityy also
serves ass the Emergeency Operations Center. The Departmment movedd into the faccility in 20033, and
reported that it is preesently in exxcellent conddition and haas no infrastrructure needds or deficienncies.
There aree no plans foor significantt capital imprrovements too the police facility beforre 2015, based on
the City’ss capital imprrovement plaan.
The aanimal shelteer and animaal control serrvices, whichh are funded by a special revenue fund, are
also partt of the faciliity. The Cityy reported thhat expansioon of the aniimal controll facilities may be
necessaryy; however aat present theere is no fundding source aavailable.
The DDepartment did not repport any neeeds related tto vehicles or equipmennt. Vehicless and
equipmennt (radar traailers and an incident commmand traileer) are kept within a seccure area adjacent
to the pollice building.
Servicce Demand and Serrvice Adeqquacy
Each law enforcemment agencyy has been evvaluated usinng a numberr of factors. These factorrs are
indicatedd in Figure 4--4: Antioch Law Enforceement Profilee. These proofiles can be used to commpare
between agencies, aalthough exaact comparissons are noot always possible due to the difffering
conditionns and policiing methods used. Refer also to Chapter 3: Law Enforcemment Overvieww for
comparisson tables.
Servvice Demandd
Figure 4-33: Violent andd Property CCrimes (2007--2009)
An inncrease in ppopulation
does nott necessarilyy indicate
an increaase in level oof demand,
such as crimes and service
calls. Inn fact, during the last
three yeaars, the annuaal number
of crimess and the nnumber of
crimes per capita haave had a
downwarrd trend. Ass shown in
Figure 4--3, while the number
of violentt crimes has remained
relativelyy static over this time
period, thhe number of property
crimes hhas declined by 16
percent. Based on thhe number
of properrty and violeent crimes bbetween 2007 and 2009,, the City haad approximaately 30 reported
crimes peer 1,000 residents, whilee providers countywide averaged 211 crimes perr 1,000 residdents.
The City averaged 855,200 servicee calls per year in 2007, 22008 and 20009, which iss 843 servicee calls
per 1,0000 residents. By comparisson, service pproviders couuntywide avveraged 1,5000 service callls per
1,000 ressidents durinng the same ttime period.
664
City of Antioch
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.9 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 seven
minutes and 21 seconds, while law enforcement providers countywide averaged five minutes and
44 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. 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 and property crimes within its jurisdiction than the average of other
providers in the County. 10
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 0.7 sworn staff per 1,000 residents in Danville and Lafayette to 2.0 in Kensington CSD.
Antioch PD is slightly below the countywide average of 1.2 sworn staff per 1,000 residents, with a
sworn staff to resident ratio of 1.1.
9 Walker and Katz, 2002.
10 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. 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.
65
Law Enforcement MSR
Figure 4-4: Antioch Law Enforcement Profile
Antioch Law Enforcement Profile
Service Configuration Service Demand
Patrol Antioch Population (2009) 100,957
Number of Beats 6 Population (2010) 102,372
Dispatch Antioch Total Service Calls (2009) 94,684
Search and Rescue Sheriff Calls per 1,000 population 843
Investigations Antioch Crime Activity
Traffic Enforcement Antioch Arrests (2009) 6,667
SWAT Antioch Violent Crimes (2009) 897
Temporary Holding Antioch Property Crimes (2009) 2,053
Long-term Holding Sheriff Traffic Accidents 213
Bomb Squad Walnut Creek PD Violent Crime Rate per 100,0002 2,607
Canine (K-9) Services Antioch Property Crime Rate per 100,0002 6,593
Staff Training Antioch
Animal Control Antioch
Service Adequacy Resources
Avg. Priority One Response Time 7:21 Total Staff (2010) 158
Response Time Base Year 2009 Sworn Staff 113
Clearance Rate of Violent Crimes3 47% Support Staff 45
Clearance Rate of Property Crimes3 19% Volunteers 4
Per Capita Cost (General Fund) $ 243 Sworn Staff per 1,000 population 1.1
Service Challenges
The Department has faced financing constraints during the recent recession and has suffered staff reductions.
The Department's goal is that emergency services response will not be impacted by reduced revenue;
however, service levels to non-emergency crimes and events are now exposed to the impacts of budget
cutbacks, and this is expected to further diminished service response levels.
Facilities
Station Location Condition Built
Antioch Police 300 "L" Street, Antioch, CA 94509 Good 1993
Facility
Current Facility-Sharing and Regional Collaboration
The City participation in regional activities includes DOW Chemical drills and training, drills with the Antioch
USD for emergency services preparedness, and the Contra Costa County Avoid the 25 DUI program. Antioch
PD shares its dispatch facilities with Brentwood PD by contract.
Opportunities for Facility-Sharing and Regional Collaboration
Future facility sharing opportunities may include the sharing of animal control services between Antioch,
Oakley and Pittsburg.
Notes:
(1) Other includes rape, robbery, assault, theft, and arson.
(2) Crime rates are aggregated for the period between 2007 and 2009.
(3) Clearance rates are aggregated for the period between 2007 and 2009.
66
City of Brentwood
5. City of Brentwood
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 BrentwoodPolice 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 SOI encompasses two adjacent
unincorporated areas, one in the northeast and one in the southwest. (Refer to Map 5-1)
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,
as the department head for the Police Department (PD), 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 Adolescence 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 Profession Standards Unit.
The Department did not provide the exact number and type of complaints received in 2007, 2008,
and 2009, but estimated that 30 to 40 complaints are received annually.
67
Law Enforcement MSR
Brentwood 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
Per the City’s FY 10-11 budget, the PD 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 S.W.A.T 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 PD 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 Brentwood. 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.
Planning documents that guide Brentwood PD’s services are the City’s 2001-2021 General Plan,
which was updated in May 2009, and a departmental strategic plan and mission statement.
68
City of Brentwood
General Plan Service Standards for police are as follows:
Capital facilities and personnel shall be provided sufficient to maintain a five minute police
response time, and
Capital facilities and personnel shall be provided sufficient to maintain a force level of at
least 1.5 officers per 1,000 population.
Brentwood PD currently meets the response time standard. It presently does not meet the
force level standard of 1.5 and has a current officer ratio of 1.2 per 1,000 population. However, this
standard is no longer applied, and has been replaced by the Benchmark criteria.
Financial planning documents include the biennial budget, a capital improvement plan, and a
cost allocation plan. The City’s capital improvement program is a multi-year planning program for
the construction of new facilities and infrastructure, and for the expansion, rehabilitation, or
replacement of City-owned assets. The plan covers a five-year period and is updated by staff and
approved by the City Council each year. Brentwood has an extensive CIP for the period FY 2010-11
– 2014-15 consisting of 94 projects, of which one project is related to law enforcement services—
the purchase and installation of crime analysis and reporting software. In addition, as part of
Brentwood’s long-term strategic planning, the City annually prepares a 10-year fiscal model. The
fiscal model helps to identify potential financial difficulties before they become a reality.
Population and Growth Projections
According to the 2010 Census, the population of the City is 51,481. Over the last 10 years, the
population of Brentwood has grown by 121 percent.
The City projects that the rate of residential development will be changing to pace the
remaining build out of the community over the next 10-15 years, with budgets addressing that
transition. The City anticipates reduced rates of growth in the future and is implementing specific
plans and corridor studies to accommodate this change and related impacts of capital improvement
funding and related financial and service matters.
A Specific Plan is underway for a portion of Brentwood Boulevard (State Route 4), with
additional development related to in-fill of vacant residential and commercial areas.
Based on ABAG projections, the City is anticipated to grow by 30 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 77,500 in 2035.
Brentwood PD has had to address substantial growth over the last 10 years. The Department
indicated that the significant rate of growth has forced the PD to provide increasing urban levels of
service over a short period of time. This rapid level of growth has led to increased response times.
In order to accommodate new growth, patrol beats are adjusted based on the volume of calls for
service. The Department reported that in order to serve any future growth, additional facilities
would be necessary, such as a substation that is staffed with volunteers and offers a place for
officers to work.
The Department is invited to participate in the Development/New Projects Committee, to
evaluate and comment on any proposed developments. 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.
69
Law Enforcement MSR
At the present time, there is one unincorporated island within the City limits. This is a 140-acre
island located where Lone Tree Way intersects with Virginia Drive west of Brentwood Boulevard.
(Refer to Map 5-1.) This area is expected to annex to the City upon development.
70
Map 5-1
City of Brentwood Boundary and Sphere of Influence
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Marsh Creek Rd
By LAFCO action on 12/10/08,
the City of Brentwood boundary
and SOI were approved.
V
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Brentwood City Boundary
ino
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d
Brentwood Sphere of Influence
Urban Limit Line
This map was created by the Contra Costa County Community Development ®
65 b 1 y P C i o n n e t r S a t r C e o e s t, t 3 a 4 7 t C h :5 o F 9 M u : lo 4 n a o 8 t p y r . 4 c C 5 N r o e 5 o m a N r t t m e h d 1 u W 2 7 n 2 i i / n t 2 : y 0 g 3 6 D , / 2 : M 3 e 0 5 v a 0 e . r 9 3 t l i o 8 n p 4 e m W z, e C n A t, G 94 IS 5 5 G 3 r - o 0 u 0 p 95 its r t e a a p x b c r a c r o a s u d t e r e u a D c d c a e e a y r p d t e . a a a T i , r n s h t p m . i i r s t W i s e m m n c h a t u a i r l w r e p il r y i e t o c h n C b o t n d l i i t s g t a y a t a t a L i a t n t e i e m s f d r o i c i f t t m o s o th , p u e t i y s h s r s e i e d g o e h C t u h r t r o i e i v c s n d e e t d d r i i n a a s f f t r o C a c o r i o m t t m e h s e d a t t a h . t C i e U o C o n s C o u e a u A n r n n t s y S d t y o t a m a f G s t t a e s h IS y u i B s m n P o m o e r a o t s a r b g d p n r e a o o a a m f g r l E e r t . e e s q e r S p u e o o a t d o n m l . i z s r e e a i I b t a t i i m l o d it n y a a ' y s n f o d b r e 0 0.5 1 Miles
accept the County of Contra Costa disclaimer of liability for geographic information.
Law Enfoorcement MSRR
Finaancing
The DDepartment’ss services are financed primarily throough the Genneral Fund aand augmented by
one Special Revenue Fund whichh accounts foor 1.9% of tootal PD fundss (approximately $300,0000 in
FY 10-111). Revenuees are colleccted from Fiines and Forrfeitures ($1180,000 perr year) and POST
Reimburssements ($255,000 per year), and are cconsidered GGeneral Fundd monies.
Figuure 5-1: Brenttwood PD Expenditures (FYs 08, 09, & 10)
Expennditures ovver the laast
three fiiscal years have been
relativelyy stable, aand in faact,
actually went up in FY 09-10, as
shown inn Figure 5-1.. In FY 09-110,
the primmary expennses for tthe
Departmeent were ppersonnel (80
percent), supplies annd services (13
percent), internal seervices (sevven
percent), and capitall outlays (leess
than one percent).
Long--term debt rrelated to laaw
enforcemment servicees includes a
general oobligation bond issued in
2002 to finance thee constructioon,
acquisitioon and imprrovement off a
new policce station. Tootal annual ddebt service payments, inncluding inteerest at 3.6225 percent too 5.68
percent, rrange from $$208,666 to $925,000. AAt the end oof FY 09-10, tthe remaininng balance oon the
bond wass $12.7 millioon, includingg interest. Thhe bond will bbe retired inn 2031.
Brenttwood takess part in the Municipall Pooling Auuthority joinnt powers aauthority forr risk
managemment coveragge.
Law EEnforcemeent
Natuure and Exteent
The PPolice Department is reesponsible ffor providingg law enforrcement servvices in the City,
includingg crime preveention, parking and trafffic control, community aawareness, annd investigations.
The Depaartment is reesponsible foor communityy policing, haas a Special WWeapons annd Tactics (SWWAT)
Team, annd conducts EEmergency PPreparedness training. BBrentwood PPD is also invvolved in thee East
Bay Regioonal Communication Systtem and the Contra Costaa Mobile Fielld Force.
The DDepartment relies on thhe Sheriff’s OOffice for seearch and reescue servicees and long--term
holding ffacilities, Couunty Animal Control for animal servvices, the Citty of Walnutt Creek for bbomb
squad services, and tthe City of AAntioch for police dispatcch services. Brentwood PD would liike to
start provviding its owwn dispatch services; howwever, it is sstill more coost effective to utilize Anntioch
PD.
The SSheriff’s Depaartment alsoo provides safety servicess within the CCity by respoonding to a CCity of
Brentwoood “critical inncident” in wwhich a requeest has been made for “mmutual aid.”
Brenttwood PD dooes not provide contract sservices to otther agencies.
772
City of Brentwood
Patrol
Brentwood PD patrols 11.6 square miles which are divided into four beats. Platoon A
(consisting of three squads and the Traffic Unit) work four 10-hour shifts (Monday through
Thursday) while Platoon B (consisting of three squads and the Field Training Officer) work four 10-
hour shifts (Thursday through Sunday). The overlap day is utilized for training and coordination.
Brentwood utilizes a single officer for each beat vehicle.
Staffing
Figure 5-2: Brentwood PD Staffing Levels
Over the last three FYs (09, 10, Position FY 08-09 FY 09-10 FY 10-11
11), unlike other city police
Chief 1 1 1
departments, Brentwood has been
Captain 2 2 2
able to maintain stable staffing levels
Lieutenant 4 3 4
with little variation from year to year.
Detective 5 5 5
(Refer to figure 5-2.)
Police Officer 51 51 51
Currently, the department
K-9 Officer 2 2 2
determines staffing levels based upon
Community Service Officer 7 7 7
the necessary number of sworn
Records Specialist 7 7 7
officers by utilizing an innovative
Office Support Staff 3 3 3
annual Benchmark Report which
TOTAL 82 81 82
allows monitoring of staffing levels.
Brentwood PD presently employs 1.2 sworn officers per capita, and has been able to maintain its
sworn force.
Location
Brentwood PD provides services throughout the City’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 California Law Enforcement Mutual Aid Plan; 3)
the County Wide Mutual Aid Program, which is a countywide agreement to provide law
enforcement services to any other provider when needed; and 4) the Lone Tree Corridor
Enforcement Agreement which is an agreement between Antioch PD and Brentwood PD to provide
response to priority calls in the Brentwood-Antioch commercial area without compensation. The
Department does not have any automatic aid agreements with other providers.
The Department did not identify any areas within the City’s boundaries that are particularly
challenging to serve.
Infrastructure
Brentwood PD operates out of a police headquarters at 9100 Brentwood Boulevard, and a
single substation located at the Streets of Brentwood Shopping Center on Sand Creek Road. The
police headquarters was built in 2005 and is considered to be in excellent condition. The
Department reported that there is a need to expand the carport and remodel the front counter area.
There are no plans for significant capital improvements to either of the police facilities before
2015, based on the City’s capital improvement plan. There are also no plans for additional facilities.
According to the City’s capital improvement plan, Brentwood PD is in need of crime analysis and
73
Law Enfoorcement MSRR
reportingg software, wwhich is stanndard amongg larger laww enforcemennt agencies. The Departtment
plans to ppurchase andd install this software in FFY 2012-13.
The DDepartment did not repport any neeeds related tto vehicles or equipmennt. Vehicless and
equipmennt are kept wwithin a secuure area adjacent to the ppolice buildinng. The City will be extennding
the life off all vehicles from four too five years, aand from 80,0000 to 100,0000 miles to rreduce costs.
Servicce Demand and Serrvice Adeqquacy
Each law enforcemment agencyy has been evvaluated usinng a numberr of factors. These factorrs are
indicatedd in Figure 55-4: Brentwwood Law EEnforcement Profile. Thhese profiless can be used to
compare between ageencies, althouugh exact commparisons are not alwayys possible duue to the difffering
conditionns and policiing methods used. Refer also to Chapter 3: Law Enforcemment Overvieww for
comparisson tables.
Servvice Demandd
Figure 5-33: Violent andd Property CCrimes (2007--2009)
An increase in
populatioon does not
necessariily indicatte an
increase in level of ddemand,
such as crimes and service
calls. In fact, during the last
three yyears, the annual
number of crimes aand the
number oof crimes per capita
have had a downwardd trend.
As showwn in Figurre 5-3,
while thee number off violent
crimes has reemained
relativelyy static over this
time period, the nummber of
property crimes has
declined by almost 288 percent. Based on the number of pproperty and violent crimmes between 2007
and 20099, the City hhad approximmately 15 reeported crimmes per 1,0000 residents, while provviders
countywiide averagedd 21 crimes per 1,000 reesidents. Thhe City averaaged 38,0000 service callls per
year in 20007, 2008 annd 2009, whiich is 732 serrvice calls peer 1,000 residdents. By comparison, seervice
providerss countywidde averaged 1,500 serviice calls perr 1,000 residents durinng the same time
period.
The CCity reported that it has particularlly high demmand during the annual CornFest inn July.
There is aan influx of aan up to an aadditional 500,000 peoplee each day off the three dday festival, wwhich
more than doubles thhe populationn that the Deppartment serrves regularlly.
Servvice Adequaccy
Adequacy of law enforcement services caan be evaluaated based onn a number of elements. For
the purpooses of this rreport, servicces provided by Brentwoood PD are asssessed according to respponse
times, cleearance ratess (the portionn of crimes solved) and staffing ratioss.
774
City of 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.11 Response times are dependent on the agency’s staffing level and size of
the jurisdiction served. Brentwood PD on average responds to Priority 1 incidents within four
minutes and 40 seconds, while law enforcement providers countywide averaged five minutes and
44 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 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 14 percent for property crimes (burglary, motor vehicle theft, and thefts of greater than
$400) during the same period. By comparison, providers countywide on average cleared 38.3
percent of violent crimes and 10.6 percent of property crimes, meaning Brentwood PD 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 0.7 sworn staff per 1,000 residents in Danville and Lafayette to 2.0 in Kensington CSD.
Brentwood PD is slightly above the countywide average of 1.2 sworn staff per 1,000 residents, with
a sworn staff to resident ratio of 1.3.
11 Walker and Katz, 2002.
12 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. 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.
75
Law Enforcement MSR
Figure 5-4: Brentwood Law Enforcement Overview
Brentwood Law Enforcement Profile
Service Configuration Service Demand
Patrol Brentwood Population (2009) 51,908
Number of Beats 4 Population (2010) 51,481
Dispatch Antioch Total Service Calls (2009) 38,000
Search and Rescue Sheriff Calls per 1,000 population 732
Investigations Brentwood Crime Activity
Traffic Enforcement Brentwood Arrests (2009) 1,541
SWAT Brentwood Violent Crimes (2009) 124
Temporary Holding Brentwood Property Crimes (2009) 631
Long-term Holding Sheriff Traffic Accidents 534
Bomb Squad Walnut Creek PD Violent Crime Rate per 100,0001 715
Canine (K-9) Services Brentwood Property Crime Rate per 100,0001 3,647
Staff Training Brentwood
Animal Control County
Service Adequacy Resources
Avg. Priority One Response Time 4:40 Total Staff (2010) 82
Response Time Base Year 2009 Sworn Staff 62
Clearance Rate of Violent Crimes2 47% Support Staff 20
Clearance Rate of Property Crimes2 14% Volunteers 15
Per Capita Cost (General Fund) $ 311 Sworn Staff per 1,000 population 1.2
Service Challenges
Brentwood PD has had to keep pace with rapid growth and improve services to adequately provide urban
service levels to the signficant increase in demand.
Facilities
Station Location Condition Built
Main Station 9100 Brentwood Blvd Excellent 2005
Brentwood, CA
Substation Sand Creek Road Excellent 2010
Brentwood, CA
Current Facility-Sharing and Regional Collaboration
Brentwood PD is a member of the East Bay Regional Communication System which is intended to promote
interoperability. The Department does not share facilities with any other agencies.
Opportunities for Facility-Sharing and Regional Collaboration
The Department indicated that a regional SWAT team may be a potential for collaboration and reduced costs
among the various providers, as Brentwood PD maintains its own SWAT team that is used infrequently.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
76
City of Clayton
6. City of Clayton
The City of Clayton 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
central portion of the County. For general information on the City and related determinations refer
to this MSR.
Basic information on the Clayton Police Department is contained in
the Central Contra Costa County Sub-regional MSR adopted by the
Commission in September 2009. (www.contracostalafco.org)
Agency Overview
Background
The City of Clayton is a general law city, which was incorporated in 1964. Its boundary area is
approximately 4.2 square miles. The City’s SOI encompasses two adjacent unincorporated areas,
one in the southwest and one in the southeast. (Refer to Map 6-1.)
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,
as the department head for the Police Department (PD), 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 through community involved
programs, education about the Department’s activities through a monthly article in the 'Clayton
Pioneer' newspaper written by the Police Chief, and encouraging officers to engage and get to know
local residents and business owners by becoming involved in local events and fundraisers.
Activities in the City include: Volunteers in Police Services (VIPS), Neighborhood Watch, 'Do the
Right Thing' Community Character Initiative, the Neighborhood Traffic Management Program
(NTMP), the Community Emergency Response Team (CERT), Vacation House Watch, the National
Night Out program, a home alarm response program (Ordinance 276), and the Special Olympics
Law Enforcement Torch Run. The Department, with the guidance of the Chief, strives for a close
relationship with the residents of the area and utilizes the community to bolster their staffing in
order to provide a level of service acceptable to the community.
If a constituent has a complaint regarding the Department or its employees, complaint forms
are available at the police station. The Department does not document informal complaints but
formal complaints are investigated through Internal Affairs. For the Clayton PD, in 2007 there were
two complaints in which one was exonerated and one was not sustained; in 2008 there were two
complaints in which one was not sustained and one was sustained; and in 2009 there were two
complaints in which one was unfounded and one was sustained.
77
Law Enforcement MSR
Clayton 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
Per the City’s FY 2010-11 budget, the Department has 14.0 authorized full time equivalent
(FTE) positions of which 11.0 are sworn positions and 3.0 are support positions (two full-time and
two part-time). 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 eight volunteers through the VIPS program and two reserve officers.
The Department is divided into two divisions: Administration & Support Services and
Operations. The Administration & Support Services Division includes records, evidence, statistics,
VIPs, CERT, subpoenas, and the community service officer functions. The primary responsibility of
the Operations Division is patrolling, but other responsibilities include recruiting, training, liaison
to the District Attorney, and fleet management.
The Chief holds regular meetings with his command staff and non-sworn staff internally to
discuss issues and potential efficiency improvements as well as attends meetings with other
department heads, the City Manager and with the City Council.
The mission of the Clayton PD is to provide competent, effective public safety services to all
persons, with the highest regard for human dignity through professional, ethical law enforcement
practices. The Clayton PD will carry out its responsibilities with integrity, and in a manner which
enhances the quality of life in Clayton.
Sworn officers are evaluated annually. New staff are evaluated during an 18-month probation
period. The Department informally tracks the activities of all employees and adjusts workloads
accordingly. The Department has a low volume of calls, which enables it to provide a large police
presence in the community. The Department’s performance is reported annually during the City's
budget process. The City does not perform any benchmarking studies to compare its services to
other comparable law enforcement providers or evaluate the performance of the Department as a
whole.
In order to improve efficiencies, the Chief is constantly working to streamline with staff to
evaluate workloads and eliminate duplication of efforts. As part of this process, the Chief has
regular staff meetings with both the Sergeants and civilian staff to discuss issues or possible
improvements where necessary. This is a rather informal process, due to the Department's
relatively small workforce. Examples of recent efforts to improve efficiency include streamlining of
evidence and property room procedures which made additional room for future storage, and an
improved method of recording and documenting towed vehicles.
Planning documents that guide Clayton PD’s services are the City’s 2001-2021 General Plan,
which was updated in 2007, a five-year strategic plan specific to the Police Department, and Police
Department mission, vision and values statements.
There is a single performance standard in the General Plan related to police services:
Capital facilities should be provided at a level sufficient to maintain a five minute response
time for 90 percent of all emergency calls for police assistance.
Clayton PD currently meets the General Plan response time standard. Additionally, the PD also
meets the informal force level standard of 1.0 sworn officers per 1,000 residents set by the PD. The
General Plan also has the goal to provide police protection to the public through effective law
enforcement and the incorporation of crime prevention features into new development.
78
City of Clayton
The PD’s strategic plan outlines goals for the Police Department and the anticipated date of
accomplishment of the goals. The existing strategic plan’s planning horizon is through 2011, and
will need to be updated this year. Of the 29 goals outlined in the strategic plan, most have been
implemented or are 'in progress.'
City financial planning documents include an annual budget and a Capital Improvement Plan
(CIP). Clayton has an extensive CIP for the period FY 11 to FY 15 consisting of 28 projects, of which
no projects are related to law enforcement services.
Population and Growth Projections
According to the 2010 Census, the population of the City is 10,897. Over the last 10 years, the
population of Clayton has grown by 1.2 percent.
The City projects that limited growth will occur in the foreseeable future, describing the City as
predominately “built out.” The City anticipates very low rates of growth in the future and continues
to implement the General Plan and development impact fee programs as the primary methods to
accommodate any growth.
Based on ABAG projections, the City is anticipated to grow by four 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 11,500 in 2035.
Recent development within in the City has included the addition of Grove Park and Flora Square
which is a retail and office building. Potential developments include another retail building and an
application by Clayton Community Church to build a downtown campus.
Clayton PD has had to address little to no growth over the last 10 years. The Department
indicates that no significant growth is expected in the future, and that the PD should be able to
continue to provide an adequate urban level of services for the foreseeable future with current
staffing levels.
The Department is invited to participate to evaluate and comment on proposed developments.
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 (Growth
Management Element). Growth strategies for the City are also outlined in two specific plans—the
Marsh Creek Road Specific Plan, which establishes goals and policies for the development of
approximately 475 acres southeast of the City and the Town Center Specific Plan, which establishes
goals and policies for development in the Town Center area.
There are no unincorporated islands within the city limits.
79
Map 6-1
City of Clayton Boundary and Sphere of Influence
PassRd
er
CCoonnccoorrdd Kirk
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R
Concord
Blvd
Kirker
Pass
C
layton
R
d
C
layton
R
d
CCllaayyttoonn
MarshCreekRd
SOI approved
CityBoundary by LAFCO
action on 10/14/09
CitySphereofInfluence
Other City Boundaries
UrbanLimit Line
®
ThismapwascreatedbytheContraCostaCountyCommunityDevelopment
Mapcreated10/16/2009 DepartmentwithdatafromtheContraCostaCountyGISProgram.Some
byContraCostaCountyCommunityDevelopment,GISGroup basedata,primarilyCityLimits,isderivedfromtheCAStateBoardofEqualization's Miles
651PineStreet, 3 4 7 th :5 F 9 l : o 4 o 8 r .4 N 55 o N rth 1 W 22 in :0 g 6 , : M 35 a . r 3 ti 8 n 4 e W z,CA94553-0095 its ta a x cc ra u t r e ac a y r . e T as h . is W m h a il p e c o o b n lig ta a in te s d c t o o p u y s ri e gh th te is d d in a f t o a rm th a e ti C o o n u a n n ty d a m s a s y um no e t s b n e o a r l e te s r p e o d n . s I ib t i m lit a y y fo b r e 0 0.25 0.5
reproducedinitscurrentstateifthesourceiscited.Usersofthismapagreetoreadand
accepttheCountyofContraCostadisclaimerofliabilityforgeographicinformation.
City of Clayton
Finaancing
The DDepartment reported thhat financingg levels are generally aadequate to provide services.
Althoughh the down tturn in the economy haas limited thhe Departmeent’s ability to purchasee new
equipmennt and vehiclles, law enforcement has been made a high prioriity by the Citty Council annd has
been willing to accoommodate nneeds througgh the annuual budget, ccurrently deedicating oveer 50
percent oof the budgett to the PD. However, thhe Departmennt has impleemented pay reductions oof 4.2
percent oover the last ttwo years to maintain staaffing levels.
The DDepartment’ss services are financed primarily throough the Genneral Fund aand augmented by
Developmment Impact Fees and RRestricted Grants Fund wwhich accounnt for 8.3 peercent of total PD
funds (appproximatelyy $150,000 inn FY 10-11). Foremost ammong the Reestricted Graants is the Cittizens
Option foor Public Saafety (COPS) program, oof which thee City receivves the minimum amouunt of
$100,0000 per year duue to its smaall populationn size. The CCOPS grant ppays a portioon of salaries and
benefits ffor a sworn ppolice officerr position annd two civiliaan police servvices aides. Revenues reelated
to law ennforcement are collectedd from policce service chharges and aare considerred General Fund
monies. The budget and audited financial statements do not inddicate how mmuch revennue is
attributabble to these ppolice service charges.
FFigure 6-1: Cllayton PD Expenditures (FYs 08, 09, & 10)
Expennditures oveer the last thhree
fiscal yeears have been relatively
stable, annd in fact, inccreased in FYY 09-
10, as shoown in Figurre 6-1. In FYY 09-
10, the primary exxpenses for the
Departmeent were personnel (67
percent), and supplies and servvices
(20 perceent).
The CCity does nott have any loong-
term debt related to llaw enforcemment
services.
Clayton takes part in the
Municipaal Pooling Authority of
Northernn California, a joint powwers
agreemennt between 220 cities, for risk
managemment coveragge.
Law EEnforcemeent
Natuure and Exteent
The PPolice Department is reesponsible ffor providingg law enforrcement servvices in the City,
includingg patrol, invvestigations,, traffic enfforcement, police trainning, crime prevention,, and
communiity awarenesss. The Deppartment is responsible for commuunity policingg and emerggency
prepareddness. Claytoon PD is also involved in tthe East Bay Regional Commmunicationn System.
The DDepartment rrelies on thee Sheriff’s Offfice for searcch and rescuue services, long-term hoolding
facilities, County Animmal Control for animal seervices, the CCity of Walnnut Creek andd UC Berkeleey PD
for bombb squad servvices, and thhe City of CConcord for police dispaatch services and temporary
881
Law Enforcement MSR
holding services. The City relies on both the Sheriff’s Office and Concord PD for the Special
Weapons and Tactics (SWAT) Team and canine units.
The Sheriff’s Department also provides safety services within the City by responding to a City of
Clayton “critical incident” in which a request has been made for “mutual aid.”
Clayton PD does not provide contract services to other agencies.
Patrol
Clayton PD patrols 4.2 square miles which is covered in a single beat. Patrol is divided into two
parts, Team A and Team B, each with one Sergeant, one Corporal and two Officers. The City
maintains one sergeant per shift to manage risk. The officers work schedule is designed to have the
maximum number of officers on duty when there is the likelihood of increased calls for service.
Typically, each team works four 10-hour shifts per week with Thursday as the overlap day.
Staffing
Figure 6-2: Clayton PD Staffing Levels
Over the last three FYs (09, Position FY 08-09 FY 09-10 FY 10-11
10, 11), unlike other city police Chief 1 1 1
departments, Clayton has been Police Officer 10 10 10
able to maintain stable staffing
Community Service Officer 1 1 1
levels with little variation from
Police Service Aides 2 2 2
year to year. In fact, the City
Office Support Staff 1 1 1
added one reserve officer in FY
10-11. (Refer to figure 6-2.) TOTAL 15 15 15
Clayton PD presently employs 1.0 sworn officers per 1,000 population, and has been able to
maintain its sworn force. In order to maintain a high level of service at a lower cost, the City makes
use of unsworn police service aides.
Location
Clayton PD provides services throughout the City’s territory, and in addition, provides services
outside its boundaries through mutual aid agreements. These joint mutual aid agreements include:
1) the Countywide Mutual Aid Program, which is a countywide agreement to provide law
enforcement services to any other provider when needed; and 2) Contra Costa County Narcotics
Enforcement Taskforce. The Department does not have any automatic aid agreements with other
providers.
The Department indicated that it responds to calls in the unincorporated areas when the Sheriff
is unable to respond in a timely manner; in particular, the area just east of the City’s boundaries
that has some commercial and residential uses.
The Department did not identify any areas within the City’s boundaries that are particularly
challenging to serve.
Infrastructure
Clayton PD operates out of City Hall. The City Hall was renovated in 1999 and is considered to
be in good condition. In addition, the PD parking area with night time security was also expanded
for the force as part of the capital improvement program in 2004. There are no plans for additional
facilities.
82
City of Clayton
Vehiccles and equiipment are kkept within aa secure areaa nearby in thhe Public Woorks maintennance
yard. Thhe City has aa mileage limmit per vehiicle of 110,0000 miles beefore it needds to be repllaced.
According to the Cityy’s budget, thhe Police Deepartment rooutinely repllaces 1-2 pattrol vehicles each
year to mmaintain safe and dependaable public safety transportation.
Servicce Demand and Serrvice Adeqquacy
Each law enforcemment agencyy has been evvaluated usinng a numberr of factors. These factorrs are
indicatedd in Figure 6--4: Clayton Law Enforceement Profilee. These proofiles can be used to commpare
between agencies, aalthough exaact comparissons are noot always possible due to the difffering
conditionns and policiing methods used. Refer also to Chapter 3: Law Enforcemment Overvieww for
comparisson tables.
Servvice Demandd
Figure 6-33: Violent andd Property CCrimes (2007--2009)
An increase in
populatioon does not
necessariily indicatee an
increase in levell of
demand, such as crrimes
and service calls. Inn fact,
during the last three
years, the annual number
of crimess and the number
of crimess per capita have
fluctuatedd, ultimmately
decliningg in 2009. As
shown inn Figure 6-3, wwhile
the nummber of viiolent
crimes has remaained
relativelyy static overr this
time periiod, the numbber of property crimes inncreased by 555 percent inn 2008, but tthen decreased by
19 percennt in 2009. BBased on thee number of property and violent crimes betweenn 2007 and 22009,
the City hhad approximmately 10.4 rreported crimes per 1,0000 residentss, while provviders countyywide
averagedd 21 crimes pper 1,000 reesidents. The City averaaged 7,450 seervice calls pper year in 22007,
2008 andd 2009, whicch is 686 serrvice calls peer 1,000 resiidents. By ccomparison, service provviders
countywiide averagedd 1,500 servicce calls per 11,000 residennts during thhe same time period.
The CCity reports tthat it has a hhigher demand during thhe annual Artt and Wine FFestival, as wwell as
Oktoberffest. There iss an influx off approximattely 10,000 to 20,000 peoople each daay for both evvents,
which moore than douubles the poppulation that the Departmment serves rregularly. Thhere is also aa peak
in demannd during thee Fourth of July Parade, wwhen approxximately 5,000 additionaal people vissit the
City.
The DDepartment also reported that it hass an unusually high nummber of servicce calls relatted to
rattle snaakes.
883
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 44 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 clearance rate of 63 percent for violent crimes (homicide, forcible
rape, robbery and aggravated assault) committed in 2007, 2008 and 2009, and a clearance rate of
7.4 percent for property crimes (burglary, motor vehicle theft, and thefts of greater than $400)
during the same 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 both violent crimes within its jurisdiction than the average of other providers in the
County, but a smaller portion of property crimes. 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 0.7 sworn staff per 1,000 residents in Danville and Lafayette to 2.0 in Kensington CSD.
Clayton PD is below the countywide average of 1.2 sworn staff per 1,000 residents, with a sworn
staff to resident ratio of 1.0.
13 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. 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.
84
City of Clayton
Figure 6-4: Clayton Law Enforcement Overview
Clayton Law Enforcement Profile
Service Configuration Service Demand
Patrol Clayton Population (2009) 10,864
Number of Beats 1 Population (2010) 10,897
Dispatch Concord Total Service Calls (2009) 7,450
Search and Rescue Sheriff Calls per 1,000 population 686
Investigations Clayton Crime Activity
Traffic Enforcement Clayton Arrests (2009) 1,541
SWAT County/Concord Violent Crimes (2009) 7
Temporary Holding Concord Property Crimes (2009) 722
Long-term Holding Sheriff Traffic Accidents 534
Bomb Squad Walnut Creek PD Violent Crime Rate per 100,0001 715
Canine (K-9) Services County/Concord Property Crime Rate per 100,0001 3,647
Staff Training Clayton
Animal Control County
Service Adequacy Resources
Avg. Priority One Response Time 1:30 Total Staff (2010) 15
Response Time Base Year 2009 Sworn Staff 12
Clearance Rate of Violent Crimes2 63% Support Staff 3
Clearance Rate of Property Crimes2 7% Volunteers 9
Per Capita Cost (General Fund) $ 168 Sworn Staff per 1,000 population 1.0
Service Challenges
Clayton PD must accommodate service levels with limited to no growth within the City limits. The loss of
potential grants may also force the PD to either search for additional funding sources or eliminate positions.
Facilities
Station Location Condition Built
Main Station 6000 Heritage Trail Good 1999
Clayton, CA 94517
Current Facility-Sharing and Regional Collaboration
The Department already utilizes shared facilities with the City of Concord for dispatch. The Department also
collaborates with the Contra Costa County Sheriff Department for SWAT, K-9, and Animal Services.
Opportunities for Facility-Sharing and Regional Collaboration
The Department did not indicate any other opportunities for shared facilities.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
85
Law Enforcement MSR
7. City of Concord
The City of Concord 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
central portion of the County. For general information on the City and related determinations refer
to this MSR.
Basic information on Concordlaw enforcement servicesis 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 City of Concord is a general law city, which was incorporated in 1905. Its boundary area is
approximately 30.5 square miles. The City’s SOI encompasses an additional 15.6 square miles,
including a large area to the northwest that extends all the way to the County line in the Carquinez
Strait, and two small areas adjacent to the city limits in the southeast. (Refer to Map 7-1.)
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
Guy A. Swanger, who was appointed in January of 2011. The Chief of Police, as the department head
for the Police Department (PD), 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. The City has two district commanders who
are responsible for the delivery of all law enforcement services within each district. They also act
as liaisons with community groups and neighborhood groups in a community policing model. In
addition, they attend community meetings and bring other resources, personnel, and volunteers to
such meetings as appropriate. There are currently two districts, one for the Northern Command
and one for the Southern Command. Concord PD maintains contact with the Chamber of
Commerce, the Kiwanis club of Concord and the Todos Santos Downtown Business Association.
Police Department community activities designed to enhance public outreach and crime prevention
include the Police Athletic League (PAL), the Downtown Footbeat Program, Community-Oriented
Policing, the Domestic Violence Team, a K-9 Program, school resource officers, the Youth Protection
Curfew, and the Citizen's Police Academy. The Volunteers in Police Services (VIPS) program also
allows residents to be proactive in their community and aid in providing a higher level of protection
by acting as an extension of the PD. Youth interaction is through PAL and the School Resources
Officers program allows the Department to converse and educate youths either as police officers or
as role models. The Department's district command system provides periodic updates, as well as
86
City of Concord
current events of PD activities, to the residents of Concord, and the Department makes report
submittal and viewing, crime statistics, cold cases, and other information available on its website
If a constituent has a complaint regarding the Department or its employees, the complaint filing
procedure as well as contact information for the Complaint Division is available on the department
website. The Chief of Police reviews all formal citizen complaints and assigns them to the
Professional Standards Unit for investigation as necessary. The formal complaint process is
codified as Procedure 31 within the adopted department policies and procedures. The Department
has had 32 citizen complaints alleging misconduct or questioning police enforcement actions or
operations between 2008 and 2010; however, none of the complaints have resulted in referrals to
other departments or agencies.
Concord 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
Per the City’s FY 10-11 budget, the Police Department has 200 authorized full time equivalent
(FTE) positions, 152 of which are sworn personnel and 48 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, which presently has 98 volunteers, and 15 reserve officers.
The Police Department is divided into five divisions: Field Operations, Professional Standards,
Internal Operations, Administration and Investigations, and Volunteer Emergency Services. The
Field Operations Division command staff consists of a captain who oversees 1) the Field Operations
Division, 2) district command functions, 3) Operation Commands, which consists of many areas
ranging from detention to S.W.A.T., and 4) Special Operations that consists of communications and
traffic. The Professional Standards Division is operated and overseen by a single sergeant. Internal
Operations consists of an administration services manager that supervises day-to-day office
activities, such as purchasing and building maintenance. The Administration and Investigations
Division is headed by a captain that manages records, training, community action and awareness,
crime scene investigations, and detectives. The Volunteer and Emergency Services Division is
managed by the volunteer services coordinator. The head of each division reports to the Chief of
Police. 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 Internal Division of the Police Department was reorganized in mid-2009, due in large part
to financial challenges facing the City. Prior to the reorganization, Administration and
Investigations were two separate and distinct divisions, each commanded by a captain. The
reorganization merged Investigations with Administration, creating one division, which eliminated
one captain position, as well as several non-sworn and contract positions. Bureaus within the
Administration and Investigation Division were similarly re-named, with responsibility for some
categories of crimes transferred to other bureaus. This realignment was primarily driven by a
reduction in the non-sworn workforce and fiscal savings from leaving sworn positions unfilled,
with the responsibilities and workload shifted to other personnel. The Department relies heavily
on its volunteers through the Volunteers in Police Services (VIPS) program, with 83 volunteers
currently on the roster.
87
Law Enforcement MSR
Goals and objectives are defined during the City’s budget process and in the Department’s
mission statement. The guiding goals of the Department are outlined in the Department’s mission
statement as “providing the highest quality police services in order to enhance community, safety,
protect life and property, and reduce crime and fear of crime. To do this, "[the Department pledges]
to develop a partnership with the community, lead a community commitment to resolve problems,
and improve the safety and quality of life in [Concord].”
Sworn officers and support staff are evaluated annually by their immediate supervisor. New
staff are evaluated more frequently. 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 during the
budget process. The Department gathers report statistics weekly for review by squad division
leaders. The Department reported that this information is monitored on an ongoing basis to ensure
that the Department is meeting or exceeding division goals.
The City conducts a biennial survey of a random sampling of residents to determine satisfaction
with city services, including the Police Department. This survey is used to determine how well each
department in the City is doing, identify where improvements can be made, and develop a
prioritized list of identified improvements. In the most recent survey conducted in 2008, residents
identified gang violence, traffic enforcement and prevention, and drug enforcement as the top
priorities in need of improvement. The survey rated the PD as follows: 90 percent rated the PD as
very efficient or somewhat efficient; 91 percent indicated that the PD is effective in curbing local
crime; and 95.6 percent rated the PD as widely supported by the community.
In order to improve efficiencies, the Department has shifted some report writing from sworn
staff to non-sworn staff to allow sworn officers to focus more time on high-priority tasks. The
Department instituted a means of reporting less serious crimes online and extracting reports
online, thereby freeing up staff time from taking these reports. Additionally, the Department is
currently upgrading various technologies that allow for access to PD tools and programs from
virtually anywhere in either the headquarters or out in the field for staff. The Department is
presently working on a reporting tool that will allow shift managers and supervisors to enhance
deployment based on developing trends in crime according to geography and time.
Planning documents that guide Concord PD’s services are the City’s 2035 General Plan, which
was updated in 2007, a departmental procedural manual, and a departmental mission statement.
General Plan Service Standards for police services are as follows:
200 square feet of station per 1,000 residents, and
Provide the Highest Standard of Police Protection Services.
The Police facility is approximately 65,000 square feet which far exceeds the General Plan
Standard, which would require approximately 25,000 square feet. The Department indicated that it
is striving to provide the highest standard of services, which is borne out by the biennial survey.
Financial planning documents include an annual budget and a capital improvement plan. The
City’s capital improvement program is a multi-year planning program for the construction of new
facilities and infrastructure, and for the expansion, rehabilitation, or replacement of City-owned
assets. The plan covers a ten-year period and is updated by staff and approved by the City Council
each year. Concord has various projects listed within the CIP, of these projects one is related to law
enforcement activities—the removal of a radio tower and telephone system in FY 12-13 for
approximately $41,500. The equipment was installed by the City at a leased facility for use as a
disaster control center, and the facility is no longer in use by the Department.
88
City of Concord
Population and Growth Projections
According to the 2010 Census, the population of the City is 122,067. Over the last 10 years, the
population of Concord has grown by 0.2 percent.
The City projects in the General Plan that job generation and employment growth will lead to
residential growth by 2030. The City anticipates increased rates of growth in the future compared
to the past ten years and is implementing policies and programs within the General Plan to
accommodate this projected change and related impacts through implementation of developer
impact fees and dedications.
Based on ABAG projections, the City is anticipated to grow by 18 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 153,000 in 2035. However, based on the recent growth numbers,
ABAG's projections, as well as the General Plan projections of 142,210, may be high considering
that little to no growth occurred over the past 10 years.
At this time, there are no new proposed significant development projects within the City. No
projected population-based growth is expected until the Concord Naval Weapons Station (CNWS)
Re-Use project moves forward, which will mean significant growth to the City. The project is
currently in Phase IV planning, which includes refinement of the project area plans, economic
studies, and environmental documents. Final plan approval is scheduled for March 2012.
The Police Department is involved in the planning stages once a development reaches City
review from both a safety perspective and a Crime Prevention through Environmental Design
(CPTED) perspective. Traffic engineering also involves the PD in traffic impact review.
Concord PD has had to address impacts associated with little to no growth over the last 10
years. The Department indicated there are no plans to expand the PD at this time but did note that
potential growth on the Concord Weapons Naval Station property would necessitate the need for
staffing enhancements to provide adequate levels of service. In addition, the Department reported
that planning for necessary future staffing levels is an ongoing evaluation which has not been
documented in the City’s planning documents or at public hearings with the City Council, so
indicating the need for any potential staffing increases would be premature at this time.
There is one unincorporated island within the City, the 189-acre Ayres Ranch located north of
Concord Boulevard and east of Bailey Road. This area is primarily developed with suburban
density residential dwelling along with some residential ranchettes. Because the area exceeds 150-
acres, it is not eligible for the streamlined annexation procedures under Government Code Section
56375.3. Any future annexation of this area will require consent by a majority of the property
owners along with a majority of the registered voters within the island. City County and LAFCO
staff are currently working on possible annexation of a portion of this island.
89
Map 7-1
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City of Conncord
Finaancing
Concoord PD repported that due to decclining reveenues duringg the recennt recessionn, the
Departmeent has beenn forced to mmake cutbackks. Since FY 008-09, the Deepartment’s operating buudget
has been reduced by 10 percent. Budget reduuctions havee resulted in reorganizatiion of the intternal
divisions of the Deppartment too eliminate positions, sstaffing reduuctions, clossure of all three
substatioons, extensionn of usable life of vehiclees from 80,000 to 150,0000 miles, andd reduction oof the
fleet size. In the FY 10-11 budgeet, the Department made 16 cutbackks or revenuue enhancemments,
includingg, but not limmited to, a redduction in coommunity service desk hours, a reduction to partt-time
staffing hhours in the jail, eliminattion of crimee analysis opperations, esttablishment of a franchisse fee
for tow operators inn the City, and eliminaation of a KK-9 officer. Law enforrcement proogram
reductionns totaled $11.05 million in FY 10-11. General Funnd revenues will likely reebound due tto the
recent appproval of a ttemporary 0.5 percent Transaction aand Use Tax wwithin the Ciity. This is aa one-
half cent sales tax for five years (MMeasure Q) aapproved at the Novembber 2010 Genneral Electionn by a
vote of 544.3% ‘Yes’ annd 45.7% ‘Noo.’
The DDepartment’ss operations are financedd entirely through the Geeneral Fund.. In FY 10-11 law
enforcemment related revenues consisted of thhe Police Offficers Standaards and Traaining (POSTT) and
the Citizeens Option ffor Public Saafety (COPS)) State proggrams ($172,000), as weell as chargees for
services, such as vehicle abatemeent ($1,805,1170). The Poolice Departtment was allso able to secure
$240,0000 in Federal Recovery AAct grant funnds, which iis being useed to fund twwo part-time CSI
positionss and equipmment purchases. All of these revenues are considerred General FFund moniess.
Fiigure 7-1: Cooncord PD Expenditures (FYs 08, 09, & 10)
In FY 10-11,, departmment
expendituures consistted of salarries
and beneefits (83 perrcent), supplies
and servvices (six percent), aand
internal services (11 percent).
Expenditures over the last thhree
fiscal yeaars increased in FY 08--09,
similar tto past years, and thhen
declined in FY 09--10, when the
Departmeent made ssignificant ccost
reductionn and revenuue enhancemment
changes. Expenditurres for the llast
three FYss are shown iin Figure 7-11.
The CCity has lonng-term debtt in
the form of lease revvenue bonds for
the policee facilities. TThe bonds wwere
issued in1993 by thee City of Conncord Joint Poowers Finanncing Authoriity. Proceedds from the BBonds
were useed to finance a portion off the Police FFacilities Connstruction Prroject leasedd by the City from
the Redevvelopment AAgency. The Redevelopmment Agency hhas agreed too reimburse the City for these
lease payyments. On June 24, 20010 the Cityy entered intto a Refunding lease aggreement and the
proceeds were used tto retire $3,520,000 of the bonds. Thee bonds will be retired inn August 20113.
The CCity is a memmber of the California Statte Associatioon of Countiees-Excess Inssurance Authhority
(CSAC-EIA), a joint ppowers authority. CSAC-EIA providees coverage against various types of loss
risks undder the terms of a joint ppowers agreeement with the City andd several othher governmmental
agencies.
991
Law Enforcement MSR
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 Department is responsible for community policing, has a Special Weapons and Tactics (SWAT)
Team, and conducts emergency preparedness training.
Similar to many other cities, the Department relies on the Sheriff’s Office for search and rescue
services, dispatch and long-term holding facilities, and County Animal Control for animal services.
The City relies on UC Berkeley for bomb squad services.
The Sheriff’s Department also provides safety services within the City by responding to a City of
Concord “critical incident” in which a request has been made for “mutual aid.”
California State University East Bay (CSUEB) has a Memorandum of Understanding which states
that the City of Concord will provide law enforcement assistance to the University’s Concord
Campus. This has been affected by staff cuts at CSUEB but has not led to a change in enforcement
responsibilities as the University is the primary law enforcement agency for the campus.
Concord PD currently provides dispatching services as well as temporary holding facilities for
the City of Clayton.
Concord PD currently provides assistance to Bay Area Rapid Transit (BART) PD in the form of
taking reports, and for back-up for BART Officers.
Patrol
Concord PD patrols 30.5 square miles which are divided into six beats. Beats are further
broken down into sub-beats as territorial assignments for beat officers. These sub-beats allow
officers to take an active role and become familiar with situations, residents and businesses within
the sub-beat area. Patrol shifts Monday through Thursday are broken down into four 10-hour
shifts, while weekend shifts are broken down into three 11-hour increments. Concord utilizes a
single officer for each beat vehicle.
Staffing
Figure 7-2: Concord PD Staffing Levels
Over the last three FYs (09, 10, Position FY 08-09 FY 09-10 FY 10-11
11), the Concord PD has Chief 1 1 1
experienced significant reductions Captain 3 2 2
in its staffing levels. (Refer to
Lieutenant 9 8 8
Figure 7-2.) The decline in staffing
Detective 34 34 33
levels was largely between FYs 08
Police Officer 92 91 89
and 09, when the Department lost
17 staff positions—five office K-9 Officer 8 7 7
support staff, three dispatchers, Community Services Officer 16 11 11
five community service officers, Traffic Control Officer 12 12 12
one K-9 officer, one police officer,
Dispatcher 16 13 13
one lieutenant and one captain. Of
Records Specialist 11 11 10
the 17 positions, seven were
Office Support Staff 18 13 14
sworn staff positions.
TOTAL 220 203 200
92
City of Concord
The Department reported that staffing levels are determined through analysis of various
performance dimensions, including, but not necessarily limited to, arrests, community growth and
development, community oriented government, time consumed on calls for service, number and
type of crimes, clearance rates, response times, traffic flow, collisions and enforcement.
A study was conducted by Department in 2008 that analyzed staffing levels compared to
performance and quantifiable measurements, such as those described above. At that time, staffing
was adjusted to 159 sworn officers according to findings from the report. The following year in FY
08-09, the number of sworn staff was reduced to 152, as a result of budget cuts. Concord PD
presently employs 1.2 sworn officers per 1,000 residents.
Location
Concord PD provides services throughout the City’s territory, and in addition, provides services
outside its boundaries through mutual aid agreements. The City's agreements for aid include 1) the
California Law Enforcement Mutual Aid Plan; 2) the County Wide Mutual Aid Program, which is a
countywide agreement to provide law enforcement services to any other provider when needed; 3)
agreement for use of UC Berkeley’s bomb team, 4) a Memorandum of Understanding with California
State University East Bay for assistance, 5) assistance to the Bay Area Rapid Transit (BART) Police
Department, 6) assistance to the California Highway Patrol for crimes which occur on State
highways, and 7) assistance to the Contra Costa County Probation Department. Aid is also provided
to the Contra Costa County Sheriff's Department in the unincorporated island within Concord.
Additionally, the Department participates in regional collaboration efforts through the Silicon
Valley Internet Crimes Against Children Task Force. The City does not have any automatic
agreements with other providers.
Concord PD provides back-up police services to the Clayton PD. These services are provided
without contract or agreement, and are reciprocated by Clayton PD in areas of Concord. Clayton PD
requests assistance when their staffing levels do not allow them to effectively respond to a call for
service.
The Department did not identify any areas within the City’s boundaries that are particularly
challenging to serve.
Infrastructure
Concord PD operates out of a police headquarters, which was constructed in 1996, located at
1350 Galindo Street and three field offices. Presently, due to budget cuts and staffing reductions,
the three field offices (North, Valley and South) have been closed, and the PD is operating only out
of the headquarters. The Department reported that the facilities were in good working condition
and there were limited improvements that needed to be made at the current time. The PD reported
a need to identify a location for a secondary Emergency Operation Center, as well as to install
external security cameras to the headquarters, adjacent to the Concord BART station, in order to
improve security of the headquarters.
There are no plans for significant capital improvements to any of the police facilities before
2020, based on the City’s capital improvement plan.
The Department has a fleet of 125 vehicles. These vehicles include marked black and white
patrol vehicles, motorcycles used for traffic enforcement, scooters for parking enforcement, a SWAT
van, under cover vehicles and un-marked detective vehicles. 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. Similar to other cities, budget cutbacks have led to a change in city
policy regarding the retirement of service vehicles. Prior to the fiscal crisis, cars were rotated out of
93
Law Enfoorcement MSRR
service affter approximmately 80,0000 miles, butt the useful liife of the vehhicles has noow been exteended
to 150,0000 miles.
Servicce Demand and Serrvice Adeqquacy
Each law enforcemment agencyy has been evvaluated usinng a numberr of factors. These factorrs are
indicatedd in Figure 7--4: Concord Law Enforceement Profille. These proofiles can bee used to commpare
between agencies, aalthough exaact comparissons are noot always possible due to the difffering
conditionns and policiing methods used. Refer also to Chapter 3: Law Enforcemment Overvieww for
comparisson tables.
Servvice Demandd
Figure 7-33: Violent andd Property CCrimes (2007--2009)
Durinng the last thhree years, thhe
annual number of crrimes and thhe
number oof crimes peer capita havve
had a dowwnward trennd in Concordd.
As shownn in Figure 7-3, both thhe
number of violent crimes annd
property crimes havee declined bby
19 perccent and 18 percennt,
respectivvely. Bassed on thhe
number of propertyy and violennt
crimes bbetween 20007 and 20099,
the City had approoximately 225
reported crimes per 1,0000
residentss, while providerrs
countywiide averaged 21 crimees
per 1,0000 residents. The City avveraged 122,300 servicee calls per year in 2007,, 2008 and 22009,
which is 1,001 service calls per 1,000 residdents. By coomparison, sservice proviiders countyywide
averagedd 1,500 servicce calls per 11,000 residennts during the same time period.
The CCity did not report any ssignificant fluuctuations inn service levvels during specific perioods of
the year.
Servvice Adequaccy
Adequacy of law enforcement services caan be evaluaated based onn a number of elements. For
the purpooses of this report, serviices provided by Concorrd PD are asssessed accorrding to respponse
times, cleearance ratess (the portionn of crimes solved) and staffing ratioss.
Althoough police rresponse timmes for serioous crimes inn progress aare an imporrtant indicattor of
service aadequacy, theere are not clear standaards as to wwhat that response time should be. PPolice
response times were traditionallyy used to measure effecctiveness. Hoowever, moree recent research
indicates that responnse time does not have a significannt effect on crime-solvinng, because most
crimes arre “cold” criimes and victims do noot tend to caall police immmediately aafter the crimme is
committeed. The moddern approach to responnse time—ddifferential rresponse—iss to ensure quick
response to serious ccrimes (Priorrity 1) in proogress, whenn there are oopportunities to save a vvictim
and/or too apprehendd the criminaal, and to infoorm lower-ppriority calleers (Priority 2 through 6)) that
response time may bee lengthy. Exxperiments indicate that differential response leaads to both ciitizen
994
City of Concord
and officer satisfaction. Response times are dependent on the agency’s staffing level and size of the
jurisdiction served. Concord PD on average responds to Priority 1 incidents within 12 minutes and
15 seconds, while law enforcement providers countywide averaged five minutes and 44 seconds for
Priority 1 incidents. These longer response times are attributed to the geographic extent of the
jurisdiction (30.5 square miles), high population (largest city in the county), and officers
responding to a prior high priority call.
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 7-4, Concord PD had a clearance rate of 39 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. By comparison, providers countywide on average cleared 38.3 percent of
violent crimes and 10.6 percent of property crimes, meaning Concord PD solves a slightly higher
amount of both violent and property crimes within its jurisdiction than the average of other
providers in the County. 14
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 0.7 sworn staff per 1,000 residents in Danville and Lafayette to 2.0 in Kensington CSD.
Concord PD maintains the same staffing ratio as the countywide average of 1.2 sworn staff per
1,000 residents.
14 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. 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.
95
Law Enforcement MSR
Figure 7-4: Concord Law Enforcement Overview
Concord Law Enforcement Profile
Service Configuration Service Demand
Patrol Concord Population (2009) 122,224
Number of Beats 6 Population (2010) 122,067
Dispatch Concord Total Service Calls (2009) 122,300
Search and Rescue Sheriff Calls per 1,000 population 1,001
Investigations Concord Crime Activity
Traffic Enforcement Concord Arrests (2009) 2,358
SWAT Concord Violent Crimes (2009) 397
Temporary Holding Concord Property Crimes (2009) 2,376
Long-term Holding Sheriff Traffic Accidents 534
Bomb Squad UC Berkley Violent Crime Rate per 100,0001 1,055
Canine (K-9) Services Concord Property Crime Rate per 100,0001 6,242
Staff Training Concord
Animal Control County
Service Adequacy Resources
Avg. Priority One Response Time 12:15 Total Staff (2010) 285
Response Time Base Year 2009 Sworn Staff 152
Clearance Rate of Violent Crimes2 39% Support Staff 48
Clearance Rate of Property Crimes2 16% Volunteers 98
Per Capita Cost (General Fund) $ 341 Sworn Staff per 1,000 population 1.2
Service Challenges
Concord PD must accommodate a service level with declining budgets due to current reductions city-wide.
In addition, the City is projected to grow significantly (18% over the next 25 years) compared to the past 10
years which saw 0.2% growth.
Facilities
Station Location Condition Built
Main Station 1350 Galindo Street Good 1999
Field Office 2166 Solano Way Good NP
(North) (Currently Closed)
Field Office Dianda Plaza 4467 Clayton Road Good NP
(Valley) (Currently Closed)
Field Office 1500 Monument Boulevard #F-16A Good NP
(South) (Currently Closed)
Current Facility-Sharing and Regional Collaboration
Concord currently provides dispatching services as well as temporary holding facilities for the City of
Clayton. The Police Department hosted an Emergency Preparedness Fair with 2,000 attendees.
Opportunities for Facility-Sharing and Regional Collaboration
No other potential facility sharing opportunities were identified by CPD.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
96
Town of Danville
8. Town of Danville
The Town of Danville provides a range of municipal services, including law enforcement
services within the town limits through a staffing contract with the County Sheriff’s Office. 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 DanvillePolice 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 Danville is a general law city, which was incorporated in 1982. Its boundary area
is approximately 18.1 square miles. The Town’s SOI encompasses 19.6 square miles of
incorporated territory, including an area on the east in the Camino Tassajara area, and on the west,
to the east of Bollinger Canyon Road. (Refer to Map 8-1).
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 Town operates under a Town Council-Manager form of government. The Chief of Police is a
contract employee through a contract with the County Sheriff’s Office (SO). The Chief, as the
department head for the Police Department (PD), reports to the Town Manager. The Town 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 Town include:
Neighborhood Watch, Senior Crime Prevention, Disaster Preparation Training, 9-1-1 for
Kids/Stranger Danger, Citizen Police Academy, “If I Were A Thief” Program, Bicycle Rodeos,
Boy/Girl Scout Tours, Vacation House Checks, and the Crime Prevention Through Environmental
Design program. The Department makes annual reports, crime statistics and other information
available on its website.
If a constituent has a complaint regarding the Department or its employees, the Department
uses a formal complaint procedure developed by the Sheriff’s Office, and may receive complaints
from the town website, e-mail, phone, or directly at the front desk of the Department. Complaints
are reviewed by the Chief, and if necessary, Internal Affairs at the Contra Costa Sheriff's Office. The
Department does not have an ombudsman as the Chief is responsible for disposition of all
complaints via his chain of command. There was one formal complaint in 2007 which was
unfounded, none in 2008, and four in 2009 of which two were unfounded, one was exonerated, and
one was sustained.
97
Law Enforcement MSR
Danville 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
There are 35.75 FTEs authorized in the FY 10-11 Budget, of which 31 sworn positions are
financed through the contract with the SO, and 4.75 FTEs are Town employees. 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. Town employees include the Community
Service Coordinator and two Community Service Officers, the Emergency Preparedness Manager,
and the School Program Coordinator. The Department uses procedures and policies approved by
the Sheriff and modified by the Chief to meet the needs/requirements of the Town. The
Department is supplemented by eight reserve officers and a volunteer program (VIPs) that
presently has approximately 19 volunteers. VIPs assist the PD by directing traffic at community
events, assisting at National Night Out, and assisting during an emergency or disaster.
The Department is divided into seven divisions: Police Management and Community Services,
Patrol, Traffic, Investigations, Animal Control, School Resources Program, and Disaster
Preparedness. Police Management and Community Services oversees and supports all PD
programs, ensures that services are provided to coincide with current and future community needs,
and represents the Department in the community. The Patrol Division provides patrol services
throughout the Town, while also responding to emergencies and calls for service. The Traffic
Division addresses traffic issues, provides for orderly and safe traffic flow, investigates traffic
accidents and develops strategies to reduce traffic accidents, traffic related deaths and injuries, and
property damage while also providing parking enforcement and vehicle abatement services. The
Investigations Division consists of a Sergeant and two Detectives whose responsibilities include
solving felony cases that are reported in the Town. The head 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 Town Manager and with the Town Council. The Police Chief is
responsible for department oversight and administration of all police services, and works with
Town Management to address community needs.
The guiding goals of the Danville PD Management, as outlined in the Department’s Performance
Objectives, are: 1) provide community-oriented police services that are responsive to the needs of
Town citizens and businesses, 2) recruit and maintain a highly skilled and trained team of sworn
police personnel, 3) effectively manage police resources and personnel to meet all community,
regional, state and federal requirements, 4) monitor all department goals and objectives to ensure
that they are met, 5) coordinate community outreach efforts including participation in
neighborhood and business crime prevention meetings, citizen’s academy and special events, 6)
maintain a well-trained and dedicated team of police reserves and volunteers, and 7) organize and
manage the Town’s Disaster Preparedness Program.
Sworn officers are evaluated three times per year. 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 the annual budget
and annual report processes, and the Chief provides semi-annual reports to the Town Council. The
Department also adopts annual performance objectives to evaluate the progress of the department
in meeting the previously mentioned guiding goals. The adopted performance indicators provide a
benchmark of whether or not the Department is meeting the service expectations of the public and
the Town Council. In FY 09-10, of the 100 adopted performance indicators, 96 were met by the
Department, and four performance indicator were reported as being in progress in the
Department’s Performance Objective Report. Those objectives that were not yet completed were:
98
Town of Danville
coordination of the purchase of two patrol vehicles and one detective vehicle; the purchase of a new
sergeant’s command vehicle; cross training of police staff on investigation procedures and
operations; and development of a replacement program for the existing mobile digital
communicators and incorporation of wireless laptops and security camera systems.
Planning documents that guide Danville PD’s services are the Town’s 2010 General Plan, which
was updated in May 2009, the annually adopted objectives and performance indicators, and a
mission statement.
General Plan Service Standards for police are as follows:
Maintain a police response time of no more than five minutes for 90 percent of all
emergency (priority one) calls, exclusive of dispatch time and excluding 911 hang-ups. For
all other police calls, maintain a maximum 20 minute response time for 90 percent of all
such calls, again exclusive of dispatch time, and
Participate with other police departments to develop effective cooperative response
agreements.
Danville PD currently meets the Priority 1 response time standard with an average priority one
response time of five minutes and 36 seconds which includes dispatch time. The Department meets
the maximum 20 minute response time for Priority 2 and 3 calls. With regard to effective
cooperative response agreements, the Department does have agreements for mutual aid with other
local agencies for emergency assistance.
Financial planning documents include the annual budget and a capital improvement plan. The
Town’s capital improvement program is a multi-year planning program for the construction of new
facilities and infrastructure, and for the expansion, rehabilitation, or replacement of Town-owned
assets. The plan covers a five-year period and is updated annually. Danville has a CIP for the period
FY 10-11 – FY 14-15 consisting of 80 projects, of which no projects are related to police services.
Population and Growth Projections
According to the 2010 Census, the population of the Town is 42,039. Over the last 10 years, the
population of Danville has grown by 0.8 percent.
The Town is currently updating its General Plan, which was last updated in 1999. The 1999
General Plan projected population growth over the last decade similar to that experienced by the
Town. The Town is approaching build-out of the area within its boundaries, which is the primary
cause behind this low rate of growth. The new General Plan will likely contain new policies which
will address future growth and their impact on police services.
Based on ABAG projections, the Town is anticipated to grow by 16 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 51,000 in 2035.
Danville PD has had to address little growth over the last 10 years. When there is a proposed
development, the PD is asked to provide comments for any impact on law enforcement services.
There is approximately 1.5 square miles of unincorporated territory outside of the Town’s
boundaries, but within its SOI. The area to the east of the Town is designated for residential uses
and has approved plans for 700 residential units. The area to the west of the Town includes
approximately 335 acres of territory and is outside of the countywide voter-approved ULL. Most of
this area is designated as open space or part of existing agricultural preserves. (Refer to Map 8-1.)
There are no unincorporated islands within the Town Limits.
99
Map 8-1
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Town of Daanville
Finaancing
The DDepartment’ss services arre financed pprimarily thrrough the Geeneral Fund (98 percentt) and
augmenteed by two Sppecial Revennue Funds – tthe Donationns and Contrributions Funnd and the PPublic
Safety Fuund. The Doonations andd Contributioons Fund traacks contribuutions for seelected programs,
such as tthe police K-9 program aand the school resource program. RRevenues for law enforceement
activities from this fund were $3445,009 in FY 09-10. The PPublic Safetyy Fund trackss special reveenues
for policee programs, including SLLESF funds pprovided by the State ($$3,518 FY 099-10), Abanddoned
Vehicle AAbatement ($$23,460 FY 09-10) and Asset Seizurre ($10,968 in FY 09-100). Revenuees are
collected from policee fees and ffines ($250,9992 in FY 009-10) and aare considerred General Fund
monies.
FFigure 8-1: Daanville PD Expenditures (FYs 08, 09, & 10)
Expennditures ovver the lastt three
fiscal yeaars have incrreased slighttly each
year, as shown in FFigure 8-1. Police
Services increased aa net of $143,289
(2%) in FY 09-10, reflecting higher
expensess for contraact costs wiith the
Contra Costa CCounty Sheriff's
Departmeent.
In FYY 09-10, thee expenses ffor the
Departmeent were paatrol (65 peercent),
managemment and coommunity services
(15 perrcent), invvestigations (nine
percent), the school resource prrogram
(six percent), animmal control (three
percent), and disasster preparredness
(two perccent).
The TTown does noot have any llong-term deebt related too law enforceement activitties.
The TTown participates in thee Municipal Pooling Autthority (MPAA), a joint poowers agreeement
between nineteen ciities, which provides innsurance cooverage for liability, autto, propertyy and
workers' compensatioon claims.
Law EEnforcemeent
Natuure and Exteent
The PPolice Deparrtment is reesponsible foor providingg law enforcement services in the TTown,
includingg crime preveention, parking and trafffic control, innvestigationss, communitty awarenesss, and
investigations. The DDepartment iis responsiblle for commuunity policing, but does nnot have a Sppecial
Weaponss and Tacticss (SWAT) Teeam. The Toown providees law enforccement funcctions with ssworn
personneel from the SSheriff’s Officce by contraact. Danvillee controls thhe specifics oof delivery oof law
enforcemment servicess in the Townn. Danville PPD, as a resullt of the conttract with the County Sheeriff’s
Office, utiilizes many oof the Countyy’s available sservices suchh as dispatchh, SWAT and forensics.
Similaar to other ccity police deepartments, the Departmment also rellies on the SSheriff’s Officce for
search annd rescue serrvices and loong-term holding facilitiees. Danville ccontracts with County Annimal
Control ffor animal control servicces. The Toown relies oon the Walnuut Creek PDD for bomb ssquad
services.
1101
Law Enforcement MSR
The Sheriff’s 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 PD Staffing Levels
Over the last three FYs (09, 10, Position FY 08-09 FY 09-10 FY 10-11
11), unlike most other city police
Chief 1 1 1
departments, Danville has been
Captain 0 0 0
able to maintain stable staffing
Lietenant 1 1 1
levels with little variation from
year to year. (Refer to Figure 8-2.) Detective 1 1 1
Police Officer 17 18 18
Currently, the Department
determines staffing levels based K-9 Officer 1 1 1
upon meeting the annually Community Services Officer 3 3 3
adopted performance objectives. Traffic Control Officer 3 3 3
Danville PD presently employs 0.7
Records Specialist 0 0 0
sworn officers per capita, and has
Office Support Staff 0 0 0
been able to maintain its sworn
TOTAL 27 28 28
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
Town of Daanville
Infraastructure
Danville PD operaates out of TTown Hall loccated at 5100 La Gonda WWay. The Toown offices, wwhich
were built in 1973, iss also home to many of tthe other Town departmments. The PPolice Departtment
facility onn the lower level was addded in 2003. The PD is pllanning to uttilize a workk station for ppatrol
officers aat the San Raamon Fire Protection Disttrict station located at 15500 Bollingeer Canyon Rooad at
Crow Cannyon Road.
Theree are no planns for significcant capital immprovementts to the poliice headquarrters before 22015,
based on the Town’s capital improvement plaan. The Depaartment indiccated that thhe police facility is
close to ccapacity; connsequently, aany significant increase iin staff will require addiitional spacee. The
Departmeent would iddeally like to add exercisee facilities. RRecords are nnot stored att this buildingg, but
at the Conntra Costa Coounty Sherifff's Departmeent.
The DDepartment did not repoort any needds related too vehicles orr equipment.. All vehiclees are
owned and maintainned by the TTown. Vehiicles and eqquipment arre kept withhin a secure area
adjacent to Town Halll. The Deparrtment curreently has 14 patrol vehicles and two motorcycles. The
PD has bbeen extending the curreent fleet to ssix years andd 120,000 mmiles, but is rreceiving sixx new
patrol vehicles and onne new sergeant car. Thhese new vehhicles are plaanned for fouur to five yeaars of
service annd 100,000 mmiles.
Servicce Demand and Serrvice Adeqquacy
Each law enforcemment agencyy has been evvaluated usinng a numberr of factors. These factorrs are
indicatedd in Figure 8--4: Danville Law Enforceement Profile. These proofiles can bee used to commpare
between agencies, aalthough exaact comparissons are noot always possible due to the difffering
conditionns and policiing methods used. Refer also to Chapter 3: Law Enforcemment Overvieww for
comparisson tables.
Servvice Demandd
Figure 8-33: Violent andd Property CCrimes (2007--2009)
The fact that little
growth has occurreed has
allowed the police
departmeent to operaate and
patrol thhe Town effiiciently
over time. In fact, during
the last three yearrs, the
annual nnumber of crimes
and the number of crimes
per cappita have had a
downwarrd trend. As shown
in Figure8-3, the nummber of
violent crrimes has remmained
relativelyy static whiile and
the nummber of prroperty
crimes haas declined. Based
on the nnumber of property and violent crimes betwween 2007 and 2009,, the Townn had
approximmately 7.4 reeported crimes per 1,0000 residents, wwhile providders countywwide averageed 21
crimes peer 1,000 residents. The Town averaaged 35,000 service callss per year inn 2007, 20088 and
1103
Law Enforcement MSR
2009, which is 854 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.
Special events with particularly high demand include the Fourth of July Parade and Lighting of
the Old Oak Tree. Special events utilize sworn officers and are supplemented by volunteers and
reserve officers in order to provide an adequate level of service while keeping costs low.
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 Danville 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. Danville PD on average responds to Priority 1 incidents within five minutes
and 36 seconds, while law enforcement providers countywide averaged five minutes and 44
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 8-4, Danville PD had a clearance rate of 42 percent for violent crimes (homicide, forcible
rape, robbery and aggravated assault) committed in 2007, 2008 and 2009, and a clearance rate of
six percent for property crimes (burglary, motor vehicle theft, and thefts of greater than $400)
during the same period. By comparison, providers countywide on average cleared 38.3 percent of
violent crimes and 10.6 percent of property crimes, meaning Danville PD solves a significantly
larger portion of both violent and a slightly lower percentage of property crimes within its
jurisdiction than the average of other providers in the County.15
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 0.7 sworn staff per 1,000 residents in Danville and Lafayette to 2.0 in Kensington CSD.
Danville PD is significantly lower than the countywide average of 1.2 sworn staff per 1,000
residents with 0.7 sworn staff per 1,000 residents.
15 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. 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.
104
Town of Danville
Figure 8-4: Danville Law Enforcement Overview
Danville Law Enforcement Profile
Service Configuration Service Demand
Patrol Danville Population (2009) 40,965
Number of Beats 3 Population (2010) 42,039
Dispatch CCCSO Total Service Calls (2009) 35,000
Search and Rescue CCCSO Calls per 1,000 population 854
Investigations Danville Crime Activity
Traffic Enforcement Danville Arrests (2009) 893
SWAT CCCSO Violent Crimes (2009) 19
Temporary Holding Danville Property Crimes (2009) 273
Long-term Holding CCCSO Traffic Accidents 208
Bomb Squad CCCSO Violent Crime Rate per 100,0001 46
Canine (K-9) Services Danville Property Crime Rate per 100,0001 666
Staff Training Danville
Animal Control CCCSO
Service Adequacy Resources
Avg. Priority One Response Time 5:36 Total Staff (2010) 28
Response Time Base Year 2009 Sworn Staff 28
Clearance Rate of Violent Crimes2 42% Support Staff 0
Clearance Rate of Property Crimes2 6% Volunteers 19
Per Capita Cost (General Fund) $ 182 Sworn Staff per 1,000 population 0.8
Service Challenges
With the current economy, the challenge is to maintain existing high levels of service without cutting back on
personnel, and to stay ahead of the criminal mind.
Facilities
Station Location Condition Built
Main Station 510 La Gonda Way Good 2003
Current Facility-Sharing and Regional Collaboration
Danville currently contracts with Contra Costa County for police services. The Department utilizes many
services from the Sheriff's Department but maintains their own headquarters. Currently, no other facilities
are shared with other agencies
Opportunities for Facility-Sharing and Regional Collaboration
No other facilities or efforts were identified by the Danville Police Department for possible collaboration.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
105
Law Enforcement MSR
9. City of El Cerrito
The City of El Cerrito 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 El Cerrito Police Department is contained
in the West Contra Costa County Sub-regional MSR adopted by the
Commission on November 18, 2009. (www.contracostalafco.org)
Agency Overview
Background
The City of El Cerrito is a general law city, which was incorporated in 1917. Its boundary area is
approximately 3.9 square miles. The City’s SOI encompasses two adjacent unincorporated areas,
one in the north which is a portion of the North Richmond Heights community, and the Kensington
community in the southeast. (Refer to Map 9-1.)
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,
as the department head for the Police Department (PD), reports to the City Manager. The City has a
Crime Prevention Committee composed of 15 residents that are appointed by the City Council. The
Crime Prevention Committee supports the Police Department through certain public outreach
events, including National Night Out, Neighborhood Watch, and Block Party registrations. The
Committee meets monthly and also makes recommendations to the City Council on issues related to
crime in the City.
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: Neighborhood
Watch, Police Explorers, the Countywide Community Warning System, Community Emergency
Response Team (C.E.R.T.) training, as well as participation in other annual events such as the Bike
the Bridges for the Special Olympics. The Department's Police Explorer program is an opportunity
for young people interested in law enforcement to learn all aspects of police work. Community
involvement is a priority set forth within the Department's mission statement. Additionally, the
Department takes part in the Countywide Community Warning System, which allows for
notification to the public through various methods. It provides a source of information for the
public from the Department. The Department makes crime statistics and other information
available on its website.
106
City of El Cerrito
If a constituent has a complaint regarding the Department or its employees, complaint forms
are available through the Department. Internal Affairs (AI) investigates all complaints that are filed,
with oversight by the Chief. After the complaints are investigated, they are followed up with a final
review and a letter to the complaining party by the Chief of Police. For the El Cerrito PD, in 2009
there were 15 complaints in which one was unfounded, three were exonerated, eight were
sustained, and three were not sustained.
El Cerrito 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
Per the City’s FY 10-11 budget, the PD has 56.55 authorized full time equivalent (FTE) positions
of which 43 are sworn officers and 13.55 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 five reserve officers and
volunteers working through the Crime Prevention Committee.
The Department is divided into three divisions: Administrative/Support Services, Field
Operations and Investigations/Special Operations. The Administrative Division is responsible for
command and supervision of personnel, constructing and maintaining budgets, processing of
records, recruiting new personnel, training of department personnel and policy making. The
Administrative Division is commanded by a lieutenant and a records supervisor that manage office
operations, including public assistance at the front counter, and to process, distribute, and maintain
public record information to meet state and local mandates. Members of the Field Operations
Division are responsible for response to calls for services and documenting incidents brought to the
attention of the Department. The Field Operations Division command staff consists of a lieutenant
who supervises a patrol sergeant and a traffic sergeant, which manage the Division's operations
that are responsible for responding to all calls for service, emergency calls, authoring police reports,
making arrests, enforcing laws, and writing reports. The Investigations Division is responsible for
responding to and examining major crime scenes, conducting criminal investigations, and providing
liaison services to community groups. The Investigations Division consists of a lieutenant and
detective sergeant that oversee the Division’s activities, including managing cases in each area of
specialty crimes against persons, property crimes, and financial crimes. Each division manager is
supervised by a captain who reports directly to the Chief of the Department.
The Chief holds regular meetings with her command staff internally, and attends meetings with
other department heads, the City Manager and with the City Council.
The Department outlines annual goals in the budget. The primary objectives identified for FY
11-12 are:
Recruit, hire, background, and train five police officers to replace five sworn personnel who
have announced retirements in FY 11-12;
Recruit and hire two cadets;
Design and proctor contemporary sergeant and corporal examinations to fill vacant
positions;
Expand the Explorer program and implement mentor officers as instructors;
Upgrade police report storage from paper to digital imaging;
Computerize Property and Evidence tracking system; and
Create the framework for a functional volunteer program.
107
Law Enforcement MSR
Sworn officers are evaluated every six months. 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. Additionally, the Department reports several statistics on demand and
workload in the annual budget. The Department’s performance is evaluated yearly in its annual
report and during the budget process.
In order to improve efficiencies, the Department employs a “flexible” management approach
which allows various levels of staff to suggest changes to operations to increase productivity.
Planning documents that guide El Cerrito PD’s services are the City’s 1999 General Plan, and a
departmental mission statement. The Department stated that it is in the process of compiling a
strategic plan. The Police Department recently revised its mission statement to clearly define their
daily duty to the community with a renewed sense of purpose. Their Mission is “We are committed
to safety, service and enhancing the public trust through professionalism and leadership.”
General Plan policies and standards for police services are as follows:
Prior to approval of new development, the Police Department shall be requested to review
all applications to determine the ability of the Department to provide protection services.
The ability to provide protection to existing development shall not be reduced below
acceptable levels as a consequence of new development. Recommendations such as the
need for additional equipment, facilities, and adequate access may be incorporated as
conditions of approval;
Development design should address public safety issues – encourage use of technology to
support defensible design, encourage neighborhood social interaction, maintain eyes on the
street, and support a clean and orderly public appearance;
Maintain the current service level of 1.26 officers per 1,000 daytime population, provided
adequate financial resources are available;
Maintain and monitor calls for service data and publish annual statistics;
Maintain bicycle patrols on the BART bicycle paths and continue to cooperate with BART
police regarding the policing of the BART linear park and BART parking lots;
Maintain community outreach programs to promote public education on crime prevention
and to discourage and deter crimes in the community;
Ensure safe streets for all vehicles, bicycles, and pedestrians through adequate traffic
enforcement; and
Maintain a level of personnel and capital equipment for first-unit response in three minutes
to requests for emergency service.
The Department does not meet the response time goal of three minutes, with an average
Priority 1 response time of four minutes and 45 seconds in 2010. El Cerrito PD presently meets and
exceeds the force level standard of 1.26 with a current sworn staff ratio of 1.8 per 1,000 population.
The Department appears to meet all other established standards regarding programming and
development review.
Financial planning documents include the budget and capital improvement plan. El Cerrito uses
a one-year budget process with a mid-year review and adjustment. This is coupled with a 10-year
Plan updated annually to ensure that the City has a long-term perspective on the potential impact of
financial decisions and the requirements of the financial responsibility policy can continue to be
met. The City’s capital improvement program (CIP) is a multi-year planning program for the
108
City of El Cerrito
construction of new facilities and infrastructure, and for the expansion, rehabilitation, or
replacement of City-owned assets. The CIP section of the annual budget details the adopted capital
projects for FY 11-12 through FY 19-20. It includes a description of those capital projects
previously funded and other capital improvement needs that are presented as a non-prioritized
listing of those proposed projects or programs for which no funding has been currently identified.
The CIP currently has 61 identified projects, including 28 active projects that are either in
construction or undergoing planning/design. Current year appropriations total $5.8 million. The
plan identified the need for a new public safety facility that will cost an estimated $27 million. The
project is unfunded and there is no established timeline for the new facility. The proposed facility is
described in more detail in the Infrastructure section of this chapter.
Population and Growth Projections
According to the 2010 Census, the population of the City is 23,549. Over the last 10 years, the
population of El Cerrito has grown by 1.6 percent.
The City reported that limited growth has occurred not only in the last 10 years but over the
past 50 years, due to limited land availability, demolition of some housing to make way for BART’s
development, and a declining average household size. The City anticipates reduced rates of growth
in the future and plans to adjust staffing levels accordingly.
Based on ABAG projections, the City is anticipated to grow by 11 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 26,200 in 2035.
While development efforts along San Pablo Avenue (the major commercial area and designated
Redevelopment Project area) have slowed considerably since the recession, some projects are
moving forward and there is still the anticipation of the return of activity as the economy improves.
The demand for property with access to regional transit, the Interstate 80 Corridor, and proximity
to San Francisco, still provides incentive for developers.
In order to accommodate any new growth, the Department participates in the development
process to ensure that possible impacts to staffing and other resources are addressed as part of
new construction. The General Plan policies require that new development be reviewed by the
Department in order to gain input as to how services could be affected. The Department stated that
in order to serve any future growth, additional facilities may be necessary, due to the fact there is
little to no space for growth in the current headquarters, which is also shared by the Fire
Department.
There are no unincorporated islands within the City.
El Cerrito’s SOI includes the unincorporated community of Kensington (1.1 square miles and a
2010 population of 5,077) and the southern portion of unincorporated East Richmond Heights.
These areas are largely built-out and are not likely candidates to annex to the City of El Cerrito
unless a majority of land owners along with a majority of registered voters agree to do so. (Refer to
Map 9-1.)
Refer to the Kensington Police Protection and Community Services District in Chapter 25 for
more details on the Kensington community.
An area along Vista Heights Road east of the Mira Vista Country Club is also within the El Cerrito
SOI. However this area is already within the City of Richmond, which makes including it in the El
Cerrito SOI problematic.
109
Map 9-1
City of El Cerrito Boundary and Sphere of Influence
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City Boundary
City SphereofInfluence
Other City Boundaries
Urban LimitLine By LAFCO action on 11/18/2009,
City of El Cerrito boundary and
County Boundary
SOI approved.
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City of El Ceerrito
Finaancing
The City’s finanncing level appears to be adequaate to contiinue providing existingg law
enforcemment service levels. Unliike many otther cities, EEl Cerrito has been able to maintainn pre-
recessionn property taax revenue leevels. In FY 10-11, El Ceerrito was one of two cities that recceived
increasess in assessed valuation (AAV) in Contraa Costa Counnty. El Cerritto’s AV increaased 1.09 peercent
while thee County overall decreaseed 2.99 perceent. Additionnally, in Novvember 2010, El Cerrito vvoters
approvedd Measure RR, a seven-yyear 0.5 cennt sales tax that will bee used to mmaintain services,
includingg police proggrams that wwere in jeopaardy withoutt these additiional funds. Collection bbegan
in April 22011, and FY 11-12 will bbe the first full year of recceipt of the taax.
The PPolice Deparrtment’s serrvices are finnanced primmarily (98 ppercent) throough the Geeneral
Fund. The remaininng two perceent of the DDepartment’ss funding (inn FY 09-10) comes fromm the
followingg four speciall revenue annd non-majorr governmenntal funds (ammount from these funds in FY
09-10 shoown in parenntheses):
AAsset Seizure - The Policee Departmennt acquires aassets in thee course of aarresting susspects
annd a portionn of these aassets becomme the propeerty of the CCity when aa guilty verddict is
awwarded. These funds arre determineed by State HHealth and SSafety Code tto be used bby the
Police Departtment to suppplant but noot supplemennt their budget. To assuure correct uusage,
fuunds have beeen broken out into a separate fund. (($0)
VVehicle Abateement - Thiss fund accouunts for monnies receivedd from the CCounty to suppport
programs thatt remove abaandoned vehhicles from Ciity streets. ($$4,887)
Grants Fund -- The grantss fund accounnts for all off the grant mmonies receiived from vaarious
reegional, Statee and Federaal agencies foor various opperational acttivities. ($1995,791)
Capital Improovements Funnd - This funnd is utilizedd to account ffor all capitaal activities wwithin
thhe City regaardless of fuunding sourcce. Within the fund, eaach project is accounteed for
seeparately on a life-to-date basis for innternal and eexternal repoorting purposses. ($0)
Thosee funds for which no fiinancing was allocated to police exxpenditures in FY 09-100, did
provide ffunding in FYY 08-09, and are anticipaated to provide funding in future yeaars. Departmmental
revenue ssources incluude Proposition 172 fundds, charges foor services, ssuch as fingerrprinting, peermits
and regisstrations, andd fines and fforfeitures. These revennue sources are considerred General Fund
monies.
Figgure 9-1: El CCerrito PD Expenditures (FYs 08, 09, & 10)
Expennditures oveer the last tthree
fiscal yeaars have steaadily increaseed, as
shown inn Figure 9-1. In FY 09-100, the
primary expenses forr the Departtment
were ooperations (60 perccent),
administrration and support serrvices
(27 perccent), and innvestigationss (13
percent).
The CCity had appproximately $$51.8
million inn long-term ddebt at the end of
FY 09-100, none of wwhich was reelated
to law enforcement seervices.
The City is a member off the
Municipaal Pooling Authorityy of
Northernn California.. The Authhority
1111
Law Enforcement MSR
provides coverage against loss risks under the terms of a joint-powers agreement with the City and
several other cities and governmental agencies.
Law Enforcement
Nature and Extent
The Police Department is responsible for providing law enforcement services in the City,
including crime prevention, parking and traffic enforcement, community policing, community
awareness, and investigations. The Department conducts staff training and has a K-9 unit. El
Cerrito PD is also involved in the East Bay Regional Communication System Authority, Vehicle Theft
Suppression Enforcement Team, and the Sexual Predator Apprehension Compliance Enforcement
Team. The PD cooperates with other police agencies and the California Department of Justice to
provide a Detective to the West Contra Costa County Narcotics Task Force, and is an active member
of the East Bay Public Safety Corridor Partnership to reduce gun violence.
The Department relies on the Sheriff’s Office for search and rescue services, long-term holding
facilities, crime lab, and the Special Weapons and Tactics (SWAT) Team, County Animal Control for
animal services, the City of Walnut Creek for bomb squad services, and the City of Richmond for
police dispatch services. El Cerrito PD also relies on a variety of agencies for police training
services for the Department as well.
The Sheriff’s Department also provides safety services within the City by responding to a City of
El Cerrito “critical incident” in which a request has been made for “mutual aid.”
The City provides three school resource officers, two at El Cerrito High School and one at
Portola Middle School. These positions are funded through an agreement with the West Contra
Costa Unified School District, which pays 90 percent of the program costs.
Patrol
El Cerrito PD patrols 3.9 square miles which are divided into four beats. The Field Operations
Division is comprised of four separate teams of officers of one Sergeant, one Corporal, and 4
officers. There are currently 24 officers that are assigned to operate a police vehicle or a police
bicycle. Patrol shifts are based on a team policing concept with distinct teams policing 24 hours per
day. The officers work 12 hour shifts and work Tuesday, Wednesday, Thursday and every other
Monday; or Friday, Saturday, Sunday and every other Monday. Shifts begin at six in the morning or
six in the evening
El Cerrito PD utilizes a bicycle patrol for those areas difficult to access by patrol vehicles. These
include El Cerrito Plaza shopping center, community parks, and the Ohlone Greenway along the
BART line. The program has been in effect since 1998 and is an important part of the PD’s crime
reduction efforts. The PD is certified to train law enforcement personnel from other agencies and
conducts annual training classes.
112
City of El Cerrito
Staffing
Figure 9-2: El Cerrito PD Staffing Levels
Over the last three FYs (09, 10, 11), Position FY 08-09 FY 09-10 FY 10-11
unlike many other city police Chief 1 1 1
departments, El Cerrito has been able Captain 0 0 1
to maintain stable staffing levels with
Commander 2 1 0
little variation from year to year.
Lieutenant 0 0 3
(Refer to Figure 9-2.)
Sergeant 7 7 5
Staffing levels are determined Corporal 5 5 5
through the annual budget process, Detective 4 4 4
with the PD providing justification Police Officer 20 20 20
statistics to the City Manager for K-9 Officer 0 0 1
review by the City Council. El Cerrito Traffic Control Officer 3 3 3
PD presently employs 1.8 sworn Community Service Officer 7 7 7
officers per capita, and has been able Records Specialist 7 6 6
to maintain its sworn force.
Office Support Staff 1 1 1
Parking Enforcement 1.2 1.2 1.2
Location TOTAL 58.2 56.2 58.2
El Cerrito PD provides services throughout the City’s territory, and in addition, provides
services outside its boundaries through mutual aid agreements. These joint mutual aid agreements
include: 1) the California Office of Emergency Services 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 City’s boundaries that are particularly
challenging to serve.
Infrastructure
El Cerrito PD operates out of a police headquarters at 10900 San Pablo Avenue. The police
headquarters was built in 1960, is shared by the Fire Department, and is considered to be in fair
condition.
The facility needs to be replaced due to seismic issues, lack of space, and outdated features.
Furthermore, the Public Safety Building has inadequate facilities for accommodating male and
female police officers and there is insufficient space for evidence, lockers, training, and working of
employees. The exterior design of the building does not allow for the safe conveying of suspects
from the parking lot into the building. A Sallyport or drive-in enclosed garage would be preferable
from a security standpoint.
The City's consultant has performed an evaluation of the existing Public Safety Building and
general needs of the Police and Fire Departments. Their recommendation is that a new facility
would be more cost effective than retrofitting the existing facility. This takes into account the
desired levels of service the two affected departments. Since the existing building is occupied by
both the Fire and Police Departments, serious consideration must be given to build two separate
buildings to keep with current laws pertaining to access and the distinct needs of each department.
113
Law Enforcement MSR
The City has included the new facility in its current CIP; however, sources of funding for the $27
million project have not been identified and a timeframe for design and construction has not been
set.
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 City utilizes all
vehicles for four years and up to 85,000 miles.
Service Demand and Service Adequacy
Each law enforcement agency has been evaluated using a number of factors. These factors are
indicated in Figure 9-4: El Cerrito 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 9-3: Violent and Property Crimes (2007-2009)
During the last three
700
years, the annual number of
crimes and the number of 600
crimes per capita have had a
500
downward trend. As shown
in Figure 9-3, while the 400
number of violent crimes has
300
varied slightly over this time
period, the number of
200
property crimes has declined
by almost 27 percent. Based 100
on the number of property
-
and violent crimes between
2007 2008 2009
2007 and 2009, the City had
Violent Crimes Property Crimes
approximately 30 reported
crimes per 1,000 residents, while providers countywide averaged 21 crimes per 1,000 residents.
The City averaged 10,500 service calls per year in 2007, 2008 and 2009, which is 446 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 City reported that at times there is increased demand during various special events, but did
not identify any specific events with particularly high demand on law enforcement resources.
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 El Cerrito 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
114
City of El Cerrito
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. El Cerrito PD on average responds to Priority 1 incidents within four minutes
and 45 seconds, while law enforcement providers countywide averaged five minutes and 44
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 9-4, El Cerrito PD had a clearance rate of 35 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. By comparison, providers countywide on average cleared 38 percent of
violent crimes and 15 percent of property crimes, meaning El Cerrito PD solves less violent and
more property crimes within its jurisdiction than the average of other providers in the County. 16
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 0.7 sworn staff per 1,000 residents in Danville and Lafayette to 2.0 in Kensington CSD.
El Cerrito PD is well above the countywide average of 1.2 sworn staff per 1,000 residents, with a
sworn staff to resident ratio of 1.8.
16 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. 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.
115
Law Enforcement MSR
Figure 9-4: El Cerrito Law Enforcement Overview
El Cerrito Law Enforcement Profile
Service Configuration Service Demand
Patrol El Cerrito Population (2009) 23,440
Number of Beats 4 Population (2010) 23,549
Dispatch Richmond Total Service Calls (2009) 10,500
Search and Rescue Sheriff Calls per 1,000 population 448
Investigations El Cerrito Crime Activity
Traffic Enforcement El Cerrito Arrests (2009) 1,541
SWAT Richmond/Sheriff Violent Crimes (2009) 159
Temporary Holding El Cerrito Property Crimes (2009) 468
Long-term Holding Sheriff Traffic Accidents 331
Bomb Squad Walnut Creek PD Violent Crime Rate per 100,0001 1,984
Canine (K-9) Services El Cerrito Property Crime Rate per 100,0001 7,295
Staff Training El Cerrito
Animal Control County
Service Adequacy Resources
Avg. Priority One Response Time 4:45 Total Staff (2010) 58
Response Time Base Year 2009 Sworn Staff 43
Clearance Rate of Violent Crimes2 35% Support Staff 15
Clearance Rate of Property Crimes2 15% Volunteers 0
Per Capita Cost (General Fund) $ 401 Sworn Staff per 1,000 population 1.6
Service Challenges
El Cerrito PD has had to deal with little to no growth within the city limits. Resources appear to be adequate
and service levels seem to be improving as crime rates have started to decline over the past three years.
Facilities
Station Location Condition Built
Main Station 9100 El Cerrito Blvd Fair 1960
El Cerrito, CA
Current Facility-Sharing and Regional Collaboration
El Cerrito PD is a member of the East Bay Regional Communication System which is intended to promote
interoperability. The Department shares the headquarters with the Fire Department. The Department
currently collaborates with Richmond PD for dispatch and SWAT currently while also utilizing Walnut Creek
PD's Bomb Squad. El Cerrito also utilizes the County's holding facilities.
Opportunities for Facility-Sharing and Regional Collaboration
No further facility sharing opportunities were identified by the Department.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
116
City of Hercules
10. City of Hercules
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 is contained in
the West Contra Costa County Sub-regional MSR adopted by the
Commission on November 18, 2009. (www.contracostalafco.org)
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 SOI encompasses one adjacent
unincorporated area to the north along State Highway 4. (Refer to Map 10-1.)
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,
as the department head for the Police Department (PD), 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 Nixle, 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 partial accountability and transparency by cooperating with LAFCO
requests for information, documents and interviews during the MSR process.
117
Law Enforcement MSR
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: Patrol and Administration. An acting
commander oversees the Patrol Division, which consists of four patrol teams that conduct
community policing, emergency services and special event coordination. Team A includes one
school resource officer. The Administration/Investigations Division is managed by an acting
commander and has three sections - Records/Services, Training and Investigations. The
Administration/Investigations Division responsibilities include records, emergency services,
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.
118
City of Hercules
Population and Growth Projections
According to the 2010 Census, the population of the City is 24,060. Over the last 10 years, the
population of Hercules has grown by 23.4 percent.
According to the City’s General Plan, it was anticipated that the population would reach 26,300
by 2010, or just above the current population. The City planned services and facilities accordingly
to accommodate a population that exceeds the existing population.
Based on ABAG projections, the City is anticipated to grow by 38 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 34,900 in 2035.
Hercules PD has had to address moderate growth over the last 10 years. The Department
indicated that the rate of growth has required the PD to provide enhanced urban levels of service
over a short period of time. The Department reported that the police facility is at capacity, and in
order to accommodate additional growth in the future, new or expanded facilities may be
warranted to allow for enhanced staffing to serve the public accordingly.
The Department participates in major project review, and is invited to evaluate and comment
on any proposed developments. 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.
The City is largely built out, with only a few areas remaining with significant development
potential. The Housing Element of the City’s General Plan identifies approximately 420 acres of
vacant land available for residential development, which represents all of the remaining significant
development sites in the City of Hercules. Of the vacant properties, very few parcels do not already
have specific plan approval. Most of the City’s vacant parcels are in some stage of planning and
development. Only three vacant parcels are not being planned for development.
The City has approximately 13 separate parcels, which total approximately 850 acres within the
SOI area that is outside of the City Limits. Hercules' SOI does not extend substantially beyond the
City limits, and it is not expected that the existing SOI area will be altered to include vacant lands
that would yield substantial additional developable land. Land use studies show that the areas
within the SOI are prime for commercial development with access to both State Highway 4 and
Interstate 80. As development takes place, future annexations to the City are anticipated. (Refer to
Map 10-1.)
There are no unincorporated islands within the city limits.
119
Map 10-1
City of Hercules Boundary and Sphere of Influence
By LAFCO action on 11/18/2009,
City Boundary
City of Hercules boundary and
County Boundary SOI approved.
City Sphere of Influence
Other City Boundaries
Urban Limit Line
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City of Herrcules
Finaancing
In FYY 09-10, the ooperating coosts of the Poolice Departmment were eentirely finannced by the City’s
General FFund. The CCommunity DDevelopmentt Fund financed $127,5000 of capital improvemennts to
the police wing of thhe City Hall in FY 09-100. This fundd accounts foor property developmennt tax
revenue collected perr residential unit to finannce acquisitiion, construcction and furrnishing of ppublic
buildingss, parks and recreational facilities. The City also maintains seeparate fundds for grants from
government and pubblic sources that are to be used to cover expennditures for providing ppublic
services aand improving public safety, as well as for revennue receivedd from the Sttate for its Ciitizen
Option foor Public Saafety (COPS)) Program tto fund poliice officer ppositions. TThese monies are
transferred into the GGeneral Fundd for use by tthe Departmment. In FY 09-10, these ffunds contribbuted
$458,6000 to the Geneeral Fund. Addditionally, tthe Departmment may receeive financinng from the PPolice
Facilities Developmeent Impact Fee (DIF) Fund; howeever, no fuunds were aallocated too law
enforcemment expenditures from thhis fund in FYY 09-10.
Figuure 10-1: Heercules PD Expenditures (FYs 08, 09, & 10)
Expennditures oveer the last thhree
fiscal yeaars have steaadily increassed,
as shownn in Figure 110-1. In FY 09-
10, the primary exppenses for the
Departmeent were $5,,609,712 (799%)
for Salariies and Beneefits, $1,132,4454
(16%) for Services annd Supplies, and
$332,6422 (5%) for Allocaated
Expensess. Patrol accounted for 666%
of the total PD costs, wwith
Administtration and Investigatiions
accountinng for 34%.
The City had approximattely
$14.9 miillion in lonng-term debtt at
the end oof FY 09-10,, none of whhich
was relaated to laww enforcemment
services.
The CCity engages in joint finanncing arranggements relaated to insuraance. The Citty is a membber of
the Muniicipal Poolingg Authority, a joint poweers authorityy, for liabilitty and workeers compenssation
insurancee.
Law EEnforcemeent
Natuure and Exteent
The PPolice Department is reesponsible ffor providingg law enforrcement servvices in the City,
includingg crime prevention, parking and trafffic control, ccommunity aawareness, seearch and reescue,
and invesstigations. TThe Departmment is responnsible for coommunity poolicing, has a Special Weaapons
and Tactiics (SWAT) TTeam, and coonducts commmunity outrreach and edducation. Heercules PD iss also
involved in the East BBay Regionall Communicaation Systemm and collaboorates with oother provideers in
the regioon for Incideent Command System (ICCS) training.. The Deparrtment hosted a regionaal ICS
training tto coordinatee county respponse to a larrge-scale crittical incidentt.
1121
Law Enforcement MSR
The Department relies on the Sheriff’s 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 Sheriff’s Office provides support when necessary.
The Sheriff’s 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, in the form
of motorcycle and bike patrol, augments patrol staffing from 6:00 AM to 4:00 PM.
Staffing
Figure 10-2: Hercules PD Staffing Levels
One sworn officer position was
Position FY 08-09 FY 09-10 FY 10-11
eliminated and one support position
Chief 1 1 1
added in FY 09-10. In the 10-11
Commander 2 2 2
Fiscal Year, the Hercules PD was
forced to re-structure the Sergeant 6 6 4
Department due to budget cuts. Detective 3 3 2
(Refer to Figure 10-2.) This Police Officer 20 20 13
included the loss of one detective,
Traffic Control Officer 1 1 0
two sergeants, five police officers,
Records Specialist 1 1 0
one traffic control officer, one
Office Support Staff 1 1 3
records specialist and five office
support staff. School Resource Officer 0 0 1
TOTAL 35 35 26
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 1.0
sworn officers per 1,000 population, down from 1.4 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.
122
City of Hercules
Infrastructure
Hercules PD operates out of their headquarters at City Hall located at 111 Civic Drive. The
police headquarters was built in 1987 and is considered to be in good condition by the Department.
The police wing of the building was remodeled in 2010. The Department reported that the facility
is presently at capacity, and any additional growth in demand would require expansion of the
current facility or a new facility.
There are no plans for significant capital improvements to the police facilities before 2015,
based on the City’s capital improvement plan. There are also no plans for additional facilities.
The Department did not report any needs related to vehicles or equipment. Vehicles and
equipment are kept within a secure area easily accessible to the Department.
Service Demand and Service Adequacy
Each law enforcement agency has been evaluated using a number of factors. These factors are
indicated in Figure 10-4: Hercules 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 10-3: Violent and Property Crimes (2007-2009)
An increase in
350
population does not
necessarily indicate an 300
increase in level of demand,
250
such as crimes and service
calls. In fact, during the last
200
three years, the annual
number of crimes and the 150
number of crimes per
100
capita have had a slight
downward trend. As shown 50
in Figure 10-3, while the
-
number of violent crimes
2007 2008 2009
increased in 2008 then
Violent Crimes Property Crimes
returned to previous levels
in 2007, the number of
property crimes has declined by almost 10 percent. Based on the number of property and violent
crimes between 2007 and 2009, the City had approximately 15 reported crimes per 1,000
residents, while providers countywide averaged 21 crimes per 1,000 residents. The City averaged
23,300 service calls per year in 2007, 2008 and 2009, which is 947 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.
123
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 Hercules 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. Hercules PD on average responds to Priority 1 incidents within five minutes,
while law enforcement providers countywide averaged five minutes and 44 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 10-4, Hercules PD had a clearance rate of 35 percent for violent crimes (homicide, forcible
rape, robbery and aggravated assault) committed in 2007, 2008 and 2009, and a clearance rate of
nine percent for property crimes (burglary, motor vehicle theft, and thefts of greater than $400)
during the same period. By comparison, providers countywide on average cleared 38.3 percent of
violent crimes and 10.6 percent of property crimes, meaning Hercules PD solves slightly less violent
crimes and property crimes within its jurisdiction than the average of other providers in the
County.17
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 0.7 sworn staff per 1,000 residents in Danville and Lafayette to 2.0 in Kensington CSD.
Hercules PD is slightly above the countywide average of 1.2 sworn staff per 1,000 residents, with a
sworn staff to resident ratio of 1.3.
17 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. 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.
124
City of Hercules
Figure 10-4: Hercules Law Enforcement Overview
Hercules Law Enforcement Profile
Service Configuration Service Demand
Patrol Hercules Population (2009) 24,623
Number of Beats 2 Population (2010) 24,060
Dispatch Pinole Total Service Calls (2009) 23,330
Search and Rescue Sheriff Calls per 1,000 population 947
Investigations Hercules Crime Activity
Traffic Enforcement Hercules Arrests (2009) 54
SWAT Hercules/Sheriff Violent Crimes (2009) 36
Temporary Holding Hercules Property Crimes (2009) 279
Long-term Holding Sheriff Traffic Accidents 110
Bomb Squad Walnut Creek Violent Crime Rate per 100,0001 715
Canine (K-9) Services Sheriff Property Crime Rate per 100,0001 3,672
Staff Training Hercules
Animal Control County
Service Adequacy Resources
Avg. Priority One Response Time 5:00 Total Staff (2010) 30
Response Time Base Year 2009 Sworn Staff 23
Clearance Rate of Violent Crimes2 35% Support Staff 3
Clearance Rate of Property Crimes2 9% Volunteers 4
Per Capita Cost (General Fund) $ 292 Sworn Staff per 1,000 population 1.0
Service Challenges
Hercules PD has had to deal with little to no growth within the city limits. Resources appear to be diminishing
and service levels are experiencing a decline over the past two years.
Facilities
Station Location Condition Built
Main Station 111 Civic Drive Good, remodeled in 2010 1987
Hercules, CA 94547
Current Facility-Sharing and Regional Collaboration
Hercules PD is a member of the East Bay Regional Communication System which is intended to promote
interoperability. The Department shares City Hall with the rest of City Staff. The Department collaborates
with Pinole PD for dispatch.
Opportunities for Facility-Sharing and Regional Collaboration
The Department did not identify any additional opportunities for facility sharing.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
125
Law Enforcement MSR
11. City of Lafayette
The City of Lafayette provides a range of municipal services, including law enforcement
services, within the city limits through a staffing contract with the County Sheriff’s Office. 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 central portion of the
County. For general information on the City and related determinations refer to this MSR.
Basic information on the Lafayette 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 City of Lafayette is a general law city, which was incorporated in 1968. Its boundary area is
approximately 15.4 square miles. The City’s SOI includes two adjacent areas, one in the northeast
and one in the east. (Refer to Map 11-1.)
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,
as the department head for the Police Department (PD), reports to the City Manager. The City has
two commissions related to law enforcement: the Crime Prevention Commission and the
Emergency Preparedness Commission. The Crime Prevention Commission consists of seven
commissioners appointed by the City Council, assists the PD in crime prevention awareness
programs, and meets monthly. The Emergency Preparedness Commission consists of five members
appointed by the City Council, meets meet monthly, and works with the PD and citizens with
emergency preparedness issues and emergency operations planning. Residents of the City may
apply to the City Council to be appointed to a commission. Each commission is charged with
reviewing issues and making decisions within the scope of its authority. A decision made by a
commission or committee is subject to review by, or appeal to the City Council.
Constituent outreach efforts are aimed at crime prevention, education about the Department’s
activities, and involving constituents in police efforts. The Chief releases a weekly brief and issues
updates on social networking applications, such as Twitter, to update city staff and the public on
issues and activities. Public service officers meet with businesses to discuss any concerns and
educate about crime prevention. The Department uses community oriented policing and problem
solving, where officers are assigned specific areas of the City, to establish and maintain open lines of
communication with the residents and businesses in that area, to address problems, and work on
solutions together. Department crime prevention programs include Neighborhood Watch and a
Child ID program. The Department uses the City’s Youth Commission as a means for outreach to
youth in the City. The Department makes crime statistics and an online crime reporting form
available on its website.
126
City of Lafayette
The Department uses a formal complaint procedure developed by the Sheriff’s Office, and may
receive complaints via e-mail, phone, or directly at the front desk of the Department. All complaints
are directed to the Chief during the day and to the Sergeant on duty in the evening. The
Department does not have an ombudsman, as the Chief is responsible for disposition of all
complaints. The Department did not have the exact number and type of complaints received in
2007, 2008 and 2009 available, but indicated that there are on average less than 50 complaints
annually.
Lafayette 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 Lafayette operates under a contract with the Sheriff’s Department for law
enforcement services. All staff in the Police Department are personnel from the Sheriff’s
Department with the exception of the two Parking Enforcement Officers, who are employees of the
City. The Department uses procedures and policies approved by the Sheriff and modified by the
Chief to meet the needs and requirements of the City. The Department has a total of 21 authorized
positions, of which 17 are sworn. The Department is supplemented by four Reserve Officers.
The Police Department is not divided into bureaus or divisions based on function. All PD
personnel, with the exception of the Parking Enforcement Officers, report to the two supervising
Sergeants who report to the Chief. The Parking Enforcement Officers report to the Community
Service Officers. 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.
Lafayette PD’s work plan is outlined in the annual budget. Goals for FY 10-11 include:
Continue liaising with and participation in city commissions and community groups to
ensure that community standards are enforced and an open line of communication is
maintained between the Police Department and the public.
Increase driver safety and compliance with traffic laws through an aggressive
enforcement policy, education, citations and warnings.
Establish a team approach to criminal investigation so that the youth services officer,
detective, beat officers and the community all work together to jointly solve crimes and
aggressively prosecute lawbreakers.
Ensure continuation of the neighborhood patrol plan so that all city streets are patrolled
on a regular basis.
Continue to use the bicycle patrol officer to patrol the core downtown area and function
as the primary liaison to the Lafayette business community.
Encourage the use of volunteers to supplement and assist the Department in its duties.
Explore the feasibility of joining the Sheriff's Senior Volunteer Program. Volunteers are
used for special events such as the Art and Wine Festival.
Monitor and update the fleet management plan and ensure the cost effective and safe
use of city-owned patrol vehicles.
Each employee is evaluated every four months. 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 annual report consists of a yearly activity report on
service demand indicators over a five-year period. Within the annual report, the Department
127
Law Enforcement MSR
conducts significant benchmarking with other providers in the County on various indicators of
demand and level of service.
The Lafayette PD maintains a low staffing level of sworn personnel; consequently, the
Department reported a need to operate efficiently in order to capitalize on personnel time in the
field. The Department reported that it makes efforts to work with neighboring cities. For example,
Lafayette contracts with Concord for fleet maintenance. Additionally, the PD makes use of vacation
relief officers and part-time detective to maintain staffing levels.
Planning documents that guide Lafayette PD’s services are the City’s 2002 General Plan and a
departmental mission statement. General Plan service policies for police are as follows:
Strive to maintain a three-minute response time for all life-threatening calls and those
involving criminal misconduct, and a seven minute response time for the majority of
non-emergency calls.
Work with the Contra Costa County Sheriff's Department and neighboring jurisdictions
to improve police service in Lafayette.
Lafayette PD does not currently meet the response time standard for Priority 1 calls, but does
respond within four minutes and 50 seconds.
Financial planning documents include the annual budget. The City adopts a five-year capital
improvement plan in October of each year. The present 2012 CIP does not include any capital
improvements related to the Police Department.
Population and Growth Projections
According to the 2010 Census, the population of the City is 23,893. Over the last 10 years, the
population of Lafayette has declined by 0.06 percent.
There is relatively little land in the City where additional development can occur. Most of the
remaining vacant or underdeveloped land is located in environmentally constrained areas
characterized by steep hillsides, oak woodlands, and unstable soil conditions. This land is
designated Rural Residential on the General Plan Land Use Map. The majority of new residential
development is expected to occur on infill lots scattered throughout the City’s existing residential
neighborhoods and in mixed-use developments located in the downtown area.18
Based on ABAG projections, the City is anticipated to grow by 10 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 26,900 in 2035.
Lafayette PD reported that the existing headquarters is at capacity, and additional storage space
is necessary to serve any growth in demand. Additionally, staffing ratios of sworn personnel to
residents is one of the lowest of the providers in the County; consequently, any increase in demand
for law enforcement services would require enhanced staffing.
18 Contra Costa LAFCO, Central Contra Costa County Sub-regional MSR, 2009, p. V-11.
128
Map 11-1
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Law Enfoorcement MSRR
The PPolice Departtment particcipates in revview of devellopment prooposals accorrding to the City’s
adopted General Plann policies, wwhich states tthat the PD shall “revieww development proposaals for
their demmand on pollice services and require mitigatingg measures, if necessaryy, to maintain the
communiity's standarrd for police services.” OOther growthh strategies rrelated to laww enforcemeent in
the City iinclude perfoormance standards adoppted as part of the Public Safety Elemment of the City’s
General PPlan as indicaated above.
Theree are two non-contiguous areas outsiide the city limits which could annexx to the City iin the
future. TThe southerlly of the twoo areas is thhe Saranap AArea (current populationn 5,202), which is
partially within the LLafayette SOII and partiallly within thhe Walnut Crreek SOI, andd consists off low-
density aand rural siingle-family residential developmennt. The noortherly areaa (the Greenhills
Subdivisiion) is withiin the Lafayeette SOI, andd is composed of mediuum-density ((up to 6 dwelling
units/acrre) single-fammily residenttial developmment. (Refer to Map 11-11.)
Theree are no uninncorporated islands withiin the Lafayeette City Limits.
Finaancing
The DDepartment’ss services are financed primarily throough the Genneral Fund aand augmented by
two Enteerprise Fundds: the Parkking and Codde Enforcemeent Fund (parking citatiion fines, paarking
meters, aand parking permits) whhich generateed $535,4255 in FY 09-100; and the Vehicle Abateement
Fund whhich generateed $ 10,4377 in FY 09-110. These two funds ccomprise approximatelyy 13.5
percent oof total PD exxpenditures. Revenues aare also colleected from veehicle code ffines ($145,3320 in
FY 09-10) and police fees chargedd for crime reeports, false alarms, and fingerprintinng ($36,632 in FY
09-10), and are considered Generral Fund monnies.
Figuure 11-1: Laffayette PD Expenditures (FYs 08, 09, & 10)
Unlikke other citiees, PD expenditures
over thee last three fiscal years have
generallyy risen from $$3.6 million to $4.1
million, aas shown in Figure 11-1.. In FY
09-10, thhe primary expenses ffor the
Departmeent were payment tto the
Sheriff’s office for ccontract perrsonnel
and serviices (77 percent), suppliies and
services (16 ppercent), traffic
enforcemment personnnel and suupplies
(five perrcent), crosssing guardss (one
percent), and emergency preparredness
services ((less than onne percent).
The City does not have anyy long-
term debbt related too law enforccement
services.
Lafayyette takes ppart in the MMunicipal Poooling Authoority of Nortthern Califorrnia joint poowers
authorityy for risk maanagement ccoverage. Laafayette PD pparticipates in joint finaancing of croossing
guard serrvices in coooperation witth the schoool district. Eaach agency ppays 50 perccent of the annnual
costs of thhe services.
1130
City of Lafayette
Law Enforcement
Nature and Extent
The Police Department is responsible for providing law enforcement services in the City,
including crime suppression, investigation, traffic enforcement, youth services, community
education, traffic enforcement, accident investigation, and emergency preparedness. Lafayette PD
contracts with All City Management Services for crossing guard services to Stanley and Lafayette
Elementary Schools; the cost of the program is shared 50-50 with the school district. The City
provides law enforcement functions with personnel from the Sheriff’s Office by contract, with the
exception of Parking Enforcement Officers who are city employees. Lafayette 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. Lafayette PD is also involved in the East Bay Regional Communication System
and the Contra Costa Mobile Field Force.
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. Lafayette also contracts with the City of Concord
for vehicle maintenance.
The Sheriff’s Department also provides safety services within the City by responding to a City of
Lafayette “critical incident” in which a request has been made for “mutual aid.”
Lafayette PD does not provide contract services to other agencies.
Patrol
Lafayette PD patrols 15.4 square miles which are divided into four beats. Each of the two patrol
units is headed by a Sergeant. Each unit works four 10-hour shifts (Sunday through Wednesday or
Wednesday through Saturday). Training and administration is conducted on the overlap day
(Wednesday). A single patrol officer is dedicated to each patrol vehicle.
Staffing
Figure 11-2: Lafayette PD Staffing Levels
Over the last three FYs (09, 10, 11),
Position FY 08-09 FY 09-10 FY 10-11
unlike other city police departments,
Chief 1 1 1
Lafayette has been able to maintain
Detective 2 2 2
stable staffing levels with little variation
Sergeant 2 2 2
from year to year. (Refer to Figure 11-
Police Officer 11 11 11
2.) The PD budget was cut by five
K-9 Officer 1 1 1 1
percent in December 2010, resulting in
Parking Enforcement Officer 2 2 2
the loss of the one K-9 officer.
Community Service Officer 1 2 2
Since the City does not have a
TOTAL 20 21 25
standard related to staffing levels, as
Notes:
staffing levels are determined annually (1) This position was eliminated in mid FY 10-11.
during the budget process and
reevaluated as the year progresses.
131
Law Enfoorcement MSRR
The DDepartment reported that traffic enforcement iss a top priority for the City, due too high
levels off traffic accidents. Thee traffic enfoorcement prrogram has been recenntly enhanceed by
purchasinng two motorcycles for the two Trraffic Enforccement Officcers. Lafayeette PD pressently
employs 0.7 sworn offficers per 1,0000 residentts, and has beeen able to mmaintain its ssworn force.
Locaation
Lafayyette PD proovides serviices throughhout the Citty’s territoryy, and in adddition, proovides
services ooutside its booundaries thhrough mutual aid agreemments. Thesee joint mutual aid agreemments
include: 1) the Contrra Costa Muttual Aid Mobbile Field Foorce which pprovides poliice services of all
types for calls to otheer counties on request; annd 2) the Couunty Wide MMutual Aid Prrogram, whicch is a
countywiide agreement to providde law enforccement servvices to any oother providder when neeeded.
The Depaartment doess not have anny automatic aid agreemeents with othher providerss.
The DDepartment did not idenntify any areeas within thhe City’s bouundaries thaat are particuularly
challenging to serve.
Infraastructure
Lafayyette PD opeerates out oof the policee headquarteers at 3675 Mt. Diablo Boulevard. The
headquarrters is locatted in a connverted officce building wwith other ccity departmments. The ppolice
headquarrters was buuilt in 19822 and is connsidered to be in good condition. The Departtment
reported that the facility is at capaacity and theere is a need for an offsitee storage faciility.
The DDepartment reported thaat there are no plans forr significant capital improvements tto the
headquarrters over the next few yeears, and no plans for neww facilities.
The DDepartment did not repport any neeeds related tto vehicles or equipmennt. Vehicless and
equipmennt are not keept within a secure area. The City prrovides all veehicles for usse by the Sheeriff’s
Office perrsonnel. Thee life of the patrol vehiclees has been extended to fiive years andd 100,000 miles.
Servicce Demand and Serrvice Adeqquacy
Each law enforcemment agencyy has been evvaluated usinng a numberr of factors. These factorrs are
indicatedd in Figure 11-4: Lafayyette Law Enforcement Profile. Thhese profiless can be used to
compare between ageencies, althouugh exact commparisons are not alwayys possible duue to the difffering
conditionns and policiing methods used. Refer also to Chapter 3: Law Enforcemment Overvieww for
comparisson tables.
Servvice Demandd
Figure 11-33: Violent and Property CCrimes (2007--2009)
Durinng the last tthree years, the
annual nnumber of ccrimes and the
number of crimes pper capita hhave
had an uupward trendd. As shown in
Figure 111-3, while the numberr of
violent crimes hhas remaiined
relativelyy static over tthis time perriod,
the numbber of property crimes has
increasedd by almosst 14 perccent.
Based on the numberr of property and
1132
City of Lafayette
violent crimes between 2007 and 2009, the City had approximately 14 reported crimes per 1,000
residents, while providers countywide averaged 21 crimes per 1,000 residents. The City averaged
21,400 service calls per year in 2007, 2008 and 2009, which is 955 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.
Lafayette PD reported that it has particularly high demand during the annual Lafayette Art and
Wine Festival. There is an influx of an up to an additional 100,000 people during the duration of the
two-day event. Additionally, the annual Reservoir Run in October draws additional people to the
City and costs the PD $18,000 for security and traffic direction.
The Department reported that theft from vehicles throughout the City is the biggest problem,
which increases demand on the PD.
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 Lafayette 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.19 Response times are dependent on the agency’s staffing level and size of
the jurisdiction served. Lafayette PD on average responds to Priority 1 incidents within four
minutes and 50 seconds, while law enforcement providers countywide averaged five minutes and
44 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 11-4, Lafayette PD had a clearance rate of 23 percent for violent crimes (homicide, forcible
rape, robbery and aggravated assault) committed in 2007, 2008 and 2009, and a clearance rate of
five percent for property crimes (burglary, motor vehicle theft, and thefts of greater than $400)
during the same period. By comparison, providers countywide on average cleared 38.3 percent of
violent crimes and 10.6 percent of property crimes, meaning Lafayette PD solves a smaller portion
19 Walker and Katz, 2002.
133
Law Enforcement MSR
of both violent and property crimes within its jurisdiction than the average of other providers in the
County.20
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 0.7 sworn staff per 1,000 residents in Danville, Moraga and Lafayette, to 2.0 in
Kensington CSD. Lafayette PD maintains one of the lowest staffing ratios in the County.
20 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. 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.
134
City of Lafayette
Figure 11-4: Lafayette Law Enforcement Overview
Lafayette Law Enforcement Profile
Service Configuration Service Demand
Patrol Sheriff Population (2009) 23,895
Number of Beats 4 Population (2010) 23,893
Dispatch Sheriff Total Service Calls (2009) 22,816
Search and Rescue Sheriff Calls per 1,000 population 955
Investigations Sheriff Crime Activity
Traffic Enforcement Sheriff Arrests (2009) 284
SWAT Sheriff Violent Crimes (2009) 25
Temporary Holding None Property Crimes (2009) 331
Long-term Holding Sheriff Traffic Accidents 240
Bomb Squad Walnut Creek PD Violent Crime Rate per 100,0001 303
Canine (K-9) Services Sheriff Property Crime Rate per 100,0001 3,952
Staff Training Sheriff
Animal Control County
Service Adequacy Resources
Avg. Priority One Response Time 4:50 Total Staff (2010) 25
Response Time Base Year 2009 Sworn Staff 16
Clearance Rate of Violent Crimes2 23% Support Staff 5
Clearance Rate of Property Crimes2 5% Volunteers/Reserves 4
Per Capita Cost (General Fund) $ 172 Sworn Staff per 1,000 population 0.7
Service Challenges
The Department identified vehicle theft and traffic enforcement as requiring the most PD resources.
Facilities
Station Location Condition Built
Police 3675 Mt. Diablo Blvd., Suite 130 Good 1982
Headquarters
Current Facility-Sharing and Regional Collaboration
The City contracts with the City of Concord for fleet maintenance and makes use of the Sheriff's dispatch
facilities and personnel. The PD headquarters is located in an office building with other city deparments.
Lafayette PD is a member of the East Bay Regional Communication System which is intended to promote
interoperability.
Opportunities for Facility-Sharing and Regional Collaboration
The Department did not identify any additional opportunities for facility sharing.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
135
Law Enforcement MSR
12. City of Martinez
The City of Martinez 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
central portion of the County. For general information on the City and related determinations refer
to this MSR.
Basic information on the MartinezPolice 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 City of Martinez is a general law city, which was incorporated in 1876. Its boundary area is
approximately 12.5 square miles (land only). The City’s SOI encompasses two adjacent areas, one
expansive area in the northeast and another in the southwest along Alhambra Valley Road. (Refer
to Map 12-1.)
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,
as the department head for the Police Department (PD), reports to the City Manager. Chief Gary
Peterson was appointed in November of 2010. The City has a Public Safety Subcommittee to
facilitate communication between the Police Department and the City Council in public safety
related matters. The subcommittee is comprised of two City Council members, the City Manager,
and the Police Chief.
Constituent outreach efforts are aimed at crime prevention, education about the Department’s
activities, and involving constituents in police efforts. The City maintains a comprehensive website
and the PD utilizes it to provide daily announcements of activities that are of interest or concern to
the community. The PD makes use of the website to release daily activity logs, information on
crimes and crime prevention, and press release information. Other tools used to educate and
inform constituents include an emergency response program to train citizens, the Explorer Scout
program, and personnel outreach at schools and senior citizen centers and to merchants.
Additionally, in 2008, the Department initiated a community policing survey to solicit public input
on satisfaction with services and inform department priorities. The survey was sent to 8,000
residents and 600 responses were received. Results of the survey indicated a high degree of trust
between the public and the PD. The chief concerns of the residents included the perception of a
proliferation of gang activity, and speeding vehicles. The Department is preparing another survey
to be mailed in 2012 in an effort to increase police department transparency with the public.
136
City of Martinez
If a constituent has a complaint regarding the Department or its employees, complaint forms
are available online. The Department has an adopted policy to track all compliments or complaints.
Currently, the policy is in the process of being upgraded and submitted for approval. Based on the
nature of the incident, it may be referred to Internal Affairs (IA) for further investigation, or be
resolved in house by members of the command staff. The Chief acts as the ombudsman of the
Department and is responsible for the resolution of each complaint. The Chief reviews and assigns
all citizen complaints to the Captain for investigation. Each complainant received an initial letter
from the Chief indicating that the complaint is assigned to be investigated. At the conclusion of the
investigation, the Chief sends another letter to the complainant explaining the disposition of the
complaint. For the Martinez PD, in 2007 there were five complaints in which three were
unfounded, one was exonerated, and one was sustained; for 2008 there were two complaints, one
was unfounded and the other was exonerated; and in 2009 there were six complaints in which one
was unfounded, three were exonerated, one was referred to another agency, and one was
sustained.
Martinez 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
Per the City’s FY 10-11 budget, the PD has 55.0 authorized full time equivalent (FTE) positions
of which 39.0 are sworn officers and 16.0 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 Department is supplemented by a volunteer program
that presently has two part-time Cadets, four Explorer volunteers, and eight reserves.
Previously, the Department had been divided into two divisions: Administrative Services and
Field Operations. Each division was managed by a Commander that reported to the Chief. The
Administrative Services Bureau included the records, dispatch, community services, and
investigation functions. The Field Operations Division was responsible for patrol and calls for
service. In June of 2011, the Chief restructured the Department and consolidated the two divisions
into one Operations and Service Division commanded by a Police Captain. The two commander
positions and an administrative Sergeant’s position were eliminated to create two Police Lieutenant
positions. The Department then established Neighborhood Policing Areas (NPA’s) in which a police
officer is assigned to each of the 24 NPA’s to facilitate direct contact with residents or businesses
within the NPA. The two Lieutenants each oversee two patrol teams and provide accountability to
the NPA initiative.
The Chief holds regular staff meetings with commanders and their supervisory staff to review
and gather information on any issues or concerns. The Chief also attends meetings with other
department heads, the City Manager and with the City Council.
The guiding vision of the Department is outlined in the Department’s mission, vision and value
statements. Long-term goals are adopted during the City’s biennial budget process, while short-
term goals are established at staff meetings and with citizen input. A few objectives identified for
the Administrative Services Division during the last budget process for the period of FY 09-10 to FY
10-11 include:
Explore possibility of a combined police dispatch center with neighboring cities in FY 2009-
10. After research on the matter, it was tabled and determined to be not feasible at the
time.
Enhance communication/collaboration through the newly established Council Public Safety
Subcommittee. This Standing Subcommittee has been established
137
Law Enforcement MSR
Initiate a Volunteers in Police Service (VIPS) program by January 2010 for individuals
assisting the Department, including unpaid internships; administrative support; chaplain
services; reserve police officers; and Explorers. The VIPS has been initiated and is
recruiting members.
Fill remaining vacancies in both dispatch and patrol. Dispatch vacancies have been filled
and three officers have been added to patrol.
Pursue newly available COPS (Community Oriented Policing Services) hiring recovery
program funds from the American Recovery and Reinvestment Act of 2009 in FY 09-10.
The City has not secured additional COPS grants but has received $100,000 in Supplemental
Law Enforcement Service Funds (SLESF).
Evaluations are completed annually for all department personnel. The workload of personnel
as well as the entire Department is tracked through the Department’s automated computer system,
which records calls for service by location and time and monitors self-initiated activity that results
in citations, arrests or warnings. The Department reported that it recognizes the need to routinely
evaluate overall department performance and is currently working on a new annual report format
to evaluate operational practices and techniques and document performance in terms of
effectiveness and efficiency. It is anticipated that the inaugural annual report will be released by
the end of 2011. The Department presently uses the two year annual budget cycle and format to
develop programs with measurable results to focus on reduction of specific crime and accident
patterns. Martinez PD conducts some benchmarking of service indicators with other similar law
enforcement providers; most recently, the Department completed a comparison survey of staffing
levels of the law enforcement providers throughout the County.
The newly appointed Chief reported that he has begun to review and evaluate the efficiency of
the Department, and anticipates making recommendations on ways to streamline the workload and
eliminate duplication of efforts.
Planning documents that guide Martinez PD’s services are the City’s 1973 General Plan, which is
in the process of being updated, a departmental mission and vision statement, and the biennial
budget which identifies objectives for the next two years.
General Plan Service Standards for police are as follows:
The City should maintain “Capital facilities sufficient to maintain a maximum five
minute response time for Priority 1 calls, and a maximum of 30 minutes on all calls.”
The Department currently exceeds the Priority 1 response time standard, with a Priority 1
response time of seven minutes and 30 seconds. This response time is expected to decrease with
the new NPA program. The Department meets the 30-minute standard for all calls.
Financial planning documents include the biennial budget and a capital improvement plan. The
City’s capital improvement program is a two-year planning program for the construction of new
facilities and infrastructure, and for the expansion, rehabilitation, or replacement of City-owned
assets. The plan is updated by staff and approved by the City Council prior to the adoption of the
biennial budget. There are no plans for capital improvement related to law enforcement through
the end of FY 10-11 included in the present CIP.
Population and Growth Projections
According to the 2010 Census, the population of the City is 35,824. Over the last 10 years, the
population of Martinez has had negative growth of 0.1 percent.
138
City of Martinez
The City attributes the constrained development and declining population to the relocation of
county facilities adjacent to, but outside the city limits. There is substantial territory in the City’s
SOI with development potential. The City has developed several specific plans to guide
development in the future, including the Alhambra Highlands Residential Project (112 single-family
residential units on 40-acres, with 214 acres of open space).
Based on ABAG projections, the City is anticipated to grow by 12 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 41,400 in 2035.
In order to adequately anticipate and address any growth in demand as a result of development,
the Department uses the automated records management system to capture existing demand and
project the impact of future growth via indicators of demand, such as calls for service and traffic
generation.
The Department participates in reviewing development proposals and analyzes projected
impacts of each proposal on police services in the City. Most recently, the City reviewed two
annexation proposals located on the east and west sides of the City, which were subsequently
approved and submitted to LAFCO. The City’s Public Safety Subcommittee reviewed the estimated
calls for services and workload issues involved in the annexations and recommended the addition
of a half-time officer position as a result of anticipated increase in demand. The Chief reported that
the PD was kept informed during the development evaluation process.
There is a significant area within the City SOI available for future development. This area is on
the west and east sides of Interstate 680 and north of Highway 4. (Refer to Map 12-1.) Annexations
within this area have been proposed, including the North Pacheco Annexation which is currently
under review.
The other unincorporated area within the SIO is in the southwest quadrant and includes the
aforementioned Alhambra Highlands Residential Project.
There are no unincorporated islands within the City limits, per se, although there are ‘pockets’
of unincorporated development interspersed with City territory. Both the Martinez PD and the
County Sheriff’s Office indicated that these areas are not difficult to serve as each agency is
knowledgeable of its respective service areas.
139
Map 12-1
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City of Marrtinez
Finaancing
Manyy cities are faacing fiscal cchallenges ass a result off the recent rrecession, annd Martinez is no
exceptionn. Martinez PD has madde efforts at ccost savings to accommoodate decliniing city reveenues.
For exammple, vehiclee replacemennt costs werre reduced bby $85,205 iin 2009-10, and $108,984 in
2010-11, by postponning purchasse of a neww police vehhicle for onee year and adjusting veehicle
replacemment costs foor inflation ffrom 4.5 peercent to twwo percent too reflect thee depressed auto
market. The Deparrtment reporrted that saalary and beenefit costs are presenntly being cllosely
scrutinizeed during thhis round of budget prepparation. Hoowever, whille the Martinnez PD is making
efforts too minimize exxpenditures,, it is one of the few city police departments thatt has been abble to
maintain staffing leveels over the last few years and is nearring a full staaffing level wwith few unfuunded
or unfilled positions.
The DDepartment’ss services arre financed pprimarily thrrough the Geeneral Fund (99 percentt) and
augmenteed by two sppecial revenuue funds. Thhe Public Saafety Grants Fund is for SState and Feederal
grants reeceived by thhe Police Deppartment forr improvemeents in publicc safety techhnology and other
special prrojects. In FYY 09-10, the City receivedd $100,000 iin Supplemenntal Law Enfforcement Seervice
Funds (SLLESF), whichh provides suupplementall funding to llocal jurisdicctions for froont-line municipal
services. In total, tthe Public Safety Grantss Fund conttributed $1110,286 to police departtment
expendituures in FY 09-10. Thee Police Faccilities Fundd is used too track use of public ssafety
developmment impact fees. No ffunds were used from the Police Facilities Fuund in FY 009-10.
Revenuess related to llaw enforcemment activitiees include poolice chargess for servicess ($376,514 in FY
09-10) annd fines andd forfeitures ($16,298 inn FY 09-10). These reveenues are coonsidered Geeneral
Fund monnies.
Figgure 12-1: Maartinez PD Expenditures (FYs 08, 09, & 10)
Unlikke some city ppolice
departmeents, MMartinez PD
expendituures have inncreased oveer the
last threee fiscal yeaars, as showwn in
Figure 122-1. Total ppolice departtment
expendituures in FY 009-10 were $10.6
million. A breakdowwn of actual ppolice
departmeent expendittures by typee was
not avaiilable in thhe City’s auudited
financial statement for FY 009-10.
Based oon the FY 09-10 buudget,
expensess were estimmated to conssist of
administrration ((13 percent),
investigative servicees (13 percent),
support services (155 percent), ttraffic
enforcemment (six percent), field
services ((52 percent) and emergeency services (less than one percent).
The CCity does not have long-teerm debt relaated to law eenforcement services.
Martiinez takes ppart in the Municipal Pooling Autthority jointt powers auuthority forr risk
managemment coveragge. The Authhority was foormed to alllow memberr agencies too pool togethher to
provide ccost effectiveeness risk maanagement seervices and pprograms to member ageencies.
1141
Law Enforcement MSR
Law Enforcement
Nature and Extent
The Martinez Police Department is responsible for providing law enforcement services in the
City, including patrol, dispatch, crime prevention, parking and traffic control, community policing,
community awareness, and investigations. The Department has a Special Weapons and Tactics
(SWAT) Team, a K-9 unit, a temporary holding facility, and conducts training. Martinez PD is also
involved in the East Bay Regional Communication System, the Contra Costa Mobile Field Force, the
regional crime lab, and the Sheriff’s Automated Regional Information Exchange System database.
The Department relies on the Sheriff’s Office for 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.
The Sheriff’s Department also provides safety services within the City by responding to a City of
Martinez “critical incident” in which a request has been made for “mutual aid.”
Martinez PD does not provide contract services to other agencies. Due to its role as the county
seat, Martinez has a number of Contra Costa County Sheriff’s Office (SO) facilities and operations
including the Administrative Office, the Martinez Detention Facility, the Custody Service Bureau, the
Court Security Division, and the Records and Identification Unit.
Patrol
Martinez PD patrols 12.3 square miles which are divided into four beats. The City is divided
into two patrol sectors, (north and south) with two beats in each sector. The Department utilizes
solo officer units on patrol and uses reserves and overtime pay to maintain critical staffing as
required based upon calls for services data captured by its automated CAD and records
management system. The recently initiated Neighborhood Policing Areas (NPA’s) insures that a
patrol officer is designated for each of the 24 NPA’s. Four Sergeants are assigned to oversee six
NPA’s each.
Staffing
Figure 12-2: Martinez PD Staffing Levels
Position FY 08-09 FY 09-10 FY 10-11
Because of budget constraints and the
recent reorganization, the PD was Chief 1 1 1
required to ‘give back’ some of the Commander 2 2 0
positions that were gained in FY 09-10.
Captain 0 0 1
(Refer to figure 12-2.) The PD anticipates
Lieutenant 0 0 2
‘freezing’ up to four positions for FY 11-12
Sergeant 5 6 5
in order to further reduce expenditures.
Corporal 4 2 4
Staffing levels are developed during
Detective 5 5 4
the City’s biennial budget process.
Police Officer 18 20 18
Martinez PD presently employs 1.1 sworn
officers per capita, and has been able to K-9 Officer 2 3 2
maintain its sworn ranks. Records Supervisor 1 1 1
Records Clerk 2 2 1
Dispatch Supervisor 1 1 1
Dispatcher 4 5 6
Office Support Staff 2 2 2
TOTAL 47 50 48
142
City of Marrtinez
Locaation
Martiinez PD provvides servicess throughoutt the City’s teerritory, and in addition, provides serrvices
outside itts boundariees through mutual aid agrreements. Thhese joint mmutual aid agrreements incclude:
1) the Coontra Costa MMutual Aid MMobile Field Force whichh provides ppolice servicees of all typees for
calls to oother countiees on requesst; and 2) thhe Californiaa Law Enforccement Mutuual Aid Plann. The
Departmeent does not have any auutomatic aid aagreements wwith other providers.
The DDepartment did not idenntify any areeas within thhe City’s bouundaries thaat are particuularly
challenging to serve.
Infraastructure
Martiinez PD opeerates out off one wing of Martinez City Hall at 525 Henriietta Street. The
building was construucted in 19166, and remoddeled and reetrofitted afteer the 1989 earthquake. City
Hall and tthe PD are coonsidered to be in good ccondition. Reecent improvvements to the facility include
the addittion of a seccurity fence to the parkking lot for ppolice vehiccles in FY 099-10. No fuurther
infrastruccture needs oor deficiencies were idenntified.
Theree are no planns for signifficant capitall improvemeents to the ppolice headquarter beforre the
end of FYY 2011, basedd on the City’’s budget. Thhere are alsoo no plans forr additional ffacilities.
The DDepartment did not repoort any needds related to vehicles or equipment. The Departtment
postponeed purchase oof a new poliice vehicle foor one year inn order to redduce capital costs.
Servicce Demand and Serrvice Adeqquacy
Each law enforcemment agencyy has been evvaluated usinng a numberr of factors. These factorrs are
indicatedd in Figure 12-4: Marttinez Law Enforcement Profile. Thhese profiless can be useed to
compare between ageencies, althouugh exact commparisons are not alwayys possible duue to the difffering
conditionns and policiing methods used. Refer also to Chapter 3: Law Enforcemment Overvieww for
comparisson tables.
Servvice Demandd
Figure 12-33: Violent and Property CCrimes (2007--2009)
Durinng the last tthree years,
the annuaal number off crimes and
the numbber of crimes per capita
have hadd an overall downward
trend. As shown in FFigure 12-3,
the numbber of violentt crimes has
declined steadily each year.
While prooperty crimees peaked in
2008, thhere was a significant
decrease in 2009 to aa level lower
than in 2007. The number off
violent annd property crimes have
declined by 37 perccent and six
percent rrespectively.. Based on
the nummber of prooperty and
violent crrimes between 2007 andd 2009, the CCity had appproximately 223 reported crimes per 1,000
1143
Law Enforcement MSR
residents, while providers countywide averaged 21 crimes per 1,000 residents. The City averaged
28,200 service calls per year in 2007, 2008 and 2009, which is 787 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 City reported that it has particularly high demand during weekdays when there is an influx
of approximately 20,000 additional people into Martinez. Other special events that increase service
demand include Fourth of July, the Peddlers Fair and the King of the County BBQ—each of which
draw an additional 3,000 to 5,000 people into the City.
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 Martinez 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.21 Response times are dependent on the agency’s staffing level and size of
the jurisdiction served. Martinez PD on average responds to Priority 1 incidents within seven
minutes and 30 seconds, while law enforcement providers countywide averaged five minutes and
44 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 12-4, Martinez PD had a clearance rate of 23 percent for violent crimes (homicide, forcible
rape, robbery and aggravated assault) committed in 2007, 2008 and 2009, and a clearance rate of
four percent for property crimes (burglary, motor vehicle theft, and thefts of greater than $400)
during the same period. By comparison, providers countywide on average cleared 38.3 percent of
violent crimes and 10.6 percent of property crimes, meaning Martinez PD solves a lower portion of
both violent and property crimes within its jurisdiction than the average of other providers in the
County. 22
21 Walker and Katz, 2002.
22 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. 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.
144
City of Martinez
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 0.7 sworn staff per 1,000 residents in Danville and Lafayette to 2.0 in Kensington CSD.
Martinez PD is slightly below the countywide average of 1.2 sworn staff per 1,000 residents, with a
sworn staff to resident ratio of 1.1.
145
Law Enforcement MSR
Figure 12-4: Martinez Law Enforcement Overview
Martinez Law Enforcement Profile
Service Configuration Service Demand
Patrol Martinez Population (2009) 35,828
Number of Beats 4 Population (2010) 35,824
Dispatch Martinez Total Service Calls (2009) 28,200
Search and Rescue Sheriff Calls per 1,000 population 787
Investigations Martinez Crime Activity
Traffic Enforcement Martinez Arrests (2009) 1,635
SWAT Martinez Violent Crimes (2009) 77
Temporary Holding Martinez Property Crimes (2009) 657
Long-term Holding Sheriff Traffic Accidents 297
Bomb Squad Walnut Creek PD Violent Crime Rate per 100,0001 836
Canine (K-9) Services Martinez Property Crime Rate per 100,0001 5,805
Staff Training Martinez
Animal Control County
Service Adequacy Resources
Avg. Priority One Response Time 7:30 Total Staff (2010) 48
Response Time Base Year 2009 Sworn Staff 37
Clearance Rate of Violent Crimes2 23% Support Staff 11
Clearance Rate of Property Crimes2 4% Volunteers 12
Per Capita Cost (General Fund) $ 283 Sworn Staff per 1,000 population 1.1
Service Challenges
To develop better rapport with the community and reduce the response time for Priority 1 calls through
implementation of the NPA’s.
Facilities
Station Location Condition Built
Police 525 Henrietta Street, Martinez Good 1916 (1990)
Headquarters
Current Facility-Sharing and Regional Collaboration
Martinez PD is a member of the East Bay Regional Communication System which is intended to promote
interoperability. The PD shares City Hall with other administrative departments.
Opportunities for Facility-Sharing and Regional Collaboration
The Department researched the viability of regional consolidation of dispatching services and records
management, in order to potentially capitalize on economies of scale that might reduce the cost of operation.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
146
Town of Moraga
13. Town of Moraga
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 MoragaPolice 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 SOI encompasses one adjacent area in the southeast.
(Refer to Map 13-1.)
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 Town operates under a Town Council-Town Manager form of government. The Chief of
Police, as the department head for the Police Department (PD), 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 newsletter (“Moraga
Town Crier”), to which the Chief contributes a bi-weekly column. 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; and regular
programs at two senior care facilities. 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.
147
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, two Sergeants, and seven 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
staff were trained, but the simulated disaster exercise did not occur. Moraga PD also continued to
purge records, and reviewed hiring and retention practices.
148
Town of Moraga
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 to double as a night commander.
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
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
calls for service, and undertake crime prevention within the Town.
Encourage the placement of residential and business addresses so that they can be
easily seen from the street.
Develop guidelines for the design and citing 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
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 does not meet the adopted response time standard for Priority 1 calls, but
responds within four minutes.
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.
149
Map 13-1
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Town of Moraga
There are approximately 863 acres of undeveloped land within the Town, which is not
designated as open space and is available for development.23
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 SOI 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.
Financing
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 $53,645 of PD
expenditures, and major equipment purchases of approximately $135,000 were made that year
(interactive radios and two vehicles) from accrued monies in the Asset Replacement Fund. 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).
23 Contra Costa LAFCO, Central Contra Costa County Sub-regional MSR, 2009.
151
Law Enfoorcement MSRR
Figure 13-1: MMoraga PD Expenditures (FYs 08, 09, & 10)
PD eexpendituress over the last
three fiscal years haave declinedd by
approximmately 20 peercent, as shown
in Figuree 13-1. A breakdownn of
actual police departmment
expendituures by ttype was not
available in the TTown’s auddited
financial statement for FY 099-10.
Based oon the FY 09-10 buddget,
expensess were plannned to consisst of
administrration (31 percent), paatrol
services (60 perccent), support
services (seven percent), and
depreciattion (two perrcent).
The Town does not have llong
term debbt related sppecifically to law
enforcemment servicess.
Moraaga takes parrt in the Munnicipal Pooling Authorityy joint poweers authorityy, formerly Contra
Coast Muunicipal Risk Managemennt Insurance AAuthority (CCMRMIA), foor risk managgement coveerage.
Law EEnforcemeent
Natuure and Exteent
The PPolice Deparrtment is reesponsible foor providingg law enforcement services in the TTown,
includingg crime preveention, parking and trafffic control, community aawareness, innvestigationss, and
emergenccy prepareddness traininng. Moragga PD is also involvedd in the Eaast Bay Reggional
Communication Systeem and the Contra Costa MMobile Fieldd Force.
The DDepartment relies on thee Sheriff’s Offfice for SWAAT, search aand rescue seervices, and long-
term holdding facilitiess; County Annimal Control for animal services; andd the City of Walnut Creeek for
bomb squuad services.. Additionallly, the Town contracts wiith the Sheriiff’s Office forr dispatch annd lab
services.
The SSheriff’s Deppartment also provides ssafety servicces within thhe Town byy respondingg to a
Town of MMoraga “critical incident”” in which a rrequest has bbeen made foor “mutual aid.”
The TTown particiipates in a jooint powers agreement wwith the Easst Bay Regional Parks Diistrict
Police Department tto provide primary ressponse and investigatioon for misddemeanor crrimes
committeed on East Bay Regional Parks Distriict parks witthin the Towwn. The Towwn of Moragaa also
provides back-up to tthe East Bay Regional Parks District ppolice for moore serious ccrimes commmitted
on park property, suuch as shoottings and other felonies. Moraga PPD provides law enforceement
services to St. Maary’s Collegge which iis within the Town Limits, inccluding crimminal
investigations/reportts.
PPatrol
Moraaga PD patrolls 9.5 square miles, whichh are dividedd into two beeats. There aare two officeers on
duty at all times. Offficers work tthree 12-houur shifts one week followwed by four 112-hour shiftts the
followingg week (total of 84-hours per two-weeek period).
1152
Town of Moraga
Staffing
Figure 13-2: Moraga PD Staffing Levels
Over the last three FYs (09, 10,
Position FY 08-09 FY 09-10 FY 10-11
11), two sworn officer positions
and one community service officer Chief 1 1 1
position have been eliminated. Detective 1 1 1
Consequently, the PD has been Police Officer 11 10 9
forced to rely more on police
Community Service Officer 1 0.5 0
cadets for non-sworn and
Office Support Staff 1.5 1.5 1.5
administrative duties. (Refer to
TOTAL 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 enforcement 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 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.
153
Law Enfoorcement MSRR
Servicce Demand and Serrvice Adeqquacy
Each law enforcemment agencyy has been evvaluated usinng a numberr of factors. These factorrs are
indicatedd in Figure 133-4: Moragaa Law Enforcement Profille. These profiles can bee used to commpare
between agencies, aalthough exaact comparissons are noot always possible due to the difffering
conditionns and policiing methods used. Refer also to Chapter 3: Law Enforcemment Overvieww for
comparisson tables.
Servvice Demandd
Figure 13-33: Violent and Property CCrimes (2007--2009)
Durinng the last thhree years,
the annuual number of crimes
and the nnumber of crimes per
capita haave had a ddownward
trend. Ass shown in FFigure 13-
3, while tthe number of violent
crimes haas fluctuatedd over that
time, prroperty crimmes have
declined by 18 perccent over
the threee year period. Based
on the nuumber of prooperty and
violent ccrimes between 2007
and 20009, the Toown had
approximmately eight reported
crimes pper 1,000 residents,
while prooviders counntywide averraged 21 crimes per 1,0000 residentss. The Townn averaged 33,100
service caalls per yearr in 2007, 20008 and 20009, which is 1193 service calls per 1,0000 residents. By
comparisson, service pproviders countywide avveraged 1,500 service callls per 1,0000 residents dduring
the same time period.
Moraaga PD reporrted that it hhas particulaarly high demmand duringg the Fourth of July firewworks
and St. Mary’s Collegee athletic eveents and gradduations.
Servvice Adequaccy
Adequacy of law enforcement services caan be evaluaated based onn a number of elements. For
the purposes of this report, servvices provideed by Moraga PD are asssessed accorrding to respponse
times, cleearance ratess (the portionn of crimes solved) and staffing ratioss.
Althoough police rresponse timmes for serioous crimes inn progress aare an imporrtant indicattor of
service aadequacy, theere are not clear standaards as to wwhat that response time should be. PPolice
response times were traditionallyy used to measure effecctiveness. Hoowever, moree recent research
indicates that responnse time does not have a significannt effect on crime-solvinng, because most
crimes arre “cold” criimes and victims do noot tend to caall police immmediately aafter the crimme is
committeed. The moddern approach to responnse time—ddifferential rresponse—iss to ensure quick
response to serious ccrimes (Priorrity 1) in proogress, whenn there are oopportunities to save a vvictim
and/or too apprehendd the criminaal, and to infoorm lower-ppriority calleers (Priority 2 through 6)) that
response time may bee lengthy. Exxperiments indicate that differential response leaads to both ciitizen
1154
Town of Moraga
and officer satisfaction.24 Response times are dependent on the agency’s staffing level and size of
the jurisdiction served. Moraga PD on average responds to Priority 1 incidents within four minutes,
while law enforcement providers countywide averaged five minutes and 44 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 13-4, Moraga PD had a clearance rate of 40 percent for violent crimes (homicide, forcible
rape, robbery and aggravated assault) committed in 2007, 2008 and 2009, and a clearance rate of
six percent for property crimes (burglary, motor vehicle theft, and thefts of greater than $400)
during the same period. By comparison, providers countywide on average cleared 38.3 percent of
violent crimes and 10.6 percent of property crimes, meaning Moraga PD solves slightly more
violent crimes and slightly less property crimes within its jurisdiction than the average of other
providers in the County.25
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 0.7 sworn staff per 1,000 residents in Moraga along with Danville and Lafayette, to 2.0
in Kensington CSD. Moraga PD has one of the lowest sworn staff ratios among the providers in the
County.
24 Walker and Katz, 2002.
25 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. 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.
155
Law Enforcement MSR
Figure 13-4: Moraga Law Enforcement Overview
Moraga Law Enforcement Profile
Service Configuration Service Demand
Patrol Moraga Population (2009) 16,043
Number of Beats 2 Population (2010) 16,016
Dispatch Sheriff Total Service Calls (2009) 3,100
Search and Rescue Sheriff Calls per 1,000 population 193
Investigations Moraga Crime Activity
Traffic Enforcement Moraga Arrests (2009) 101
SWAT Sheriff Violent Crimes (2009) 12
Temporary Holding Moraga Property Crimes (2009) 104
Long-term Holding Sheriff Traffic Accidents 66
Bomb Squad Walnut Creek PD Violent Crime Rate per 100,0001 204
Canine (K-9) Services None Property Crime Rate per 100,0001 2,080
Staff Training Moraga
Animal Control County
Service Adequacy Resources
Avg. Priority One Response Time 4:00 Total Staff (2010) 13
Response Time Base Year 2009 Sworn Staff 11
Clearance Rate of Violent Crimes2 40% Support Staff 2
Clearance Rate of Property Crimes2 6% Volunteers 4
Per Capita Cost (General Fund) $ 125 Sworn Staff per 1,000 population 0.7
Service Challenges
Challenges identified by the Department include increasing costs for animal control services and the Town's
economical but not competitive PERS retirement package. The Department reported that it has lost officers
to other agencies as a result of the Town's pension plan.
Facilities
Station Location Condition Built
Police 329 Rheem Blvd Very Good 2005
Headquarters
Current Facility-Sharing and Regional Collaboration
Moraga PD is a member of the East Bay Regional Communication System which is intended to promote
interoperability. The PD shares an office building with other town functions.
Opportunities for Facility-Sharing and Regional Collaboration
No further opportunities for facility sharing were identified.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
156
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 Sheriff’s 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 on 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 SOI 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 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, vacation watch,
and drunken driving education for high school students.
The Department uses a formal complaint procedure developed by the Sheriff’s 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
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.
157
Law Enforcement MSR
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 Sheriff’s Office for law enforcement
services. The contract is reviewed annually by the City Manager and the SO. The Police Chief is a
Sheriff’s 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 and modified by the Chief to meet the needs and requirements 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 increase the span of
control in his agency by adding 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 Sheriff’s Department
routinely.
Oakley PD follows the three times per year employee evaluation procedures developed by the
Sheriff’s 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-annually, 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.
Incorporate police protection standards and requirements into the land use planning
process.
158
City of Oakley
Encourage public participation in crime prevention activities.
The City shall strive to provide sufficient personnel and capital facilities to ensure adequate
police protection and appropriate response times.
Require that the Community Development Department refer, as appropriate, development
proposals to the Police Department for review and comments.
Support citizen participation within programs such as Neighborhood Watch and
Community Oriented Policing and Problem Solving (COPPS).
Set fees to ensure that each dwelling unit, business, and vacant parcel pays a fair share of
the cost of police services
Financial planning documents include the annual budget and a capital improvement plan. The
City’s capital improvement program is a multi-year planning program for the construction of new
facilities and infrastructure, and for the expansion, rehabilitation, or replacement of city-owned
assets. The CIP covers a period from FY 11 to FY 15. It includes a number of physical improvements
to serve the existing City population and accommodate growth. The CIP includes plans for $5
million in capital improvements for the police station in FY 15. The type of improvements to be
made are not specified.
Population and Growth Projections
According to the 2010 Census, the population of Oakley is 35,432. Over the last 10 years, the
population of Oakley has grown by 39 percent.
The City has sufficient land available for development. The recent recession has curtailed most
residential development, and postponed planned development in the downtown area for
approximately five years. The City reported that population growth was previously developer
driven and based upon availability of reasonably priced land suitable for residential or commercial
development. Development is presently at a standstill; however, future growth potential is
available to the east and south, and as infill throughout the city.
Based on ABAG projections, the City is anticipated to grow by 26 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 44,450 in 2035.
To guide development, the City has completed specific plans for the East Cypress Corridor and
the River Oaks Crossing areas located in the northeast corner of the City. The plans identify any
infrastructure improvements that would be necessary to provide services in these areas.
The Chief reported that he is fully involved in evaluating new development and the impact it
may have on law enforcement services. General Plan policies ensure that the Department is invited
to evaluate and comment on any proposed developments. Growth strategies related to law
enforcement in the City include policies adopted as part of the Growth Management section of the
City’s General Plan as indicated above.
There are no unincorporated islands within the city limits.
Included within the City Sphere of Influence (SOI) is an area along the south side of Dutch
Slough and the west side of Sandmound Slough with existing residential, commercial and
agricultural uses. (Refer to Map 14-1.) This area is part of the City’s East Cypress Corridor Specific
Plan, and included Areas I, II and III. Area III includes the Sandmound Area, which was withdrawn
for annexation consideration by the City due to opposition by the residents. Area III is within the
159
Law Enforcement MSR
City’s SOI and the City is the logical provider of services including law enforcement. Until and
unless this area annexes to the City, it will present service challenges to Contra Costa County.
160
Map 14-1
City of Oakley Boundary and Sphere of Influence
By LAFCO action on 12/10/08,
City of Oakley boundary and
}þ SOI approved.
160
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Discovery Bay
This map was created by the Contra Costa County Community Development ®
65 b 1 y P C i o n n e t r S a t r C e o e s t, t 3 a 4 7 t C h :5 o F 9 M u : lo 4 n a o 8 t p y r . 4 c C 5 N r o e 5 o m a N r t t m e h d 1 u W 2 7 n 2 i i / n t 2 : y 0 g 3 6 D , / 2 : M 3 e 0 5 v a 0 e . r 9 3 t l i o 8 n p 4 e m W z, e C n A t, G 94 IS 5 5 G 3 r - o 0 u 0 p 95 its r t e a a p x b c r a c r o a s u d t e r e u a D c d c a e e a y r p d t e . a a a T i , r n s h t p m . i i r s t W i s e m m n c h a t u a i r l w r e p il r y i e t o c h n C b o t n d l i i t s g t a y a t a t a L i a t n t e i e m s f d r o i c i f t t m o s o th , p u e t i y s h s r s e i e d g o e h C t u h r t r o i e i v c s n d e e t d d r i i n a a s f f t r o C a c o r i o m t t m e h s e d a t t a h . t C i e U o C o n s C o u e a u A n r n n t s y S d t y o t a m a f G s t t a e s h IS y u i B s m n P o m o e r a o t s a r b g d p n r e a o o a a m f g r l E e r t . e e s q e r S p u e o o a t d o n m l . i z s r e e a i I b t a t i i m l o d it n y a a ' y s n f o d b r e 0 0.5 1 Miles
accept the County of Contra Costa disclaimer of liability for geographic information.
Law Enfoorcement MSRR
Finaancing
Oakleey PD reported that the current financing level is adequate to maintain delivery of esseential
police serrvices; howeever, due to tthe recessionn, the police services budget is very limited. To date,
the Policee Departmennt has not suuffered from personnel reeductions, buut has eliminnated its specialty
positionss. In order too stay within budget and minimize costs, overtimee is carefullyy controlled bby the
Chief, andd patrol vehhicle maintennance is careefully supervvised by a Seergeant to coontrol purchhasing
and mainntenance off all rolling stock. Poliice protectioon constitutted 28 percent of the City’s
governmental expendditures in FY 09-10 and 558 percent off the City’s Geeneral Fund.
The DDepartment’ss services arre financed pprimarily thrrough the Geeneral Fund (66 percentt) and
augmenteed by the P-66 Special Taxx Fund, the Suupplementall Law Enforcement Servicces Fund (SLLESF),
and Redeevelopment ffunds, whichh all togetherr accounted ffor 34 perceent of total PD funds in FFY 09-
10. The PP-6 Fund is wwhere the City accounts ffor the City'ss police serviices special ttax, all of whhich is
budgetedd to augmentt general funnd resources in funding tthe Police Deepartment buudget. The ppolice
services sspecial tax iss a voter approved speciaal tax levied bby the City aand collectedd at the samee time
and in the same manner as propeerty taxes, wwhich is to bee used exclussively for Puublic Safety. In FY
09-10, P--6 funds connstituted $2..18 million oof law enforrcement relaated revenuees. The SLEESF is
where the City accounnts for Suppllemental Laww Enforcemeent Grants froom the State, such as the State
COPS proogram funds. SLESF revvenues contributed $1000,000 to laww enforcemennt activities in FY
09-10. RRevenues arre also colleected from ccharges for services (twwo percent),, such as veehicle
abatemennt, and are coonsidered Geeneral Fund mmonies.
FFigure 14-1: OOakley PD Expenditures (FYs 08, 09,& 10)
The CCity pays the Sheriff’s Offfice for
contract services bassed on the number
of staff provided. In FY 09-10, thhe City
paid approximately $$5.9 million to the
County ffor police deepartment sstaffing
and foreensic and support seervices.
Support costs, capital costss and
administrrative costss, such as non-
sworn sttaff, vehicles and mainteenance
costs, arre paid direectly by thee City,
which coonstituted 114 percent oof law
enforcemment expenditures in FY 009-10.
Expennditures over the last three
fiscal yeaars have been relatively stable,
and in fact, actually inncreased in FY 08-
09, as shoown in Figure 14-1.
The CCity does not have any lonng-term debtt related to laaw enforcemment servicess.
The CCity is a memmber of the MMunicipal Pooling Authorrity of Northhern California. The Authhority
provides coverage aggainst various types of looss risks undder the termss of a joint powers agreeement
with the CCity and seveeral other citties and goveernmental aggencies.
1162
City of 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
In FY 10-11 Oakley PD has reduced Position FY 08-09 FY 09-10 FY 10-11
its staff due to budget constraints. In
Chief 1 1 1
order to maintain basic patrol services,
Detective 2 2 0
the Department has eliminated its
Sergeant 0 0 5
Detectives, K-9 officer, Community
Police Officer 24 24 22
Services Officer, Traffic Control Officer,
K-9 Officer 1 1 0
and School Resource Officer. (Refer to
Community Service Officer 2 1 0
Figure 14-2.)
Traffic Control Officer 2 2 0
According to the City’s budget,
Office Support Staff 2 2 4
there is a staffing goal of 1.1 sworn staff
School Resource Officer 1 1 0
to 1,000 population served. Oakley PD
TOTAL 35 34 32
presently employs 0.8 sworn officers
per capita, which is below the City’s staffing goal.
Location
Through a contract with the Sheriff’s Office, law enforcement services are provided throughout
the City’s territory. Additionally, contract SO personnel are available to respond outside Oakley’s
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
163
Law Enfoorcement MSRR
a countywwide agreemment to proviide law enforrcement servvices to any other providder when neeeded.
The Depaartment doess not have anny automatic aid agreemeents with othher providerss.
The Departmentt identified no areas wwithin the City’s boundaries that are particuularly
challenging to serve.
Oakleey PD has plaaced a major emphasis onn identifyingg drivers drivving under thhe influence (DUI)
and has iincreased itss efforts to aarrest drunk drivers. Thhe Traffic Unnit has increaased its skills and
abilities tto include DUUI enforcemment. Over thhe past two yyears the PDD has loggedd 16.9 DUI arrrests
per 1,0000 population,, a much highher rate thann adjacent citties and the SSO.
Infraastructure
Oakleey PD operattes out of a ppolice headquarters at 32231 Main Strreet, adjacennt to the Cityy Hall.
There aree no substatiions or otherr policing cennters. The ppolice headquuarters was built in 20088 and
is considered to be inn excellent ccondition. TThe police heeadquarters is new, and consequentlly, no
infrastruccture needs oor deficiencies were idenntified.
Theree are no planns for significant capital improvemennts to the poolice headquaarters until 22015,
when thee City plans to expend $5 million for aany necessarry improvemments to the ffacility. Therre are
presentlyy no plans forr additional llaw enforcemment facilitiees.
Oakleey PD providdes patrol and emergencyy response wwith 14 policce sedans, onne police SUVV, two
unmarked vehicles, twwo Harley DDavidson mottorcycles, onne light-duty pickup truckk, and one heavy-
duty pickkup truck. These vehiicles and asssociated eqquipment arre owned byy the City. The
Departmeent did not report any needs relateed to vehiclees or equipmment. The ppolice stationn has
secure paarking for poolice vehicles and specialtty equipmentt.
Servicce Demand and Serrvice Adeqquacy
Each law enforcemment agencyy has been evvaluated usinng a numberr of factors. These factorrs are
indicatedd in Figure 144-4: Oakley Law Enforceement Profile. These proofiles can bee used to commpare
between agencies, aalthough exaact comparissons are noot always possible due to the difffering
conditionns and policiing methods used. Refer also to Chapter 3: Law Enforcemment Overvieww for
comparisson tables.
Servvice Demandd
Figure 14-33: Violent and Property CCrimes (2007--2009)
An inncrease in poopulation
does not necessarily indicate
an increase in llevel of
demand, such as crimes and
service ccalls. In factt, during
the last three yeaars, the
annual nuumber of criimes and
the nummber of crimmes per
capita haave had a doownward
trend. Ass shown in Fiigure 14-
3, violent crimees and
property crimes have
declined by 39 and 13
1164
City of Oakley
percent respectively. Based on the number of property and violent crimes between 2007 and 2009,
the City had approximately 15 reported crimes per 1,000 residents, while providers countywide
averaged 21 crimes per 1,000 residents. The City averaged 36,165 service calls per year in 2009
and 2010, which is 1,021 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.
There were no special events or periods of particularly high demand reported by the Police
Department.
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 Oakley 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.26 Response times are dependent on the agency’s staffing level and size of
the jurisdiction served. Oakley PD on average responds to Priority 1 incidents within five minutes
and 35 seconds, while law enforcement providers countywide averaged five minutes and 44
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 14-4, Oakley PD had a clearance rate of 49 percent for violent crimes (homicide, forcible
rape, robbery and aggravated assault) committed in 2007, 2008 and 2009, and a clearance rate of
nine percent for property crimes (burglary, motor vehicle theft, and thefts of greater than $400)
during the same period. By comparison, providers countywide on average cleared 38.3 percent of
violent crimes and 10.6 percent of property crimes, meaning Oakley PD solves a significantly larger
portion of violent crimes and fewer property crimes within its jurisdiction than the average of other
providers in the County. 27
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
26 Walker and Katz, 2002.
27 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. 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.
165
Law Enforcement MSR
ranged from 0.7 sworn staff per 1,000 residents in Danville and Lafayette to 2.0 in Kensington CSD.
Oakley PD has a staffing level of 0.8 per 1,000 residents -- below the countywide average of 1.2
sworn staff per 1,000 residents.
166
City of Oakley
Figure 14-4: Oakley Law Enforcement Overview
Oakley Law Enforcement Profile
Service Configuration Service Demand
Patrol Oakley Population (2009) 34,468
Number of Beats 3 Population (2010) 35,432
Dispatch Sheriff Total Service Calls (2009) 36,856
Search and Rescue Sheriff Calls per 1,000 population 1,040
Investigations Oakley Crime Activity
Traffic Enforcement Oakley Arrests (2009) 1,390
SWAT Sheriff Violent Crimes (2009) 71
Temporary Holding Oakley Property Crimes (2009) 427
Long-term Holding Sheriff Traffic Accidents 197
Bomb Squad Walnut Creek PD Violent Crime Rate per 100,0001 769
Canine (K-9) Services Sheriff Property Crime Rate per 100,0001 3,934
Staff Training Sheriff
Animal Control County
Service Adequacy Resources
Avg. Priority One Response Time 5:35 Total Staff (2010) 32
Response Time Base Year 2009 Sworn Staff 28
Clearance Rate of Violent Crimes2 49% Support Staff 4
Clearance Rate of Property Crimes2 9% Volunteers 2
Per Capita Cost (General Fund) $ 207 Sworn Staff per 1,000 population 0.8
Service Challenges
The City did not report any significant challenges to providing law enforcment services.
Facilities
Station Location Condition Built
Headquarters 3231 Main Street Excellent 2008
Oakley, CA
Current Facility-Sharing and Regional Collaboration
The Sheriff makes use of the City's police station. The Oakley PD does not share facilities with any other
agencies.
Opportunities for Facility-Sharing and Regional Collaboration
No further opportunities for facility sharing were identified by the City.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
167
Law Enforcement MSR
15. City of Orinda
The City of Orinda provides a range of municipal services, including law enforcement services
through a staffing contract with the County Sheriff’s 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 central portion of the County. For general
information on the City and related determinations refer to this MSR.
Basic information on the Orinda 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 City of Orinda is a general law city, which was incorporated in 1985. Its boundary area is
approximately 12.8 square miles. The City’s SOI is coterminous with its boundary. (Refer to Map
15-1.)
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,
as the department head for the Police Department (PD), reports to the City Manager. The City has a
law enforcement-related advisory committee called the Traffic Safety Advisory Committee (TSAC),
which meets monthly. TSAC is composed of seven residents of the City appointed by the City
Council. TSAC reviews traffic, pedestrian and traffic safety issues, and makes recommendations to
the City Council.
Constituent outreach efforts are aimed at crime prevention, education about the Department’s
activities, and involving constituents in police efforts. Crime prevention activities are focused on
increased visibility in the community, educating the public on ways to reduce the potential for
crime, and soliciting assistance from the community through programs such as Neighborhood
Watch. Activities in the City include the Citizens Emergency Response Team and Neighborhood
Watch. The Department sponsors a cadet program which teaches different aspects of law
enforcement to youth possibly interested in a career in police work. Additionally, the Department
makes direct contact with senior citizens, and uses social media including Facebook to reach
constituents. The Department makes crime statistics and other information available on its
website, and provides periodic reports to the City Council and TSAC. The PD has just introduced a
‘Home Security Audit’ program in which an Orinda Police Officer will visit a residence to
recommend simple changes to increase a home’s security.
The Department uses a formal complaint procedure developed by the SO, and may receive
complaints from email, 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 his
168
City of Orinda
chain of command. There were no formal complaints in 2008, none in 2009, and one in 2010 which
was exonerated.
Orinda 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
Per the City’s FY 10-11 budget, the Police Department has 16.25 authorized full time equivalent
(FTE) positions, 14.0 of which are sworn personnel and 2.25 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. Police services are provided through a contract
with the Contra Costa County Sheriff's Office for sworn officer staffing. In addition to this staffing,
the Department has 2.25 city employees, which provide clerical support and parking enforcement.
Active reserve officer, cadet, and citizen volunteer programs assist the Department in its service to
the community.
The Department is not broken down into divisions; however, the budget organizes
expenditures by service type – administration, disaster preparedness, community oriented policing,
patrol and K-9 unit, investigation, and animal control. The Department command staff consists of a
Chief of Police who oversees one senior administrative assistant, one community services officer,
two Sergeants, and eleven police officers. The Chief of Police reports to the City Manager, who in
turn reports to the City Council.
The Chief holds regular meetings with his command staff internally, and attends meetings with
other department heads, the City Manager, the City Council, and TSAC. The Department provides
periodic reports to the City Council and TSAC, as requested.
The guiding goals of the Orinda PD for FYs 09-10 and 10-11 are outlined as strategic priorities
in the biennial budget. The goals identify six strategic priorities, each with performance measures
to evaluate the Department’s success in meeting the goals. The strategic priorities are: 1)
implement traffic calming guidelines, 2) assist neighborhood action teams, 3) enhance disaster
preparedness, 4) enhance community outreach, 5) reduce property crimes, and 6) provide healthy
choices for teens. The Department also outlines additional goals for the next year in its annual
report. Goals for 2010 included:
Plan and complete a disaster preparedness table top exercise. Continue to schedule training
for city staff. Continue to keep supplies up to date and to sufficient levels;
Strong emphasis on releasing beneficial crime prevention information to residents and the
business community via the print media - the ‘Orinda Way’ and the City of Orinda website.
Continue to attend neighborhood watch meetings;
With the continued support and cooperation of the community, reduce the number of
property crimes with proactive patrol and investigative procedures;
Update the Department website; and
Continue to work closely with local schools and business community.
All of these additional goals have been put into practice, including the reduction in property
crimes.
Sworn officers are evaluated every four months. The Department puts together an annual
crime and services report, which tracks the workload of the Department as a whole. Performance
of the Department is evaluated during the biennial budget process and at a mid-year review of the
169
Law Enforcement MSR
current budget with city department heads. The Department does not conduct benchmarking or
comparison of services with other law enforcement providers.
In FYs 09-10 and 10-11, the Department planned to improve efficiency by participating in the P-
25 compliant interoperable communications system for Alameda and Contra Costa Counties, and by
streamlining the Live Scan fingerprinting services offered to the community.
Planning documents that guide Orinda PD’s services are the City’s 1987-2007 General Plan, the
Department’s annual report, and a mission statement.
General Plan Service Standards for police are as follows:
Capital facilities and personnel shall be sufficient to maintain an average two-beat minimum
patrol configuration.
Orinda PD currently has sufficient staffing to meet the minimum beat patrol standard.
Financial planning documents include the biennial budget and a capital improvement plan. The
City’s capital improvement program is a multi-year planning program that outlines the City’s
infrastructure needs and provides the City with a financing strategy for these needs. The plan
covers a five-year period and is updated by staff and approved by the City Council annually. Orinda
has a CIP for the period FYs 09-10 – 13-14 consisting of 45 projects, of which one project pertains
to final improvements to the new city hall where the police headquarters is located.
Population and Growth Projections
According to the 2010 Census, the population of the City is 17,643. Over the last 10 years, the
population of Orinda has grown by 0.2 percent.
The City of Orinda is mature and nearing build out. The City identified approximately 645
vacant residentially zoned acres that were available for development, but most of this acreage
consists of residential infill sites in areas with allowable densities ranging from between one and
four dwelling units per acre. This vacant land area represents less than 11 percent of the City's total
land area. The vast majority of this undeveloped acreage is located in hillside areas. Some
development could occur on the Orinda School District–owned Pine Grove site and within the City’s
existing downtown district, including development containing a mixed-use component.
Based on ABAG projections, the City is anticipated to grow by 10 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 19,600 in 2035.
Orinda PD has not had to address substantial growth over the last 10 years. Any future
development and growth, while minimal, could increase response times, especially given the hilly
topography of the potential growth areas.
The PD is invited to evaluate and comment on any proposed developments. 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.
There are no potential growth areas outside of the City’s boundaries, as the SOI is coterminous
with the city limits, and there are no unincorporated islands within the City. (Refer to Map 15-1.)
170
Map 15-1
City of Orinda Boundary and Coterminous Sphere of Influence
CityBoundary(CoterminouswithSOI)
CountyBoundary
OtherCityBoundaries
UrbanLimit Line
SanPabloDam
Rd
LLaaffaayyeettttee
OOrriinnddaa C a
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o
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ThismapwascreatedbytheContraCostaCountyCommunityDevelopment ®
65 b 1 y P C i o n n e tr S a tr C e o e s t, t 3 a 4 7 t C h :5 o M F 9 u l : a o 4 n p o t 8 y r . c 4 C r N 5 e o 5 a o m N r te t m h d 1 u W 1 2 n 0 2 i i n t / : y 0 1 g 6 6 D , / : M 2 e 3 0 v 5 a e . 0 r 3 t 9 lo i 8 n p 4 e m W z, e C nt A ,G 94 IS 55 G 3 r - o 0 u 0 p 95 its r t e a a p b x c r a c r o a s u d e t r e u a D d c c a e a e y r p t d . e a a T a , i r n s h t p m . i i r s t W i s e m m n c h a t u a i r l w p e i r l r y i e t c o h C n o b t n d i l t i s y g a ta t a t a L a in t t i e e m s f d ro i i c f t t m o s o t , h p u i e t y s h s r s e i e d g o e h C t u h r t o i r e i v c s n d e e t d d r i i a a n s f f t r C a o c o r i o m t m th e s d e a t t a h t . i C e o U C o n C s o u e a u A n r n n t s y S d ty o t a m a f G s t t a e s h IS y u i B s m n P o m o e r a o t s a r g b d p n r e o a o a a f m g r E l e r t . e e s q e r S p u e o a o t d o n l m . iz s r e a e i I b t t a i i m l o d it n a y a ' y s n fo d b r e 0 0.5 1 Miles
accepttheCountyofContraCostadisclaimerofliabilityforgeographicinformation.
Law Enfoorcement MSRR
Finaancing
The DDepartment’ss services arre financed pprimarily thrrough the Geeneral Fund (95 percentt) and
augmenteed by two sspecial revennue funds - the Supplemental Laww Enforcement Services Fund
(SLESF)//AB 3229 Funnd and the VVehicle Replacement Fundd. Combinedd, these two ffunds contribbuted
$199,3322 to PD expennditures in FFY 09-10. Revvenues are aalso collectedd from policee fees and charges
($19,873 projected iin FY 09-10), vehicle annd parking ffines ($142,,132 projectted in FY 099-10),
vehicle license fees ($$58,360 projjected in FY 09-10),and vehicle abattement fees (($2,386 projected
in FY 09-10), and are considered GGeneral Fundd monies.
Fiigure 15-1: OOrinda PD Expenditures (FYs 08, 09, & 10)
Expennditures ovver the last
three fisccal years deeclined in FYY
08-09, thhen rebounded in FY 09-
10, as shhown in Figuure 15-1. Inn
FY 09-10, the primaryy expense forr
the Depaartment was the contractt
payment to the Sheriff’s Office of
$3 millioon, or 85 peercent of alll
expendituures. Other eexpendituress
were Cityy employee salaries andd
benefits (four percent), servicess
and mateerials (nine ppercent), andd
internal sservices (twoo percent).
Whilee the City dooes not havee
long-termm debt relatted solely too
law enforrcement servvices, in 20055
the City issued Ceertificates of
Participation in the ammount of $9..8 million forr the new cityy hall, whichh the PD sharres with otheer city
departmeents. The Ciity entered into a lease wwith the Orinda Facilitiees Financing Corporationn (the
financingg agency) andd agreed to leaseback thee City Hall sitte after the ccompletion oof the buildinng. At
the end of the lease,, the buildinng will belonng to the City. The Genneral Fund llease paymeent of
approximmately $620,0000 per year is serviced bby property ttax revenuess and maturees in 2035.
Orindda takes parrt in the Municipal Pooliing Authoritty of Northeern California, a joint poowers
authorityy for risk mannagement coverage.
Law EEnforcemeent
Natuure and Exteent
The PPolice Department is reesponsible ffor providingg law enforrcement servvices in the City,
includingg crime preveention, parking and trafffic control, community aawareness, annd investigations.
The City provides laww enforcement functionns with sworrn personnel from the SSheriff’s Office by
contract. Orinda coontrols the specifics of delivery off law enforccement servvices in the City.
Specializeed functionss such as SSpecial Weappons and TTactics (SWAAT) Team aand forensics are
provided by the Sherriff’s office aas part of thee contract seervices. Thee Departmennt reported tthat it
does not collaborate wwith other prroviders in thhe region.
1172
City of Orinda
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
Orinda “critical incident” in which a request has been made for “mutual aid.”
Orinda PD does not provide contract services to other agencies.
Patrol
Orinda PD patrols 12.7 square miles which are divided into two beats. Two teams with one
sergeant and four officers work four 10-hour shifts with an overlap day on Wednesdays. A traffic
control officer is on duty on weekends.
Staffing
Figure 15-2: Orinda PD Staffing Levels
Over the last three fiscal years Position FY 08-09 FY 09-10 FY 10-11
(09, 10, 11), unlike other city
Chief 1 1 1
police departments, Orinda has
Sergeant 2 2 2
been able to maintain stable
Detective 1 1 1
staffing levels with little variation
from year to year. (Refer to Police Officer 8 8 8
Figure 15-2.) Staffing levels are K-9 Officer 1 1 1
determined during the budget Reserve Officer 3 3 2
process, and must be justified
Community Services Officer 1 1 1
each year. Orinda PD presently
Traffic Control Officer 1 1 1
employs 0.8 sworn officers per
Office Support Staff 1 1 1
capita, and has been able to
maintain its sworn force. TOTAL 19 19 18
Location
Orinda PD provides services throughout the City’s territory. The Department does not have any
mutual aid agreements with other providers. The Department has an automatic aid agreement with
the Contra Costa County Office of the Sheriff.
The Department reported that outlying hillside areas are particularly challenging to serve given
the topography.
Infrastructure
Orinda PD operates out of City Hall at 22 Orinda Way, which is shared with other city
departments. The police headquarters was built in 2007 and is considered to be in excellent
condition. The Department reported that there is a need for separate restrooms (they currently
share with City Hall staff), an additional evidence locker area, and a secure reception area.
There are no plans for significant capital improvements to the police facility or additional
facilities before 2014, based on the City’s capital improvement plan.
The Department did not report any needs related to vehicles or equipment. The patrol vehicle
parking area is currently not secure, but the Department reported that it had not been an issue. The
service life of patrol vehicles has been extended from 80,000 miles to 100,000 miles.
173
Law Enfoorcement MSRR
Servicce Demand and Serrvice Adeqquacy
Each law enforcemment agencyy has been evvaluated usinng a numberr of factors. These factorrs are
indicatedd in Figure 155-4: Orinda Law Enforceement Profile. These proofiles can bee used to commpare
between agencies, aalthough exaact comparissons are noot always possible due to the difffering
conditionns and policiing methods used. Refer also to Chapter 3: Law Enforcemment Overvieww for
comparisson tables.
Servvice Demandd
Figure 15-33: Violent and Property CCrimes (2007--2009)
Durinng the last three
years, thhe annual nuumber
of crimess and the nuumber
of crimess per capitaa have
generallyy declined. As
shown inn Figure 15--3, the
number of violent ccrimes
decreasedd then rebouunded
over this time pperiod,
while tthe numbeer of
property crimes declined
by 11 peercent. Based on
the nummber of prooperty
and vviolent ccrimes
between 2007 and 2009,
the City hhad approximmately
11 reportted crimes per 1,000 residents, whilee providers ccountywide aaveraged 21 crimes per 1,000
residentss. The City aaveraged 16,,200 service calls per year in 2007, 22008 and 20009, which iss 919
service calls per 1,0000 residentss. By compaarison, servicce providerss countywidee averaged 1,500
service caalls per 1,0000 residents dduring the same time period.
Servvice Adequaccy
Adequacy of law enforcement services caan be evaluaated based onn a number of elements. For
the purposes of this report, servvices provideed by Orindaa PD are asssessed accorrding to respponse
times, cleearance ratess (the portionn of crimes solved) and staffing ratioss.
Althoough police rresponse timmes for serioous crimes inn progress aare an imporrtant indicattor of
service aadequacy, theere are not clear standaards as to wwhat that response time should be. PPolice
response times were traditionallyy used to measure effecctiveness. Hoowever, moree recent research
indicates that responnse time does not have a significannt effect on crime-solvinng, because most
crimes arre “cold” criimes and victims do noot tend to caall police immmediately aafter the crimme is
committeed. The moddern approach to responnse time—ddifferential rresponse—iss to ensure quick
response to serious ccrimes (Priorrity 1) in proogress, whenn there are oopportunities to save a vvictim
and/or too apprehendd the criminaal, and to infoorm lower-ppriority calleers (Priority 2 through 6)) that
response time may bee lengthy. Exxperiments indicate that differential response leaads to both ciitizen
and officeer satisfactioon. Response times are ddependent onn the agencyy’s staffing levvel and size oof the
jurisdiction served. OOrinda PD onn average ressponds to Prriority 1 inciddents withinn five minutees and
thirty-thrree seconds, while law eenforcement providers countywide aaveraged fivee minutes annd 44
seconds ffor Priority 11 incidents.
1174
City of Orinda
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 15-4, Orinda PD had a clearance rate of 39 percent for violent crimes (homicide, forcible
rape, robbery and aggravated assault) committed in 2007, 2008 and 2009, and a clearance rate of
five percent for property crimes (burglary, motor vehicle theft, and thefts of greater than $400)
during the same period. By comparison, providers countywide on average cleared 38.3 percent of
violent crimes and 10.6 percent of property crimes, meaning Orinda PD solves a slightly larger
portion of violent crimes within its jurisdiction and less property crimes than the average of other
providers in the County.28
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 0.7 sworn staff per 1,000 residents in Danville and Lafayette to 2.0 in Kensington CSD.
Orinda PD is below the countywide average of 1.2 sworn staff per 1,000 residents, with a sworn
staff to resident ratio of 0.8.
28 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. 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.
175
Law Enforcement MSR
Figure 15-4: Orinda Law Enforcement Overview
Orinda Law Enforcement Profile
Service Configuration Service Demand
Patrol Sheriff Population (2009) 17,616
Number of Beats 2 Population (2010) 17,643
Dispatch Sheriff Total Service Calls (2009) 16,200
Search and Rescue Sheriff Calls per 1,000 population 920
Investigations Sheriff Crime Activity
Traffic Enforcement Sheriff Arrests (2009) 152
SWAT Sheriff Violent Crimes (2009) 13
Temporary Holding Orinda Property Crimes (2009) 163
Long-term Holding Sheriff Traffic Accidents 57
Bomb Squad Sheriff Violent Crime Rate per 100,0001 181
Canine (K-9) Services Sheriff Property Crime Rate per 100,0001 3,000
Staff Training Sheriff
Animal Control County
Service Adequacy Resources
Avg. Priority One Response Time 7:02 Total Staff (2010) 18
Response Time Base Year 2009 Sworn Staff 14
Clearance Rate of Violent Crimes2 39% Support Staff 2.25
Clearance Rate of Property Crimes2 5% Volunteers 2
Per Capita Cost (General Fund) $ 229 Sworn Staff per 1,000 population 0.8
Service Challenges
The Department reported difficulties with serving outlying hillside areas.
Facilities
Station Location Condition Built
Main Station 22 Orinda Way Excellent 2007
Orinda, CA
Current Facility-Sharing and Regional Collaboration
Orinda PD has a contract with Contra Costa County Sheriff's Department, and shares facilities with other city
departments in City Hall.
Opportunities for Facility-Sharing and Regional Collaboration
The Department has not identified any future opportunities for facility sharing or regional collaboration.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
176
City of Pinole
16. City of 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.contracostalafco.org)
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 SOI 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. The City does
not have a law enforcement-related advisory commission or committee. John Hardester is the Chief
of Police, who was appointed in April 2011 to replace retiring Chief Paul Clancy.
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 Department has a Community Preservation and Safety Unit (CPSU),
which works in partnership with the community to enhance the quality of life in the City by
improving safety and removing blight. The Unit oversees code enforcement, 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 Department also maintains a column in the local newspaper to inform and update constituents.
The Department makes crime statistics and other information available on its website.
If a constituent has a complaint regarding the Department or its employees, the complaint may
be submitted by e-mail, phone or in person. All complaints are referred to the Chief for review and
177
Law Enforcement MSR
follow-up action. For the Pinole PD, in 2007 there were 11 complaints in which one was sustained;
for 2008 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.
Planning and Management Practices
Per the City’s FY 08-11 budget, the PD has 52.0 authorized full time equivalent (FTE) positions
of which 30.0 are sworn officers and 22.0 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; 8) 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 18-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 reduce costs, improve efficiencies, and reduce demand on staffing resources, the
Department is working to minimize overtime and has installed surveillance cameras at a senior
center and in the Fitzgerald Avenue area.
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:
178
City of Pinole
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 does not presently meet the General Plan response time standard. The PD has
demonstrated adherence to the second standard through the Community Preservation and Safety
Unit (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.
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 County-wide 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.
Two areas outside the City’s boundaries but within its SOI are located between Richmond and
Pinole and are largely built out with older single-family residences. These areas are classified as
‘unincorporated islands’ and are described as follows:
Bayview, Montalvin Manor and Tara Hills are three adjacent census designated places
(CDP’s), located between Interstate 80 and San Pablo Bay, and all within the Pinole SOI.
These three areas total approximately 822 acres and a 2010 population of 9,756. This is
179
Law Enforcement MSR
an unincorporated island with the City of Pinole City Limit on three sides and the
Richmond City Limit on the fourth side.
El Sobrante is a CDP on the east side of I-80 of which the northern portion (north of
Manor Road) within the Pinole SOI. The remainder of the El Sobrante CDP is within the
Richmond SOI. This area contains approximately 240 acres and an estimated
population of 1,740. El Sobrante is an unincorporated island with Richmond on three
sides and Pinole on the fourth side. (Refer to Map 16-1.)
Neither of these unincorporated islands qualifies for the streamlined annexation procedures
under Government Code Section 56375.3 because they are more than 150 acres in size and
therefore, will require consent of a majority of the property owners along with a majority of the
registered voters within the island in order to annex to Pinole.
According to the City’s General Plan, these unincorporated areas (El Sobrante, Tara Hills,
Montalvin Manor, and Bayview) are primarily residential areas designated mainly low density
residential with two commercial areas. Key revenues—property and sales tax—are lower on
average than within the City. Without the potential for redevelopment or the negotiation of a more
favorable property tax split with the County, annexation of these areas would not be cost effective,
and it may be challenging for the City to provide adequate levels of services to these areas without
impacting services to current residents.
The composite population of the unincorporated area within the Pinole SOI is approximately
11,500. Law enforcement services to these areas are provided by the Contra Costa County Sheriff’s
Office (SO). These areas receive regular beat patrol services from the SO. These areas are also
within County Service Area P-6, the county-wide police services district. There are 11 P-6
assessment zones in the El Sobrante area; however, they do not currently generate sufficient funds
to warrant enhanced police services by the addition of Resident Deputies.
The El Sobrante voters turned down a ballot measure at the 2010 Primary Election (Measure
E), which proposed a special tax for a period of five years to fund police protection services. The
measure was defeated with 52.56% No votes; and required a two-thirds affirmative vote to pass.
The SO reports that serving these unincorporated islands and pockets does not pose any
significant problems because they have been serving these areas for a considerable period of time.
Both the Pinole PD and the SO indicated that these areas are not difficult to serve as each agency is
knowledgeable of its respective service areas.
180
Map 16-1
City of Pinole Boundary and Sphere of Influence
By LAFCO action on 11/18/2009,
City Boundary City of Pinole boundary and SOI
City Sphere of Influence approved.
Other City Boundaries
County Boundary
Urban Limit Line
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reproduced in its current state if the source is cited. Users of this map agree to read and
accept the County of Contra Costa disclaimer of liability for geographic information.
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 not 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 of PPinole
FFigure 16-1: PPinole PD Expenditures (FYs 08, 09, & 10)
Expennditures ovver the lasst
three fisccal years have declined byy
5.8 perceent, from $88.1 million inn
FY 07-088 to $7.7 milllion in FY 099-
10, as shoown in Figurre 16-1. In FYY
09-10, thhe primary expenses for
the Depaartment werre personneel
(85 peercent), suupplies andd
services (13.5 perccent), capitaal
outlays (lless than twoo percent).
The City had appproximatelyy
$58.1 milllion in long--term debt aat
the end of FY 09-10, none oof
which was relateed to laww
enforcemment servicess.
The City engagges in joinnt
financingg arrangemeents related to insurancce. The City is a membber of the MMunicipal Poooling
Authorityy, a joint powwers authoritty, for liabilitty and workeers compensaation insurannce.
Law EEnforcemeent
Natuure and Exteent
The PPolice Department is reesponsible ffor providingg law enforrcement servvices in the City,
includingg crime prevvention, parkking and trafffic control, ccommunity aawareness, sstaff trainingg, and
investigations. The DDepartment cconducts emeergency prepparedness inn collaboratioon with the CCity of
Hercules.. The Policee Departmennt recently took on the responsibilitty of code enforcement. The
Code Enfforcement divvision enforcces a number of laws perrtaining to reesidential prroperty withiin the
City. Pinoole PD is alsoo involved inn the East Bayy Regional Coommunicatioon System.
The Department relies on tthe Sheriff’s Office for search and rescue servvices, the Sppecial
Weaponss and Tacticss (SWAT) Teeam, and lonng-term holdding facilitiees, County Annimal Controol for
animal seervices, and the City of WWalnut Creek for bomb squad servicces. Pinole PPD also conttracts
with Conttra Costa Couunty Crime LLab for speciaalized services.
The SSheriff’s Depaartment alsoo provides safety servicess within the CCity by respoonding to a CCity of
Pinole “crritical incident” in which a request haas been madee for “mutuall aid.”
Pinole PD providdes contractt dispatch sservices to tthe City of Hercules. Additionallyy, the
Departmeent providess two school resource offficers in the local schools, through a partnershipp with
West Conntra Costa Coounty School District.
PPatrol
Pinole PD patrols 5.3 square mmiles, which are divided into three beeats – one onn each side oof I-80
and one for the commmercial areaa. There aree four patroll teams to prrovide continuous patrool and
response to calls in thhese three arreas.
1183
Law Enforcement MSR
Staffing
Figure 16-2: Pinole PD Staffing Levels
Over the last three FYs (09, 10, Position FY 08-09 FY 09-10 FY 10-11
11), due to financing constraints, the Chief 1 1 1
Department has been forced to Deputy Chief 0 1 0
reduce staffing by a total of eight
Commander 2 1 2
positions; however, the Department
Lieutenant 0 1 0
has been able to retain its sworn
Sergeant 6 5 6
staffing level as only two of the eight
Detective 3 3 3
positions were sworn officers.
(Refer to Figure 16-2.) Police Officer 19 18 16
K-9 Officer 1 1 1
While the Department makes use
School Resource Officer 2 2 3
of crime statistics to determine
Lead Dispatcher 0 1 1
necessary staffing levels and seeks
input from PD employees when Dispatcher 8 7 6
determining staffing, in the last few Community Services Officer 3 2 0
years, staffing has largely been Traffic Control Officer 1 1 0
determined by available financing. Lead Records Specialist 0 1 0
Pinole PD presently employs 1.7
Records Specialist 3 2 2
sworn officers per 1,000 capita. The
Property Specialist 0 0 1
proposed budget for FY 11-12
Office Support Staff 2 1.5 1
recommends the elimination of two
Community Safety Specialist 2 2 2
additional sworn officers, which
Code Enforcement Officer 0 0 1
would reduce the staffing ratio to 1.6
sworn officers per 1,000 capita. Crossing Guard 0.5 0.5 0.5
Support Services Manager 0 1 1
Police Services Supervisor 2 0 0
Location
TOTAL 55.5 52 47.5
Pinole PD provides services
throughout the City’s territory, and in addition, provides services outside its boundaries through
mutual aid agreements. These joint mutual aid agreements include: 1) the California Office of
Emergency Services 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.
Pinole Police regularly provide emergency “first in” response to East Bay Regional Parks areas
and are also responsible for responding to criminal activity on Interstate 80.
The Department identified the area along North Rancho Road as being a challenge to serve, due
to limited access through the community of El Sobrante.
Infrastructure
Pinole PD operates out of a police and fire headquarters building at 880 Tennent Avenue, which
it shares with the City Fire Department. The building was identified as being in good condition,
with adequate space for the Department’s needs.
The City’s General Plan identifies several anticipated infrastructure needs, including:
Expansion of and improved access to the secured patrol parking area,
184
City of PPinole
Expansion of the Propertyy/Evidence RRoom and ennhanced facillities to ensuure safe storaage of
mmaterial,
UUpgrades andd/or changes to the compputer-aided ddispatch and records mannagement syystem,
annd
Equipment uppgrades to paarticipate in the East Bayy Regional Coommunicatioon System, aa Joint
Powers Authoority (JPA) esstablished to improve intter-agency emmergency communicationn.
Theree are no plaans for significant capitaal improvemments to the police facilities before 22015,
based on the City’s caapital improvvement plan.
The DDepartment did not repport any neeeds related tto vehicles or equipmennt. Vehicless and
equipmennt are kept within a seecure area aadjacent to tthe police bbuilding. Thhe Departmeent is
monitorinng the mileaage of patrool vehicles too insure thaat the fleet iis ‘rotated ffor use’ by ppatrol
officers inn order to evvenly distribuute the mileaage, which exxtends their sservice life accordingly.
Servicce Demand and Serrvice Adeqquacy
Each law enforcemment agencyy has been evvaluated usinng a numberr of factors. These factorrs are
indicatedd in Figure 16-4: Pinole Law Enforceement Profilee. These proofiles can be used to commpare
between agencies, aalthough exaact comparissons are noot always possible due to the difffering
conditionns and policiing methods used. Refer also to Chapter 3: Law Enforcemment Overvieww for
comparisson tables.
Servvice Demandd
Figure 16-33: Violent and Property CCrimes (2007--2009)
Durinng the lastt three
years, thee annual number of
crimes aand the nummber of
crimes peer capita havve had a
downwarrd trend. Ass shown
in Figure 16-3, whhile the
number of violent crimes
fluctuatedd over thiis time
period, the numbber of
property crimes has ddeclined
by almost 19 percentt. Based
on the nnumber of pproperty
and violeent crimes bbetween
2007 andd 2009, the CCity had
approximmately 31 rreported
crimes peer 1,000 residents, whilee providers countywide averaged 211 crimes perr 1,000 residdents.
The City averaged 122,700 servicee calls per year in 2007, 22008 and 20009, which iss 689 servicee calls
per 1,0000 residents. By comparisson, service pproviders couuntywide avveraged 1,5000 service callls per
1,000 ressidents durinng the same ttime period.
The DDepartment reported thhat there arre no periodds or eventss that have particularly high
demand ffor police serrvices.
1185
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 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.29 Response times are dependent on the agency’s staffing level and size of
the jurisdiction served. Pinole PD on average responds to Priority 1 incidents within six minutes
and 20 seconds, while law enforcement providers countywide averaged five minutes and 44
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 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. 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 violent
and significantly more property crimes within its jurisdiction than the average of other providers in
the County. 30
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 0.7 sworn staff per 1,000 residents in Danville and Lafayette to 2.0 in Kensington CSD.
Pinole PD is above the countywide average of 1.2 sworn staff per 1,000 residents, with a sworn staff
to resident ratio of 1.7.
29 Walker and Katz, 2002.
30 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. 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.
186
City of Pinole
Figure 16-4: Pinole Law Enforcement Overview
Pinole Law Enforcement Profile
Service Configuration Service Demand
Patrol Pinole Population (2009) 18,442
Number of Beats 3 Population (2010) 18,390
Dispatch Pinole Total Service Calls (2009) 12,700
Search and Rescue Sheriff Calls per 1,000 population 689
Investigations Pinole Crime Activity
Traffic Enforcement Pinole Arrests (2009) 1,276
SWAT Sheriff Violent Crimes (2009) 94
Temporary Holding Pinole Property Crimes (2009) 395
Long-term Holding Sheriff Traffic Accidents 118
Bomb Squad Walnut Creek PD Violent Crime Rate per 100,0001 1,847
Canine (K-9) Services Pinole Property Crime Rate per 100,0001 7,001
Staff Training Pinole
Animal Control County
Service Adequacy Resources
Avg. Priority One Response Time 6:20 Total Staff (2010) 48
Response Time Base Year 2009 Sworn Staff 32
Clearance Rate of Violent Crimes2 37% Support Staff 16
Clearance Rate of Property Crimes2 16% Volunteers 6
Per Capita Cost (General Fund) $ 355 Sworn Staff per 1,000 population 1.7
Service Challenges
The most significant challenge to services for Pinole PD is the significant financing constraints that have
forced the PD to attempt to maintain service levels with reduced staff.
Facilities
Station Location Condition Built
Public Safety 880 Tennent Avenue, 2nd Floor Very Good 2005
Facility
Current Facility-Sharing and Regional Collaboration
Pinole PD collaborates with the Hercules PD on emergency preparedness and participates in the East Bay
Regional Communication System. The PD shares its headquarters with the Fire Department.
Opportunities for Facility-Sharing and Regional Collaboration
The City did not identify any opportunities for further facility sharing.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
187
Law Enforcement MSR
17. City of Pittsburg
The City of Pittsburg 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 Pittsburg 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 Pittsburg is a general law city, which was incorporated in 1903. Its boundary area is
approximately 17.2 square miles (land only). The City’s SOI extends beyond the city limits in three
areas: to the northwest (which includes the unincorporated community of Bay Point); southwest;
and south. (Refer to Map 17-1.)
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,
as the department head for the Police Department (PD), reports to the City Manager. The City does
not have a law enforcement-related advisory commission or committee.
Constituent outreach efforts are aimed at education about the Department’s activities, crime
prevention, and involving constituents in police efforts. Educational efforts include periodic
newsletters, website postings, and neighborhood and business group meetings. For the past four
years the City has issued a newsletter called “Anchor Lines” that identifies problems of community
concern and offers solutions from a variety of perspectives, including the Police Department.
Additionally, division commanders from the PD serve on the Board of Directors of a nonprofit
academy designed to divert children from the criminal justice system. Pittsburg PD reported that
crime prevention is an ongoing program by all levels of personnel within the Department. There is
a particular focus on prevention at local events such as car shows, farmers markets, school
programs and festivals, businesses, and in the neighborhoods. Perhaps the most innovative crime
prevention program is the use of recording cameras at 82 locations throughout the City to monitor
incidents and crimes in progress. A state of the art viewing center is located in the PD, and cameras
are mounted at select locations throughout the City.
If a constituent has a complaint regarding the Department or its employees, complaints are
taken in person, by phone, or via email, and directed to a supervisor, who forwards the information
to the Chief. The Police Chief is the person responsible for the disposition of complaints. The Chief
may direct that an internal affairs investigation be commenced, or refer it one of the Captains for
188
City of Pittsburg
further investigation depending on the nature of the complaint. For the Pittsburg PD, in 2008 there
were two complaints both of which were not sustained; and in 2009 there were nine complaints in
which eight were not sustained and one was sustained.
Pittsburg 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
Per the City’s FY 2010-11 budget, the Department has a total of 96.0 full time equivalent (FTE)
positions of which 75.0 were sworn officers and21.0 were support staff. Authorized positions may
not correlate directly with positions by type as reported by the Department due to part-time
positions and vacancies. Pittsburg PD does not have volunteer program, but is supplemented by six
reserve officers.
The Department is divided into three bureaus: Administration, Operations, and Support
Services. The Police Department also oversees the Code Enforcement Division. Pittsburg PD does
not maintain an organizational chart of the chain of command of the Department. The
Administration Bureau responsibilities include emergency services, recruiting and hiring, training,
special projects, and financial management. The Operations Bureau consists of the patrol and
traffic enforcement functions of the Department. Support Services consists of the Records and
Investigations Divisions. The function of the Investigations Division is to perform follow-up
investigations into serious and involved crimes that cannot be handled by patrol officers alone. The
Records Division manages the public lobby front counter, fingerprinting, and all police records
management.
The Department was reorganized in July of 2003 when community policing practices were
adopted to improve delivery of essential police services and maximize community relations. The
Chief eliminated the rank of Commander, so that now Captains command the Support and
Operations Bureaus, with Lieutenants serving as watch commanders. The Department is divided
into two uniform community policing teams each consisting of a Supervising Sergeant and three
officers. Another team consisting of a Sergeant and seven officers is assigned to preventative patrol
duties designed to reduce criminal activity. The Department attributes the department
reorganization with the decline in reported crime and improved community relations over the last
few years. These improvements are measured by monthly statistical analysis and by continuous
community feedback.
The Chief holds weekly meetings with staff in order to address issues at all levels within the
Department. The Police Chief also has a weekly ride-along-program with the City Manager to
routinely inspect, discuss, and resolve problems at locations where safety conditions are of concern.
The Chief maintains e-mail contact with the City Manager and the City Council daily, apprising them
of emergencies and life threatening events that may affect the City.
Objectives are recognized through various venues including command meetings, formal and
informal community meetings, and meeting with community leaders, criminal analysis, and
personnel needs. The Pittsburg PD has codified six-month goals that are presented to the City
Council along with a monthly progress report. These goals are developed through formal goal-
setting command meetings, and by review of statistical data. Needs are then identified and
translated into goals, which are reported on, completed, and reviewed for the next goal setting
cycle.
189
Law Enforcement MSR
Pittsburg PD performs regular employee evaluations annually from the date of hire. The
Department currently does not generate a monthly or annual report, other than those required by
the State and FBI. The Department reported an interest in evaluating the need for a more
comprehensive and detailed workload reporting system, which will be considered in the future as
resources permit. The Department’s performance is evaluated yearly during the budget process.
Additionally, operational methods and techniques are routinely evaluated by the Chief and the
division captains.
The Department is capitalizing on automation and available technology to increase efficiencies.
One example of innovative efficiency is the hiring of retired officers (annuitants at 960 hours per
year) to take certain types of non-active crime reports over the phone. Four of the retired officers
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. These two retired
officers are also assigned as ‘motor’ officers to enforce traffic laws. This program keeps regular
officers available in the field to respond to emergency calls for services, perform directed
preventative patrol in high crime areas, and to make more on-view arrests for serious offenses.
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 become immediately available for forwarding to
other agencies including the District Attorney.
Planning documents that guide Pittsburg PD’s services are the City’s 2020 General Plan, which
was updated in 2004, and a departmental mission statement.
General Plan Service Standards for police are as follows:
Strive to maintain a ratio of 1.8 sworn police officers per 1,000 residents, and
Maintain, modernize, and designate new sites for emergency response facilities, including
fire and police stations, as needed to accommodate population growth.
Pittsburg PD does not currently meet the adopted force level standard with a current sworn
staff ration of 1.2 per 1,000 population.
Financial planning documents include the annual budget and a capital improvement plan. The
City’s capital improvement program is a multi-year planning program for the construction of new
facilities and infrastructure, and for the expansion, rehabilitation, or replacement of City-owned
assets. The plan covers a five-year period from FY 2009-10 to 2013-14. Of the projects outlined in
the CIP, there are no planned projects related to law enforcement facilities or equipment.
Population and Growth Projections
According to the 2010 Census, the population of the City is 63,264. Over the last 10 years, the
population of Pittsburg has grown by 14 percent.
The Department reported that due to the recent recession, the minimal development and
growth patterns have had little impact on service demand. The City reported that existing
population growth is limited to the redevelopment of downtown, which consists of a large mixed
use commercial and residential condominium project that is nearing completion this year.
Based on ABAG projections, the City is anticipated to grow by 44 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 96,700 in 2035.
190
Map 17-1
City of Pittsburg Boundary, SOI, and Urban Growth Boundary
By LAFCO action on 7/8/2009,
Pittsburg Urban Growth Bnd
City of Pittsburg boundary and
SOI approved. Pittsburg City Boundary
Pittsburg Sphere of Influence
Willow Pass Rd N Parkside
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This map was created by the Contra Costa County Community Development
65 b 1 y C P o in n e t r S a t r C e o e s t, t 3 a 4 7 t C : h 5 o 9 F M u : l 4 n o a 8 t o p y . r 4 c C N 5 re o o 5 a m N rt t h m e d 1 W u 2 n 8 i 2 / n it 1 : y g 0 1 , 6 D / M 2 :3 e 0 a 5 v 0 r e . 9 3 t l i o n 8 p e 4 m z W , e C n A t, G 94 IS 55 G 3 r -0 o 0 u 9 p 5 its r t e a a p x b c r a c r o a s u d e t r u e a D c d c a e e a y r p d t e . a a a T i , r n s h t p m . i i r t s W i s e m m n c h a t u a i r l w r e i p l r y i e t o c h n C o b t d n l i i t s g t a y a t a t a L a i t n t e i e m s f d r o i i c f t t m s o o th , p u e t i y s h s r s e i e d g o e h C t u h r t o r i e i v c s n d e e t d d r i i a n a s f f t r o a C c o i r o m t t m e h s d e a t t a h . t C i e U o C o n s C o u e a u A n r n n s t y S t d y o t a m a f G s t t a e s h IS y u i B s m n P o m o e r a o t a s r g d b p n r e a o a o m f a g r E l r e t . e e s q e r S p u e o t o a d o n m l . i z s r e e i a I b t a t i i m l o d it n a y a ' y s n f o d b r e 0 0.5 1 2 Miles
accept the County of Contra Costa disclaimer of liability for geographic information.
Law Enforcement MSR
Pittsburg Police Department’s capacity to serve any new growth will depend on the scenario
and size of the development. The Department would reportedly work closely with the Planning
Department and other city departments to evaluate infrastructure needs, traffic flow impacts,
projected population growth, and any other factors of concern, which impact law enforcement
service delivery. The Department reported that it takes a proactive role in reviewing and
evaluating new development, and all impacts that may result.
Law enforcement services to the Bay Point community (population 21,349) are provided by the
Contra Costa County Sheriff’s Office (SO), and are augmented by additional patrol deputies funded
through County Service Area P-6. (Refer to CSA P-6 in Chapter 23.) Consideration for annexing Bay
Point to the City of Pittsburg has occurred in the past, but such a proposal is not currently being
considered.
Financing
The current level of service funding is considered to be adequate by the Department. Budget
constraints have not yet had a significant impact on the level of service or equipment funding. The
City has been able to maintain consistent financing levels for the Police Department through FY 10-
11, in part through the use of almost $2.8 million in one-time monies ($1.5 million in land sale
proceeds plus almost $1.3 million in Budget Stabilization funds.) While the City of Pittsburg is
fortunate to have these one-time funds available to balance its General Fund budget, it recognizes
that it cannot continue to rely on receiving the same levels of one-time funds to balance future
budgets. Consequently, the Department is expecting at least a five percent budget reduction for FY
11-12. Pittsburg PD is studying options and alternatives to the delivery of essential police service
to conform to the City Manager’s request of five percent budget cuts for each department.
Ninety-seven percent or $19.5 million of the Police Department’s services were financed
through the General Fund in FY 09-10. Revenues are collected from Fines and Forfeitures
($185,659 in FY 09-10) and operating grants and contributions ($491,585 in FY 09-10), and are
considered General Fund monies. The remaining three percent comes from following special
revenue funds and non-major governmental funds (amount from these funds in FY 09-10 shown in
parentheses):
Miscellaneous Grants Fund - This fund receives various small grants to administer the
police, recreation, and public services. ($93,041)
Asset Seizure Fund - This fund was established to administer the seized assets from
criminal activities. ($46,408)
Local Law Enforcement Block Grant Fund - This fund accounts for the funds provided by the
DOJ to supplement local crime prevention and public safety efforts. ($38,713)
San Marco CFD 2004-01 Fund - The receipts of this fund provide funding for the increased
demand of police services in the San Marco Subdivision of the Community Facilities District.
($206,279)
Vista Del Mar CFD 2005-2 Fund - The receipts of the fund provided funding for financing
increasing demands for police services in and for the Vista Del Mar CFD 2005-2. ($53,119)
Public Safety Service CFD 2005-1 Fund - The receipts of this fund provide funding for
financing increasing demands for public safety services within this Community Facilities
District. ($122,321)
U.S. Department of Justice COPS Grant – to fund two police officers for three years with a
grant total of $758,096 over the three year period.
192
City of Pitttssburg
Figuure 17-1: Pitttsburg PD Expenditures (FYs 08, 09, & 10)
Expennditures oveer the last thhree fiscal
years havve steadily inncreased, as shown in
Figure 177-1. A breakkdown of exppenditures
by type wwas not availlable from thhe City for
FY 09-100, as the annnual audit waas not yet
completee for that year.
Pittsbburg does noot have any long-term
debt relatted to law ennforcement sservices.
Pittsbburg maintaains excesss liability
insurancee through the Municipaal Pooling
Authorityy, a joint powwers authority for risk
managemment coveragge.
Law EEnforcemeent
Natuure and Exteent
Pittsbburg PD is reesponsible foor providing law enforcemment servicees in the Cityy, including ppatrol,
crime preevention, parrking and traaffic control, community awareness, iinvestigationns, and temporary
holding ffacilities. Thhe Department is responnsible for commmunity pollicing, has a Special Weaapons
and Tactics (SWAT) Team, and cconducts Emmergency Preeparedness ttraining. Pitttsburg PD iss also
involved in the East BBay Regional Communication System and the Conttra Costa Moobile Field Foorce.
Similaar to other cities, the DDepartment relies on thhe Sheriff’s Office for seearch and rescue
services aand long-termm holding faacilities, Counnty Animal CControl for annimal servicees, and the CCity of
Walnut Creek for bommb squad serrvices. Additionally, Pittssburg PD conntracts with tthe Sheriff’s OOffice
for dispattch services.
The SSheriff’s Depaartment alsoo provides safety servicess within the CCity by respoonding to a CCity of
Pittsburgg “critical inciident” in whiich a requestt has been mmade for “muttual aid.”
Pittsbburg PD doess not providee contract serrvices to other agencies.
PPatrol
Under the Commmunity-orientted Policing philosophy,, Pittsburg PPD patrols 115.6 square miles
which aree divided into nine beats.. Each patrol officer is asssigned to a sspecific beat for a minimuum of
six months. Teams aare deployedd and superrvised by thrree Lieutenaant Watch Coommanders, with
coverage 24-hours pper day, 3655 days per year. Patrool Teams arre augmenteed by the TTraffic
Enforcemment Unit durring peak houurs.
1193
Law Enforcement MSR
Staffing
Figure 17-2: Pittsburg PD Staffing Levels
Pittsburg PD was able to maintain Position FY 08-09 FY 09-10 FY 10-11
stable staffing levels until FY 10-11, Chief 1 1 1
when PD personnel were reduced by 11 Captain 2 2 1
total positions—four positions were
Lieutenant 4 4 4
eliminated and seven were left unfilled.
Sergeant 9 9 8
Eliminated positions were a result of the
Detective 8 10 9
recent reorganization of the Department.
Police Officer 44 42 41
Positions that were eliminated were an
K-9 Officer 4 4 4
administrative assistant, the lead police
Narcotics/Gangs/NPT 4 4 4
records clerk, a police captain, and a
Code Enforcement Officer 1 1 1
police records clerk.
Community Services Specialist 10 11 9
Staffing levels are determined by the Traffic Control Officer 1 3 3
City Council during budget review. Property/Evidence Coodinator 1 1 1
Currently, the Department does not have Records Specialist 13 12 9
a formal program that is used to evaluate Office Support Staff 5 5 3
staffing levels based upon either calls for TOTAL 107 109 98
services or response times to life threatening emergencies or crimes in progress. The City does
have an adopted standard of 1.8 sworn officers per 1,000 capita in the Health and Safety Element of
the General Plan; however, the PD does not presently meet this standard with 1.2 sworn staff per
1,000 residents. The General Plan standard is considered by the City to be a long-term goal rather
than a standard. The City has never attained a 1.8 per 1,000 ratio; and with budget reductions and
crime reductions this number is not realistic. Consideration for changing the standard will be
included in the City’s next General Plan Update.
Location
Pittsburg PD provides services throughout the City’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 California Law Enforcement Mutual Aid Plan; 3)
the County Wide Mutual Aid Program, which is a countywide agreement to provide law
enforcement services to any other provider when needed; and 4) Crowd/Riot Control with a
contribution of two to four officers. The Department does not have any automatic aid agreements
with other providers.
The Department did not identify any areas within the City’s boundaries that are particularly
challenging to serve. Browns Island Regional Shore Line is only accessible by boat; however, the
island in uninhabited and does not create any law enforcement issues. Assistance from the SO
Marine Patrol would ordinarily be requested if necessary.
Infrastructure
Pittsburg PD operates out of a police headquarters at 65 Civic Ave. The headquarters was built
in 2000 and is considered to be in excellent condition. The Department reported that there is a
need to expand the fenced parking lot or enhance security at the front of the facility. Currently,
some patrol units are parked in front of the facility because the secure fenced parking lot lacks
sufficient space. Employees also park in the front of the facility. All vehicles are monitored by use
of video cameras mounted on the facility. There have been incidences of vandalism reported
194
City of Pitttssburg
through tthe years; hoowever, there are no currrent plans too extend seccure parking due to space and
budget coonstraints.
Theree are no planns for significcant capital immprovementts to the poliice headquarrters before 22014,
based on the City’s caapital improvvement plan. There are aalso no plans for additional facilities.
Pittsbburg PD provvides law enfforcement seervices with 61 vehicles——43 sedans, four SUV’s, sseven
motorcyccles, and seven trucks/vaans. The Deppartment didd not report any needs rrelated to vehhicles
or equipmment. Somee of the Deppartment vehhicles and eequipment arre kept withhin a securee area
adjacent to the police building.
Servicce Demand and Serrvice Adeqquacy
Each law enforcemment agencyy has been evvaluated usinng a numberr of factors. These factorrs are
indicatedd in Figure 17-4: Pittsbburg Law Enforcement Profile. Thhese profiless can be used to
compare between ageencies, althouugh exact commparisons are not alwayys possible duue to the difffering
conditionns and policiing methods used. Refer also to Chapter 3: Law Enforcemment Overvieww for
comparisson tables.
Servvice Demandd
Figure 17-33: Violent and Property CCrimes (2007--2009)
Durinng the last thhree years, thhe annual
number of crimes and the nuumber of
crimes per capita haave had a downward
trend. AAs shown in Figure 17-3,, between
2007 annd 2009, violent crimmes and
property crimes, haave declinedd by 40
percent and 12 ppercent, respectively.
Based onn the numbber of propperty and
violent ccrimes between 2007 aand 2009,
the City had approxximately 27 reported
crimes per 1,0000 residentss, while
providerss countywide averaged 221 crimes
per 1,000 residents. The City averaged
72,200 seervice calls pper year in 20007, 2008
and 20099, which is 11,141 servicee calls per
1,000 ressidents. Byy comparisonn, service
providerss countywide averageed 1,500
service caalls per 1,0000 residents dduring the
same timme period.
2010was a 50-yeear low for Paart 1crimes iin Pittsburg. Based on sttatistical dataa prepared bby the
PD, the peak in Part 11 crimes occuurred in 19776 and has beeen trendingg downward ever since. 2010
Part 1 criimes were acctually less thhan in 1960, according too the Departmment data.
The CCity reportedd that there aare no periodds of particulaarly high demmand.
1195
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 Pittsburg 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.31 Response times are dependent on the agency’s staffing level and size of
the jurisdiction served. Pittsburg PD on average responds to Priority 1 incidents within six minutes
and eight seconds, while law enforcement providers countywide averaged five minutes and 44
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 17-4, Pittsburg PD had a 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
10 percent for property crimes (burglary, motor vehicle theft, and thefts of greater than $400)
during the same period. By comparison, providers countywide on average cleared 38.3 percent of
violent crimes and 10.6 percent of property crimes, meaning Pittsburg PD solves a slightly smaller
portion of both violent and property crimes within its jurisdiction than the average of other
providers in the County.32
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 0.7 sworn staff per 1,000 residents in Danville and Lafayette to 2.0 in Kensington CSD.
Pittsburg PD maintains the same staffing ratio of countywide average among other cities of 1.2
sworn staff per 1,000 residents.
31 Walker and Katz, 2002.
32 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. 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.
196
City of Pittsburg
Figure 17-4: Pittsburg Law Enforcement Overview
Pittsburg Law Enforcement Profile
Service Configuration Service Demand
Patrol Pittsburg Population (2009) 62,574
Number of Beats 9 Population (2010) 63,264
Dispatch Sheriff Total Service Calls (2009) 72,200
Search and Rescue Sheriff Calls per 1,000 population 1,141
Investigations Pittsburg Crime Activity
Traffic Enforcement Pittsburg Arrests (2009) 4,406
SWAT Pittsburg Violent Crimes (2009) 151
Temporary Holding Pittsburg Property Crimes (2009) 1,423
Long-term Holding Sheriff Traffic Accidents 809
Bomb Squad Walnut Creek PD Violent Crime Rate per 100,0001 949
Canine (K-9) Services Pittsburg Property Crime Rate per 100,0001 7,177
Staff Training Pittsburg
Animal Control County
Service Adequacy Resources
Avg. Priority One Response Time 6:08 Total Staff (2010) 104
Response Time Base Year 2009 Sworn Staff 75
Clearance Rate of Violent Crimes2 37% Support Staff 23
Clearance Rate of Property Crimes2 10% Volunteers 6
Per Capita Cost (General Fund) $ 318 Sworn Staff per 1,000 population 1.2
Service Challenges
The City did not report any significant challenges to providing law enforcment services.
Facilities
Station Location Condition Built
Police 65 Civic Ave, Pittsburg CA 94565 Excellent 2000
Headquarters
Current Facility-Sharing and Regional Collaboration
The Department uses the Sheriff’s Department facilities for holding of prisoners, firing range training and
qualifications with various weapons, and emergency vehicle pursuit training at their EVO center. Dispatch
services are also provided to the City by the Sheriff's Office.
Opportunities for Facility-Sharing and Regional Collaboration
No further opportunities for facility sharing were identified by the City.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
197
Law Enforcement MSR
18. City of Pleasant Hill
The City of Pleasant Hill 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 central portion of the County. For general information on the City and related
determinations refer to this MSR.
Basic information on the Pleasant Hill 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 City of Pleasant Hill is a general law city, which was incorporated in 1961. Its boundary
area is approximately 8.2 square miles. There are two unincorporated island within the City’s
boundaries. The City’s SOI also encompasses four adjacent unincorporated areas, one in the north
in the Pacheco area, one in the southeast near I-680, and two in the west; a larger area along Reliez
Valley Road and Taylor Boulevard, and a small area along Alhambra Avenue. (Refer to Map 18-1.)
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,
as the department head for the Police Department (PD), 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 the Citizen
Police Program (familiarizing residents with Pleasant Hill PD), the Chaplaincy Program, the
Vacation House Watch Service, and the Community Emergency Response Team Program. Pleasant
Hill PD and Martinez PD co-sponsor an Explorer Program for youth ages 16 to 20 interested in a
career in police work with two officers assigned as advisors. Additionally, the Department uses a
community resource officer to interface with homeless groups, as well as volunteers for police
reserves and clerical duties. In May 2009, the Department implemented a community information
and notification service for broadcasting cell phone text messages and/or e mails to community
members interested in obtaining information on events and crime announcements in Pleasant Hill.
The Department makes police reports, crime reports, crime statistics, and other information
available on its website. The Department uses social media such as Facebook and Twitter to reach
constituents.
If a constituent has a complaint regarding the Department or its employees, complaints can be
made online, emailed to the Police Department, or submitted in person at the police station. The
198
City of Pleasant Hill
patrol sergeant initially investigates the complaints, and then refers the complaints to the patrol
lieutenant for disposition. Pleasant Hill PD received four formal complaints in 2007, six in 2008,
and five in 2009.
Pleasant Hill 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 Department has a total of 61.5 FTEs, of which one position (a community
service officer) was vacant, as of the drafting of this report. Law enforcement services are provided
by 40 authorized sworn positions and 21.5 support positions. The Department is supplemented by
five volunteers for clerical duties, and an Explorer Program co-sponsored with Martinez PD.
The Department is divided into four divisions – Administration, Investigations, Patrol and
Support Services. The Administration Division is managed by the Chief and is responsible for
oversight of the Department’s operations, carrying out the policy and direction of the City Manager
and Council, acting as liaison with citizens and other agencies, budgeting, disciplining, and hiring.
One captain oversees the Investigations, Patrol and Support divisions. Three lieutenants manage
each of these three divisions and report to the captain, who reports to the Chief. Investigations
Division personnel conduct follow up on most felony crimes and present cases to the Contra Costa
County District Attorney’s Office for the filing of charges. The Patrol Division provides a physical
presence throughout the City and responds to calls for service. The Support Services Division
provides dispatching, records, technical services, evidence and property, supplies for the
Department, fingerprinting, bicycle licensing, report processing, and child car seat inspections.
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 Department provides
reports to City Council as requested.
The guiding goals of the Pleasant Hill PD are outlined in the Department’s Strategic Plan, which
was developed during a two-day team building exercise among command staff, supervisors,
officers, civilian managers, and Police Officer Association representatives. The guiding goals
outlined in the plan include 1) increase the recruitment candidate pool by 30 percent, 2) enhance
the Field Training Officer program, 3) implement a staff development program, 4) establish
effective Departmental communications, and 5) formalize a Department Technology Plan. The
Department reports that all elements of the Strategic Plan have been completed except the
candidate pool was increased by 10 percent instead of 30 percent. The PD has developed a staff
development (succession) plan; increased communication by preparing meeting minutes;
conducted regular meetings and team building workshops; developed a replacement plan for
technology including procurement of new interoperable radios; and updated the field training
program.
Sworn officers are evaluated annually. New staff are evaluated every six months during their
18-month probation period. Department workload is tracked monthly, with adjustments made
based on number of calls per officer. The primary objective is keep overtime costs to a minimum.
The Department does not evaluate department wide performance in the form of an annual plan, but
does evaluate success in achieving the goals outlined in the Strategic Plan on a monthly basis.
In order to improve efficiencies, the Department is using technology such as Mobile ID and a
computer mobile dispatch System. Also, the Department is placing emphasis on “problem
resolution” at the patrol officer level in order to cut down on time management must invest in low-
level issue resolution.
199
Law Enforcement MSR
Planning documents that guide Pleasant Hill PD’s services are the City’s 2003-2023 General
Plan, which was updated in July 2003, a departmental strategic plan, and mission statement.
General Plan Service Standards for police are as follows:
Emergency response is to be provided within five minutes, and a 20-minute response is to
be maintained for 95 percent of non-emergency calls.
Pleasant Hill PD currently meets the response time standard for all calls.
Financial planning documents include the biennial budget and a capital improvement plan. The
City’s capital improvement program is a multi-year planning program for the construction of new
facilities and infrastructure, and for the expansion, rehabilitation, or replacement of City-owned
assets. The plan covers a five-year period and is updated by the Engineering Division and approved
by the City Council each year. Pleasant Hill’s current CIP is for the period FY 10-11 – FY 15-16 and
consists of 52 projects, of which three are related to law enforcement activities and are estimated to
cost $1.6 million. These projects are discussed in detail in the Infrastructure section of this chapter.
Population and Growth Projections
According to the 2010 Census, the population of the City is 33,152. Over the last 10 years, the
population of Pleasant Hill has grown by three percent.
The City anticipates that future development will continue to be modest, as the City is almost
entirely built-out. Growth within the boundaries of Pleasant Hill will take place through
development on several currently undeveloped parcels, totaling approximately 200 acres. Of those
200 acres, 82 percent are zoned for residential development of various densities. Additional growth
will take place through rezoning of underutilized parcels.
Based on ABAG projections, the City is anticipated to grow by 23 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 43,200 in 2035.
Although Pleasant Hill PD has had to address minimal residential growth over the last 10 years;
greater levels of traffic due to increased commuter volume are a concern, and traffic enforcement is
a priority for the City.
The Department reviews development plans for traffic and parking issues. A majority of the
City’s recent permit applications are for remodels of existing structures, which have little impact on
law enforcement services. 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.
There is potential for the City to expand to include unincorporated areas within its SOI. The
two unincorporated islands within the Pleasant Hill SOI consist of: a 5-acre area on the east side of
Alhambra Avenue surrounded on the north and east by Pleasant Hill and on the south and west by
Martinez; and a 37-acre island east of the Contra Costa County Club House near the intersection of
Paso Nogal and Golf Club Road. Both of these islands meet the 150 acre size limitation and qualify
for the streamlined annexation procedures under Government Code Section 56375.3.
The northern SOI area is located in the Pacheco area, and is composed of light industrial uses
and low-density multi-family residential uses adjacent to Interstate 680, and high-density single-
family residential uses west of Pacheco Boulevard.
The unincorporated western SOI area is composed of low-density single-family residential uses
and open space and is located in the Reliez Valley Road and Taylor Boulevard area.
200
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Law Enfoorcement MSRR
The ssoutheasternn SOI area is composed of medium-deensity multi--family residdential uses aand is
located eeast of Intersstate 680 in the Waldonn area. Thiss area is parrt of the Conntra Costa Centre
unincorporated islandd discussed iin more detaail in Chapterr 22. (Refer tto Map 18-1 and Map 22--1.)
Finaancing
The DDepartment’ss services arre financed pprimarily thrrough the Geeneral Fund (99 percentt) and
augmenteed by five sppecial revenuue funds – thhe Supplemeental Law Ennforcement Service Fundd, the
Police Sppecial Servicees Fund, the Edward Memorial Justicce Assistance Grant Fund, the Dare FFund,
and the Police Technology Fundd. The purrpose of eacch fund and amount coontributed too law
enforcemment activities in FY 09-100 are as folloows:
Suupplementall Law Enforccement Service Fund - acccounts for fuunds allocateed by the State for
frront-line munnicipal policee services ($0).
Police Speciall Services Fuund - accounts for asset fforfeitures frrom drug-related convictions.
These funds mmay only be uused for drugg-related eduucation and eenforcementt activities ($$0).
Edward Memmorial Justice Assistance Grant (JAG) - accounts ffor revenue and expendiitures
foor this policee grant ($14,1125).
DDare Fund - accounts for funds donated byy individuaals, businessses, and seervice
organizationss, as well as funds raiseed by fundraaising eventss specificallyy for the D.AA.R.E.
program. Typical expendittures are boooks, suppliess, t-shirts forr this anti-druug program iin the
loocal schools (($1,550).
Police Technoology Fund -- accounts foor scheduledd and unscheeduled replacement of raadios,
coopiers, and computer-related technnology for tthe Police DDepartment. Annually, aa flat
ammount is trannsferred fromm the Generaal Fund for thhis purpose (($0).
Traffic Safetyy Fund - accounts for ffines collectted from miisdemeanor traffic violaations
innvolving a mmoving vehiccle. These fuunds are ussed to provide crossing guards at mmajor
sttreets near elementary scchools ($94,9965).
Thosee funds for which no fiinancing was allocated to police exxpenditures in FY 09-100, did
provide ffunding in FYY 08-09, andd are anticipaated to proviide funding iin the futuree. Other reveenues
are colleccted from poolice fees andd fines ($219,100 in FY 09-10) and are considerred General Fund
monies.
Figure 18-1: Pleasannt Hill PD Expenditures (FYs 08, 09, & 10)
PD expenditures over the laast three
fiscal yeaars have graddually increaased each
year, as sshown in Figgure 18-1. IIn FY 09-
10, the primary expenses for the
Departmeent were personnel (90 percent),
supplies and servicess (nine perccent), and
capital ouutlays (less thhan one perccent).
The CCity does not have any long-term
debt relatted to law ennforcement sservices.
Pleasant Hill ttakes part in the
Municipaal Pooling Auuthority joinnt powers
authorityy for insurancce coverage.
2202
City of Pleasant Hill
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 Department is responsible for community policing, staff training, and has temporary holding
facilities. Pleasant Hill PD collaborates with other providers through the East Bay Regional
Communication Project, Contra Costa County Office of Emergency Services, Contra Costa County
Crime Lab, California DOJ/Central Contra Costa County Narcotics Enforcement, and Avoid the 25
DUI Program.
The Department relies on the Sheriff’s Office for search and rescue services, Special Weapons
and Tactics (SWAT), long-term holding facilities and forensics, the County Animal Control for
animal services, the City of Walnut Creek for bomb squad services, and the California DOJ Task
Force for services related to narcotics.
The Sheriff’s Department also provides safety services within the City by responding to a City of
Pleasant Hill “critical incident” in which a request has been made for “mutual aid.”
Pleasant Hill PD provides contract dispatch services to the Contra Costa County Community
College District Police located at the Diablo Valley College Campus. The Department provides out-
of-area services to regional park trails when requested by EBRPD.
Patrol
Pleasant Hill PD patrols 8.2 square miles which are divided into two beats, one on the north and
one on the south. Two single-officer patrol vehicles are on duty for each beat, except between 1:00
AM and 6:00 AM Monday through Thursday when one officer patrols each beat.
Staffing
Figure 18-2: Pleasant Hill PD Staffing Levels
Over the last three FYs (09,
Position FY 08-09 FY 09-10 FY 10-11
10, 11), Pleasant Hill has
Chief 1 1 1
experienced a steady
Captain 1 1 1
reduction in staffing levels.
Lieutenant 3 3 3
(Refer to Figure 18-2.) During
Sergeants 6 6 6
that time, Pleasant Hill PD has
Detective 3 3 3
eliminated 4.5 positions, of
Police Officer/Corporal 24 22 22
which two positions were
K-9 Officer 2 2 2
sworn officers.
Dispatcher 8 8 8
The Department reported
Community Service Officer 5 4 3
that it has an informal goal of
Traffic Control Officer 2 2 2
1.26 sworn officers per 1,000
Office Support Staff 2.5 2.5 2
capita when determining
Information Technology Coordinator 1.5 1.5 1.5
desired staffing levels. This
Records/Support Services Supervisor 1 1 1
goal is not adopted in a
Evidence Technician 1 1 1
planning document, but is
TOTAL 61 58 56.5
evaluated each year during the
budget process. Pleasant Hill PD presently employs 1.2 sworn officers per 1,000 population.
203
Law Enforcement MSR
Location
Pleasant Hill PD provides services throughout the City’s territory, and in addition, provides
services outside its boundaries through mutual aid agreements. Mutual aid agreements include the
Contra Costa County Office of Emergency Services, which provides police services of all types for
calls to other counties on request. The Department has automatic aid agreements with other
providers. Automatic aid agreements are with: 1) Contra Costa County Animal Services; 2) Contra
Costa County Crime Lab for occasional forensics analysis; and 3) California Department of Justice
Task Force for drug enforcement. The Department also provides out-of-area services to regional
park trails when requested by EBRPD.
The Department indicated that there are no geographical areas within the City that pose a
particular challenge to provide adequate service levels; however PHPD did report that there are
areas with high demand which are a strain on the Department’s resources, including all commercial
areas with a high rate of false alarms and the area surrounding the Diablo Valley Community
College where students cause congestion and traffic.
Infrastructure
Pleasant Hill PD operates out of a police headquarters at 330 Civic Drive. The police
headquarters was built in 1981 and is in fair condition. The Department reported that the facility is
at capacity and there is a need for security for vehicle parking adjacent to the office.
There are plans for capital improvements to police facilities, based on the City’s capital
improvement plan. One project is the addition of a security fence consisting of installing a seven
foot tall, black, wrought iron guardian fence along the perimeter of the rear parking lot and two
controlled access gates, which will restrict access and increase security to the rear parking lot. This
project has not yet been initiated. Recently, Phase II A repairs were completed, which consisted of
renovating approximately 3,000 square feet of dispatch and lobby area office space for
approximately $772,770. The City has outlined plans for Phase II B repairs, which would provide
additional needed office space and weatherproofing of the interior atrium/courtyard area. This
project is unfunded, and consequently there are no plans to complete these repairs in the near
future.
The Department did not report any needs related to vehicles or equipment. The City replaces
vehicles every two to three years. The City will be extending the life of all vehicles from 80,000 to
100,000 miles to reduce costs.
Service Demand and Service Adequacy
Each law enforcement agency has been evaluated using a number of factors. These factors are
indicated in Figure 18-4: Pleasant Hill 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.
204
Ciity of Pleasannt Hill
Servvice Demandd
Figure 18-33: Violent and Property CCrimes (2007--2009)
Durinng the last thhree years,
the annuual number of crimes
has flucctuated shoowing no
particular pattern froom year to
year. As shown in Fiigure 18-3,
while thhe number of violent
crimes hhas slightlyy declined
over thiis time peeriod, the
number of property crimes
demonstrrated an overall
increase of approximmately eight
percent dduring the thhree years.
Based oon the nuumber of
property and violeent crimes
between 2007 and 2009, the
City had approximattely 22 repoorted crimess per 1,0000 residents, while proviiders countyywide
averagedd 21 crimes pper 1,000 ressidents. Thee City averagged 20,800 sservice calls per year in 22007,
2008 andd 2009, whicch is 621 serrvice calls peer 1,000 resiidents. By ccomparison, service provviders
countywiide averagedd 1,500 servicce calls per 11,000 residennts during thhe same time period.
The CCity reportedd that it hass particularlyy high demaand during tthe Diablo VValley Commmunity
College sschool year, as the student populatiion increasees traffic levvels around the college. The
Departmeent also repoorted a high rate of falsee alarms in thhe commercial areas of tthe City. Thee City
averages 1,400 alarmm calls per yeear, of whichh approximaately 97 perccent are falsee alarms. Thhe PD
charges aan alarm user permit feee of $56 wiith an annuaal renewal ffee of $28. False alarmms are
charged aa $109 respoonse fee.
Servvice Adequaccy
Adequacy of law enforcement services caan be evaluaated based onn a number of elements. For
the purpposes of thiss report, serrvices providded by Pleaasant Hill PDD are assessed accordinng to
response times, clearaance rates (tthe portion of crimes solvved) and stafffing ratios.
Althoough police rresponse timmes for serioous crimes inn progress aare an imporrtant indicattor of
service aadequacy, theere are not clear standaards as to wwhat that response time should be. PPolice
response times were traditionallyy used to measure effecctiveness. Hoowever, moree recent research
indicates that responnse time does not have a significannt effect on crime-solvinng, because most
crimes arre “cold” criimes and victims do noot tend to caall police immmediately aafter the crimme is
committeed. The moddern approach to responnse time—ddifferential rresponse—iss to ensure quick
response to serious ccrimes (Priorrity 1) in proogress, whenn there are oopportunities to save a vvictim
and/or too apprehendd the criminaal, and to infoorm lower-ppriority calleers (Priority 2 through 6)) that
response time may bee lengthy. Exxperiments indicate that differential response leaads to both ciitizen
and officeer satisfactioon.33 Responnse times aree dependent on the agenncy’s staffingg level and size of
the jurisddiction serveed. Pleasantt Hill PD on average respponds to Priiority 1 inciddents withinn four
minutes aand 45 seconnds, while laaw enforcemment providerrs countywidde averaged five minutes and
44 secondds for Prioritty 1 incidents.
33 Walker annd Katz, 2002.
2205
Law Enforcement MSR
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 18-4, Pleasant Hill PD had a clearance rate of 43 percent for violent crimes (homicide,
forcible rape, robbery and aggravated assault) committed in 2007, 2008 and 2009, and a clearance
rate of 12 percent for property crimes (burglary, motor vehicle theft, and thefts of greater than
$400) during the same period. By comparison, providers countywide on average cleared 38.3
percent of violent crimes and 10.6 percent of property crimes, meaning Pleasant Hill PD solves a
larger portion of both violent and property crimes within its jurisdiction than the average of other
providers in the County. 34
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 0.7 sworn staff per 1,000 residents in Danville and Lafayette to 2.0 in Kensington CSD.
Pleasant Hill PD maintains the same staffing ratio of the countywide average of 1.2 sworn staff per
1,000 residents.
34 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. 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.
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City of Pleasant Hill
Figure 18-4: Pleasant Hill Law Enforcement Overview
Pleasant Hill Law Enforcement Profile
Service Configuration Service Demand
Patrol Pleasant Hill Population (2009) 33,053
Number of Beats 2 Population (2010) 33,152
Dispatch Pleasant Hill Total Service Calls (2009) 20,800
Search and Rescue Sheriff Calls per 1,000 population 621
Investigations Pleasant Hill Crime Activity
Traffic Enforcement Pleasant Hill Arrests (2009) 1,604
SWAT Sheriff Violent Crimes (2009) 104
Temporary Holding Pleasant Hill Property Crimes (2009) 619
Long-term Holding Sheriff Traffic Accidents 421
Bomb Squad Walnut Creek PD Violent Crime Rate per 100,0001 1,025
Canine (K-9) Services Pleasant Hill Property Crime Rate per 100,0001 5,425
Staff Training Pleasant Hill
Animal Control County
Service Adequacy Resources
Avg. Priority One Response Time 4:45 Total Staff (2010) 56.5
Response Time Base Year 2009 Sworn Staff 40
Clearance Rate of Violent Crimes2 43% Support Staff 16.5
Clearance Rate of Property Crimes2 12% Volunteers 5
Per Capita Cost (General Fund) $ 292 Sworn Staff per 1,000 population 1.2
Service Challenges
Pleasant Hill PD has prioritized traffic enforcment and calming near Diablo Valley Community College, due to the
high level of demand in the area.
Facilities
Station Location Condition Built
Main Station 330 Civic Drive Fair 1981
Pleasant Hill, CA
Current Facility-Sharing and Regional Collaboration
Pleasant Hill PD participates in Contra Costa OES, Contra Costa County Crime Lab, CA DOJ/Central Contra Costa
County Narcotics Enforcement, Avoid the 25 Anti DUI, and East Bay Regional Community Project (for
interoperability). The Department does not share facilities with other agencies.
Opportunities for Facility-Sharing and Regional Collaboration
The Department has not indentified future opportunitites for facility sharing and regional collaboration.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
207
Law Enforcement MSR
19. City of Richmond
The City of Richmond 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 Richmond Police Department is contained
in the West County Sub-regional MSR adopted by the Commission on
November 18, 2009. (www.contracostalafco.org)
Agency Overview
Background
The City of Richmond is a charter city, which was incorporated in 1905. Its boundary area is
approximately 30.4 square miles (land only). The City’s SOI encompasses the unincorporated
community of North Richmond, and most of the unincorporated communities of East Richmond
Heights and El Sobrante. (Refer to Map 19-1.) 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. The City has
two law enforcement-related advisory commissions: the Police Commission; and the Police and
Fireman’s Pension Board. The Richmond Police Commission is a civilian body whose nine members
are appointed by the Mayor and approved by the City Council for three year terms. They meet
monthly to receive and investigate “Use of Force” complaints, as well as complaints of bias
involving members of the Department. They also advise the Chief on policy matters. The Police and
Fireman’s Pension Board meets monthly to review pension compensation matters and is comprised
of seven members who serve five-year terms – the City Manager, the Mayor, the Finance Director,
two public members appointed by the Council, and two representatives elected by member of the
pension fund. The City Council also appoints a Public Safety/Services Standing Committee
comprised of three of the seven Council Members who meet monthly to review and discuss matters
regarding public safety and service for the Richmond community.
Constituent outreach efforts are aimed at crime prevention, education about the Department’s
activities, and involving constituents in police efforts. The Department tries to build community
partnerships and reach its constituents through the Crime Free Multi-Housing Program,
Neighborhood Watch (48 neighborhood councils), the Richmond Police Activities League (RPAL),
the Police Explorer Program (Explorer Post 110), the Police Cadet Program, Get Yo’ Grown Game
On, the Violence Reduction Plan, the Rise Center for Teens, and the Family Justice Center (one stop
center for victims and families). Richmond PD has implemented a community-oriented policing
208
City of Richmond
plan to reduce crime and violence in the City. This includes assigning officers to specific
geographical beats to improve communication and build stronger relationships with neighborhood
residents. These relationships help beat officers become more familiar with parolees and
probationers living in the area, to be more effective and respond to blight, and to engage in
problem-solving efforts with residents to reduce crime. The Department makes a range of
information available on its website.
If a constituent has a complaint regarding the Department or its employees, complaint forms
are available online. The form must be printed out, completed by hand and signed by the
complainant. A completed form may be submitted to the Richmond PD or mailed to the
Professional Standards Unit that is responsible for reviewing complaints. When the Department
receives a personnel complaint, it is reviewed by the unit commander before it is assigned to an
investigator, typically a sworn member at the rank of sergeant or higher. A comprehensive inquiry
is done, which involves detailed interviews of complaining parties, witnesses, accused officers, and
all relevant evidence is gathered. The Police Commission reviews all formal complaints related to
use of excessive force and racially abusive treatment, and appeals from Professional Standards
investigations. Minor complaints are handled by an immediate superior and followed up on by the
on-duty watch commander and internal affairs (IA). The Ombudsman contact is the public
information officer; the day-to-day point of contact is the crime prevention manager. Since 2009,
all complaints are logged and receive a case number. In 2009, 116 complaints were filed, including
service or rudeness complaints and traffic court complaints.
Richmond 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
Per the City’s FY 10-11 budget, the PD has 297.0 authorized full time equivalent (FTE) positions
of which 195 are sworn officers and 102 are support personnel. Authorized positions may not
correlate directly with positions by type as reported by the Department due to part-time positions,
frozen positions, or vacant positions. The PD is supplemented by 30-35 volunteers, including
chaplains. The Department is in the process of re-starting its Reserve Officer program.
The Department is divided into two bureaus – the Policing and Technical Bureau and the
Support Services Bureau, each led by a deputy chief. The deputy chiefs, that head the two bureaus,
report to the Chief of Police. The Policing Bureau is divided into the Patrol, Investigations, Youth
Services, and Prevention Services divisions, and the Crime Analysis Unit. Three captains are in
charge of patrol in the Southern, Central and Northern districts of the City. The Investigations
Division consists of two sections – Criminal Investigations and Special Investigations - each headed
by a lieutenant. A lieutenant is in charge of the Youth Services Division; and a manager is the head
of Prevention Services. In the Technical and Support Services Bureau, a Captain leads the
Administrative Division whose responsibilities include personnel and training, policy development,
and regulatory services. A supervisor of the Information Technology Unit, a manager of the
Communications Division, a manager of the Code Enforcement Division, and a lieutenant of
Professional Standards are directly accountable to the Deputy Chief of the Technical and Support
Bureau.
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.
Goals for the Richmond PD are developed on a yearly basis and are outlined in the annual
budget. The City has five strategic goals that are also guiding objectives for the Police Department:
1) maintain and enhance the physical environment; 2) promote a safe and secure community; 3)
promote economic vitality; 4) promote sustainable communities; and 5) promote effective
209
Law Enforcement MSR
government. In addition, the Department participates in the City’s Five-Year Business Plan. The
objectives for Police Department include: 1) reduce crime; 2) reduce blight; 3) connect with youth;
and 4) improve community disaster preparedness and awareness.
Officers are evaluated annually. New hires go through an 18-month probation period and are
evaluated at six and 15 month milestones. The Department utilizes an RMS System to track its
employees’ workloads, and reported that it is making significant progress in reducing overtime
through this tracking system. 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 during the budget process,
and monthly in Neighborhood Safety Monthly Activity Reports.
To improve efficiencies, the Department has implemented a community-oriented policing plan
to reduce crime and violence in the City. The focus of the plan is assigning officers to specific
geographical beats to improve communication and build stronger relationships with neighborhood
residents, which will help officers become more familiar with parolees and probationers living in
the area, be more effective in recognizing and responding to blight, and engage in problem-solving
efforts with residents to reduce crime.
Planning documents that guide Richmond PD’s services are the City’s 1994 General Plan, the
City’s Five-Year Business Plan (2009-2014) and departmental mission and vision statement. The
City is currently updating its General Plan with completion scheduled for October 2011.
General Plan Service Standards call for capital facilities to maintain the following response
times:
Life-threatening service calls – three to five minutes;
Critical emergencies – three to five minutes;
Non-critical emergencies – 15 to 20 minutes;
Non-emergencies – 30 to 60 minutes; and
Other – 60 minutes plus.
Richmond PD currently does not meet the response time standard for Priority 1 calls (life
threatening and critical emergencies). Priority 1 response times average six minutes and 11
seconds.
Financial planning documents include the annual budget, a capital improvement plan, and a
mid-year budget review. The City’s capital improvement program is a multi-year planning program
for the construction of new facilities and infrastructure, and for the expansion, rehabilitation, or
replacement of City-owned assets. The plan covers a five-year period that is updated by the Capital
Planning Division staff annually. Richmond has an extensive CIP for the period FY 2010-11 – 2014-
2015 with two projects related to law enforcement services—installation of Closed Circuit
Television (CCTV) cameras at crime “hotspots” and purchase of safety equipment for new officers.
The status of both projects is “on-going.” The proposed CIP for FY 2011-2012 – 2015-2016 outlines
eight police-related projects: 1) purchase of an automatic vehicle locator; 2) placement of Closed
Circuit Television cameras at crime “hotspots”; 3) purchase and installation of license plate readers
in patrol vehicles; 4) purchase of safety equipment for new officers; 5) construction of a southern
district substation; 6) purchase of SWAT equipment and radio gear; 7) purchase of traffic laser
radar equipment; and 8) purchase of vehicles to tow police boats.
210
City of Richmond
Population and Growth Projections
According to the 2010 Census, the population of the City is 103,701. Over the last 10 years, the
population of Richmond has grown by six percent.
According to the City’s General Plan, Richmond grew by 17 percent between 1980 and 1990,
due primarily to the large number of new homes being built at that time. The City’s population has
grown slowly but steadily since then, growing to 99,216 in 2000, 102,700 in 2005, and 103,701 in
2010. Richmond is currently ranked as the second-largest city in Contra Costa County, behind
Concord.
During the next five years the City projects its population will increase by one percent to about
105,558. In addition to meeting growing demand for new services Richmond must also address the
need to upgrade its existing infrastructure. Over the last 100 years, much of City’s infrastructure
has worn out and is in need of rehabilitation or reconstruction.
Development is anticipated to occur primarily in the Iron Triangle, Cortez/Stege/Coronado and
Marina Bay planning areas. There are various redevelopment projects in the Iron Triangle planning
area including the Transit Village-Metro Walk project that is located around the Richmond BART
and Amtrak Stations. The project will include housing units, retail space, an intermodal transit
station and garage facility.
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 139,600 in 2035.
In order to accommodate new growth, The Department reported that more police officers are
being hired, equipment is being upgraded and enhanced training is being offered. In addition, the
Southside area of the City will require an increased police presence and new substation.
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.
In the current General Plan, areas north of Wildcat Creek are designated for light industrial
uses. The area south of Wildcat Creek is largely residential. The El Sobrante Valley area contains
residential communities, ranch lands, and hillside, wooded open space. The unincorporated East
Richmond Heights area contains residential communities and the Wildcat Canyon Regional Park.
(Refer to Map 19-1)
At the present time, there are no unincorporated islands within the City limits that are less than
150 acres. The North Richmond census designated place (CDP) is substantially surrounded by the
City, but exceeds the 150 acre size limitation to qualify for the streamlined annexation procedures
under Government Code Section 56375.3. North Richmond CDP consists of approximately 900
acres and has a 2010 population of 7,717.
The East Richmond Heights CDP is partially within the Richmond SOI and partially within the El
Cerrito SOI. This area totals approximately 370 acres and has a 2010 population of 3,280.
The El Sobrante CDP is primarily within the Richmond SOI, with a portion in the Pinole SOI.
This area totals approximately 1,770 acres and has a 2010 population of 12,669. (Refer to the
Pinole chapter for more information.).
211
Map 19-1
City of Richmond Boundary and Sphere of Influence
Inset Map
RRiicchhmmoonndd
HHeerrccuulleess
PPiinnoollee
SSaann PPaabblloo
By LAFCO action on 11/18/2009,
Richmond boundary and reduced
SOI were approved.
SSaann PPaabblloo
RRiicchhmmoonndd
EEll CCeerrrriittoo
OOrriinnddaa
Urban Limit Line
City Boundary
City SOI
This map was created by the Contra Costa County Community Development ®
65 b 1 y P C i o n n e t r S a t r C e o e s t, t 3 a 4 7 t C h :5 o M F 9 u : l a o 4 n p o 8 ty r . c 4 C r 5 N e o 5 o a m N t r e t m h d 1 u W 2 1 n 2 2 i i n t : / y 0 1 g 6 6 , D : / M 3 e 2 5 0 v a . e 0 r 3 t l 9 i o 8 n p 4 e m W z, e C n A t, G 94 IS 5 5 G 3 r - o 0 u 0 p 95 its r t e a a p x b c r a c r o a s u d t e r u e a D d c c a e a e y r p d t e . a a a T i , r n s h t p m . i i r s t W i s e m m n c h a t u a i r l w r e p il r y i e o c t h C n b o t l n d i i t s g t y a a t a t a L i a t n t e i e m s f d r i o c i f t t o m s o th p , u i e y t s h s r s i e e d g o e h C t u h r t i r e o i v c s n d e e d t d r i i a n a s f f t r a o C c o r i o m t t m h e s d e a t t a h . t C i e o U C o n s C o u e a u A n r n n s t y S d t y o t a m a f G s t t a e s h IS u y i B s m n P o m o e r a t o s a r b g d p n r e o a o a a f m g r l E r e t . e e s q e r p S u e o a t o d o n m l . i z s r e e a i I b t a t i i m l o d it n y a a ' y s n fo d b r e 0 0.5 1 Miles
accept the County of Contra Costa disclaimer of liability for geographic information.
City of Richmond
Finaancing
The DDepartment’ss services arre financed pprimarily thrrough the Geeneral Fund (89 percentt) and
augmenteed by six speecial revenue funds – the Asset Seizuures, Police Telecommunnications, Ouutside
Funded SServices Fundd, Code Enforcement, Genneral Capitall, and Impactt Fee funds, wwhich account for
11 percent of total PD funds or aalmost $8.0 mmillion in FYY 09-10. Thhe Police Telecommunicaations
Fund is uused to report activities related to CCAD dispatchh, RMS recorrds maintenaance, and thee 800
MHz equiipment expense.
Figurre 19-1: Richhmond PD Expenditures (FYs 08, 09, & 10)
Over the last three fiscall
years, police departmentt
expendituures initiallyy increased,,
between FY 07-08 annd FY 08-09,,
then platteaued, stayinng relativelyy
stable forr the last twoo fiscal yearss
as shownn in Figure 19-1. In FYY
09-10, expenses for thee
Departmeent were ssalaries (488
percent), benefits (225 percent),,
internal services (115 percent),,
other opperating exppenses (fourr
percent), professionnal servicess
(two percent), equiipment andd
contract services (two percent), aasset/capital outlay (twoo percent), trransfer out (ttwo percent)), and
utilities (less than onee percent).
Long--term debt reelated to laww enforcemennt services inncludes a loan to finance the completiion of
the Policee Activities LLeague Youthh Center, andd loans to thee Police Chieff.
On January 23, 20007, the City approved a lloan of $300,,000 to proviide temporarry support foor the
Police Activities Leaague (PAL) Youth Cennter expansiion project to allow PPAL to commplete
constructtion of the prroject. The loan is securred by a deedd of trust onn the propertty. The loan iis due
upon PALL’s receipt oof the remainning balancee of the Statte of Californnia Departmment of Parkss and
Recreatioon’s Murray-Hayden Proggram Grant in the sum off $500,000. IIn addition, oon August 3, 2007
the City aapproved $1226,000 of additional fundding for PAL to complete the construction of the yyouth
center gyymnasium annd office commplex. The ssame terms aas the first looan apply too the second loan.
The remaaining balancce as of the end of FY 09-10 was $4622,380.
In 20005, the City made a longg-term loan of $150,0000, and a shorrt-term loan of $50,000, for a
total loann amount oof $200,000, to finance the acquisittion of the new Police Chief’s perrsonal
residencee located wiithin the Cityy of Richmoond. The loan is secureed by a deedd of trust on the
property. The loan is due uponn sale of the property, wwithin 18 moonths after tthe Police CChief’s
employmment with thee City terminnates, or 15 yyears from thhe date of thee loan, whichhever occurss first.
The shortt-term loan oof $50,000 wwas repaid duuring fiscal yyear 2006. Thhe remainingg balance of these
two loanss at the end oof FY 09-10 wwas $118,2766.
In 20009, the City joined the CCalifornia Joiint Powers RRisk Managemment Authorrity (CJPRMAA) for
general liiability and eemployment practices covverage.
2213
Law Enforcement MSR
Law Enforcement
Nature and Extent
The Police Department is responsible for providing law enforcement services in the City,
including patrol, investigations, traffic enforcement, dispatch, crime prevention, and search and
rescue. The Department is responsible for community policing and code enforcement, and has a
Special Weapons and Tactics (SWAT) Team, Canine Unit and temporary holding facilities.
The Department relies on the Sheriff’s Office for long-term holding facilities and forensic lab
services, County Animal Control for animal services, the City of Walnut Creek for bomb squad
services, and various police academies for police training. Richmond PD collaborates closely with
San Pablo PD and other nearby law enforcement service providers to reduce gang activities.
The Sheriff’s Department also provides safety services within the City by responding to a City of
Richmond “critical incident” in which a request has been made for “mutual aid.”
Richmond PD provides public safety communications dispatch services, including receiving
incoming 911 calls, to several municipalities and agencies in West County (Richmond Fire
Department, El Cerrito PD, El Cerrito FD, San Pablo PD, Kensington PD, and Contra Costa College
PD) and after-hours records services to El Cerrito, San Pablo and Kensington PDs.
Patrol
Richmond PD patrols 30.4 square miles, with a variety of configurations with respect to the City
boundary. (Refer to Map 19-1.). The Department recently “redeployed” its patrol personnel
utilizing a “Neighborhood Beat Policing” model. Richmond is divided into three larger geographic
districts – North, Central and South – each of which has its own police captain. Each district has
three beats that typically include several neighborhoods. Each beat is supervised by a sergeant and
has 7-8 officers per beat. Every patrol officer is assigned to a specific beat, regardless of what shift
they work. The Department’s goal is to build continuity of presence and relationships between
officers and the public in every area of the City.
The Department also utilizes a Foot/Housing Patrol and a Marine Unit in the Southern District,
a Foot/Bike Patrol and Traffic and Special Events Unit in the Central (Downtown) District, and a
Foot/Bike Patrol in the Northern District.
214
City of Richmond
Staffing
Figure 19-2: Richmond PD Staffing Levels
Unlike many other city police
Position FY 08-09 FY 09-10 FY 10-11
departments, over the last three FYs (09, 10,
Chief 1 1 1
11), Richmond PD’s staffing levels have
Deputy Chief 2 1 0
significantly increased, as shown in Figure 19-
Captain 5 5 5
2. Over this period, the Department has
Lieutenant 9 10 10
added 55 additional authorized positions to
Detective 28 28 34
the force.
Police Officer 70 76 86
The Personnel and Training division is K-9 Officer 6 6 6
responsible for recruitment and hiring of new Dispatcher 24 25 25
officers, reserve officers, dispatchers, civilian Crime Prevention 2 2 2
support staff, and police cadets. Currently, the Traffic Officer 6 7 7
Department is not accepting applications for Records Specialist 11 10 12
police candidates, but is looking for reserve Office Support Staff 15 17 19
officers and volunteers to supplement law Parking Enforcement 2 2 4
enforcement activities. The Department has Crossing Guard 9 9 9
an informal staffing goal with the aim of Sergeant 22 25 25
maintaining a sworn staffing level at a ratio of School Res. Officer 6 6 6
two officers per 1,000 residents. Richmond Code Enforcement 9 12 24
PD presently employs 1.7 sworn officers per Information Technology 3 5 5
1,000 population, and has been able to Jailer 6 6 6
maintain and even increase its sworn force. CCTV 0 5 5
TOTAL 236 258 291
Location
Richmond PD provides services throughout the City’s territory, and in addition, provides
services outside its boundaries through a mutual aid agreement – the Contra Costa Mutual Aid
Mobile Field Force - which provides police services of all types for calls to other counties on
request. The Department also has mutual aid agreements for emergency back-up and call-handling
with El Cerrito PD, Kensington PP&CSD, Pinole PD and San Pablo PD. The Department does not
have any automatic aid agreements with other providers.
Although the City has a bifurcated boundary, Richmond PD did not identify any areas within the
City’s boundaries that are particularly challenging to serve. This is attributed to the beat system
within each District – North, Central and South.
The Department indicated that it had recently initiated a new code enforcement effort in the
unincorporated community of North Richmond, which was posing a challenge. This enforcement
effort, which includes building code enforcement, graffiti abatement, trash and yard clean-up,
abandoned vehicle abatement, and zoning enforcement is a cooperative effort with Contra Costa
County and is funded by mitigation monies from the Zeneca Corporation ‘super fund’ site.
Committee oversight involves a County Supervisor, the Mayor, and a City Council Member.
215
Law Enforcement MSR
Infrastructure
Richmond PD operates out of a leased police headquarters located at 1701 Regatta Boulevard
and two substations at Harbor and McDonald and at Hilltop Mall. The police headquarters is
housed in a three-year-old building which is considered to be in excellent condition. The
Department has a full jail facility with 14 beds and a secure vehicle area. Dispatch and special
investigations are located offsite.
The Family Justice Center is temporarily located at the Hilltop Mall Sub-station. The
Department expressed a need for a third substation in the southern part of the City.
Work on the Southern District substation is scheduled to start in FY 11-12. It will include a
minimum of three offices, report writing room and storage for equipment and bicycles. The project,
which is being financed out of the General Capital Outlay fund, will cost $500,000 over two years.
There are no plans for significant capital improvements to existing police facilities.
Based on the City’s current capital improvement plan for FY 2010-2011 – 2014-2015, there are
two current ongoing projects – installation of CCTV cameras at crime “hotspots” and the purchase
of safety equipment for new officers. There are currently 43 cameras at key locations with three
more being added each year. The proposed capital improvement plan for FY 2011-2012 – 2015-
2016 outlines additional planned projects for purchase of automatic vehicle locator, license plate
readers, SWAT equipment and radio gear, traffic laser radar equipment and vehicles to tow police
boats.
Service Demand and Service Adequacy
Each law enforcement agency has been evaluated using a number of factors. These factors are
indicated in Figure 19-4: Richmond 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 19-3: Violent and Property Crimes (2007-2009)
Over the last three years the 4,500
overall number of both violent and 4,000
property crimes have decreased.
3,500
During the last two years, the annual
3,000
number of violent crimes did not
experience significant change, as 2,500
shown in Figure 19-3. From 2007 to
2,000
2008 violent crimes declined by ten
1,500
percent. The number of violent
crimes per capita stayed relatively 1,000
static over the three year period. 500
Property crimes steadily declined
0
each year, with a cumulative 2007 2008 2009
decrease of 18 percent from 2007 to
Violent Property
2009.
216
City of Richmond
Based on the number of property and violent crimes between 2007 and 2009, the City had
approximately 46 reported crimes per 1,000 residents, while providers countywide averaged 21
crimes per 1,000 residents. The City averaged 110,600 service calls per year in 2007, 2008 and
2009, which is 1,059 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 City did not report any particular times when it had especially high demand. However, the
Department called Richmond a “sanctuary city” and indicated that it was the reason why there were
so many undocumented residents typically undercounted in the Census. While undocumented,
these residents also contribute to demand for Richmond PD’s services.
Increased focus is being directed to the ‘Iron Triangle,’ in the downtown area, which is part of
Beat 6. This effort is an attempt to impact violent crime and the high homicide rate in this area.
Homicides have been reduced as well as putting pressure on gang members, parolees, and
probationers involved in crime activity.
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 Richmond 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.35 Response times are dependent on the agency’s staffing level and size of
the jurisdiction served. Richmond PD on average responds to Priority 1 incidents within six
minutes and 11 seconds, while law enforcement providers countywide averaged five minutes and
44 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 19-4, Richmond PD had a clearance rate of 16 percent for violent crimes (homicide,
forcible rape, robbery and aggravated assault) committed in 2007, 2008 and 2009, and a clearance
rate of five percent for property crimes (burglary, motor vehicle theft, and thefts of greater than
$400) during the same period. By comparison, providers countywide on average cleared 38.3
percent of violent crimes and 10.6 percent of property crimes, meaning Richmond PD solves a
35 Walker and Katz, 2002.
217
Law Enforcement MSR
significantly smaller portion of both violent and property crimes within its jurisdiction than the
average of other providers in the County.36
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 0.7 sworn staff per 1,000 residents in Danville and Lafayette to 2.0 in Kensington CSD.
Richmond PD is above the countywide average of 1.2 sworn staff per 1,000 residents, with a sworn
staff to resident ratio of 1.7.
36 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. 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.
218
City of Richmond
Figure 19-4: Richmond Law Enforcement Overview
Richmond Law Enforcement Profile
Service Configuration Service Demand
Patrol Richmond Population (2009) 104,513
Number of Beats 9 Population (2010) 103,701
Dispatch Richmond Total Service Calls (2009) 110,600
Search and Rescue Richmond Calls per 1,000 population 1,058
Investigations Richmond Crime Activity
Traffic Enforcement Richmond Arrests (2009) 2,840
SWAT Richmond Violent Crimes (2009) 1,095
Temporary Holding Richmond Property Crimes (2009) 3,333
Long-term Holding Sheriff Traffic Accidents 1,329
Bomb Squad Walnut Creek PD Violent Crime Rate per 100,0001 3,261
Canine (K-9) Services Richmond Property Crime Rate per 100,0001 10,545
Staff Training Police academies
Animal Control County
Service Adequacy Resources
Avg. Priority One Response Time 6:11 Total Staff (2010) 221
Response Time Base Year 2009 Sworn Staff 181
Clearance Rate of Violent Crimes2 16% Support Staff 40
Clearance Rate of Property Crimes2 5% Volunteers 30-35
Per Capita Cost (General Fund) $ 6 06 Sworn Staff per 1,000 population 1.7
Service Challenges
There is a new effort by Richmond PD to initiate code enforcement in the unincorporated North Richmond area,
which has posed a particular challenge the Department.
Facilities
Station Location Condition Built
Main station 1701 Regatta Blvds, Richmond, CA Excellent 2008
Substation 1 Harbor and McDonald Good NP
Substation 2 Hilltop Mall Excellent 2010
Dispatch 326 27th Street Good NP
Special Investigation NP NP NP
Family Service Ctr. Hilltop Mall (Temporary) Good NP
Current Facility-Sharing and Regional Collaboration
The Department provides dispatch services to multiple west County agencies. Richmond PD utilizes the services
of Sheriff's Department Forensics Lab for crime lab services. It also works closely with San Pablo PD and other
nearby law enforcement service providers on reducing gang activity.
Opportunities for Facility-Sharing and Regional Collaboration
No further opportunities for facility and resource sharing were identified by the Department.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
219
Law Enforcement MSR
20. City of San Pablo
The City of San Pablo 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 San Pablo Police Department is contained
in the West Contra Costa County Sub-regional MSR adopted by the
Commission on November 18, 2009. (www.contracostalafco.org)
Agency Overview
Background
The City of San Pablo is a general law city, which was incorporated in 1948. Its boundary area
is approximately 2.6 square miles. The City’s SOI encompasses the two unincorporated
communities of Rollingwood and North Arlington to the east of the city limits. (Refer to Map 20-1.)
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,
as the department head for the Police Department (PD), reports to the City Manager. The City has a
law enforcement-related advisory commission or committee known as the Safety Commission. The
Commission is comprised of representatives from the Police Department, Public Works Department
and five members of the community who are appointed by the City Council. The primary duty of
the Safety Commission is to discuss traffic related issues affecting the community. The Commission
meets the last Wednesday of odd numbered months, and the public is welcomed and encouraged to
attend the meetings and provide their input regarding traffic related issues as well.
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:
Business Crime Prevention (officer assistance to businesses with law enforcement related
concerns);
Neighborhood Watch (neighbors watching for crime and suspicious activity);
Community Emergency Response Teams (CERT) Program (training in disaster and
emergency preparedness);
Youth Education Services (YES) Program (classroom instruction on use of 9-1-1, ‘good
touch, bad touch,’ bullying, drug and gang prevention, self-esteem and life skills for students
grade 3 through 8);
Ride-A-Long (citizens ride with police officers to observe officers’ work on duty);
220
City of San Pablo
Public Safety Day (police and other public safety entities provide residents with safety
information);
The Parent Project (parenting class for parents of at-risk youth); and
Kids To Camp (camping for at-risk youth and officers).
The Department sponsors a Police Explorer program which teaches different aspects of law
enforcement to youth possibly interested in a career in police work. The Department also reaches
constituents in the bilingual community through newsletters and E-newsletters. The Department
makes crime statistics and other information available on its website.
If a constituent has a complaint regarding the Department or its employees, then complaints
may be submitted in person or on the phone. Complaints are resolved through Internal Affairs.
During the 2007-2009 period, San Pablo PD received 27 complaints of which 14 were sustained,
eight were unfounded, one was exonerated, and four were not sustained. The Department averages
one complaint per 8,000 contacts.
San Pablo 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
Per the City’s FY 2010-11 budget, the Department has 56.0 authorized sworn positions, and
21.0 support positions. Authorized positions may not correlate directly with positions by type as
reported by the Department due to part-time positions and vacancies. The Department is
supplemented by three reserve officers and a Police Explorer program. The PD may get some
volunteers out of the Citizen’s Academy, which just graduated its first class.
The Department is divided into three divisions: Patrol; Investigations; and Support Services.
One captain oversees all three divisions. The captain reports to the Chief. The Patrol Division is the
largest division within the department. The Patrol Division command staff consists of one patrol
lieutenant who oversees the Division’s patrol functions. The Division is divided into five squads
each supervised by a sergeant. In addition, these squads are assisted daily by the Traffic Unit, and if
needed for designated critical incidents, the Special Entry and Apprehension (SEA) Team. The
Investigations Division command staff consists of two lieutenants. The primary responsibility of
this division is to conduct in-depth investigations on criminal cases and prepare them for
presentation to the District Attorney's Office. The Support Services Division is overseen by a
sergeant and responsibilities include administrative support, facility maintenance, background
investigations, communications, fleet management, records, and property/evidence. The Police
Department recently reorganized its management structure to improve accountability and service
by creating three Lieutenant positions, two of which were placed in the Patrol division. This
permitted the Sergeants to significantly increase their supervision in the field. The third Lieutenant
was assigned to Investigations and Services Division, allowing for increased supervision of the
specialized units.
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 Department is in the process of adopting a Strategic Plan, which has been delayed due to
other large-scale projects taking priority. One large-scale project is the installation of a city-wide
surveillance system. The responsibilities of the San Pablo PD as outlined in the FY 10-11 budget
are: 1) maintaining an effective law enforcement presence in the community to combat crime and
improve public safety and confidence; 2) maintaining the highest degree of professionalism and
efficiency at all times; 3) continuing efforts to reduce violent crime and narcotics trafficking
221
Law Enforcement MSR
through combined multi-agency operations in West County; 4) eradicating safety hazards that
create blight and adversely affect the quality of life within the City through a combined effort; 5)
enhancing community outreach programs through the Explorer Program, YES Program, gang
intervention, Kids to Camp, and Neighborhood Watch; 6) continuing expansion of traffic and
commercial vehicle enforcement in order to reduce collisions, truck parking and overweight truck
violations; and 7) enhancing emergency planning and training for City staff, citizens, and businesses
within the City.
Sworn officers are evaluated every four months and annually. New staff is evaluated after a
two-year probation period. The Department tracks workload based on monthly analysis of
contacts per officer, and tracks monthly calls for service by type. The Department does not create
an annual report to track workload or evaluate department performance.
In order to improve efficiencies, the Department is working to streamline the workload and
eliminate duplication of efforts. This has been accomplished by the addition of three Lieutenants,
thereby freeing up first line supervisors. The Department reported that it had made significant
improvements in graffiti abatement. The Department works with the City’s Public Works
Department using GPS cameras to record incidents and locations. Together, this collaboration has
resulted in 97 percent reduction in graffiti.
Planning documents that guide San Pablo PD’s services are the City’s 2010-2030 General Plan,
which was adopted in April 2011, the Department’s mission statement, and the City’s budget with
departmental goals.
General Plan Service Standards for police are as follows:
Develop and implement a community-based police strategy compatible with the service
level standards identified in the Growth Management Element, and
Capital facilities and personnel shall be provided sufficient to maintain a force level of at
least 1.43 officers per 1,000 population.
The Department presently meets, and in fact, greatly exceeds, the adopted force level standard
with an officer ratio of 1.9 per 1,000 population. The Growth Management Element does not
contain any service level standards for police services.
Financial planning documents include the biennial budget, and a cost allocation plan. The City
does not have a multi-year capital improvement plan. Capital projects are planned for biennially in
the City’s budget with a capital projects list maintained by the Public Works Department. There are
19 capital projects for FY 10-11, none of which are related to law enforcement. The Redevelopment
Agency prepares a five-year implementation plan that plans for specific and potential projects with
estimated expenditures. The existing five-year plan covers the period from 2010 to 2014 and nine
projects, none of which are related to law enforcement.
Population and Growth Projections
According to the 2010 Census, the population of the City is 29,131. Over the last 10 years, the
population of San Pablo has declined by four percent.
The City and the unincorporated communities within its SOI are considered to be built-out. The
City projects that development will primarily consist of reuse of existing sites; however, there is
some room for residential development within areas assigned to residential zoning. These areas
are anticipated to be sufficient to meet residential land use needs through 2030 under a moderate
growth scenario. The City plans to prepare guidelines for hillside development to expand
opportunities for development overall. Specific Plans are underway for San Pablo Avenue and 23rd
Street, with additional development related to in-fill of vacant residential and commercial areas.
222
City of San Pablo
Based on ABAG projections, the City is anticipated to grow by 17 percent over the next 25 years.
Similarly, 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 37,700 in 2035.
The Department is invited to evaluate and comment on any proposed developments.
San Pablo’s SOI includes the unincorporated communities of Rollingwood and a majority of
North Arlington. Land uses within these two areas are consistent with urban development, and are
primarily residential with some commercial and institutional uses. Law enforcement services to
Rollingwood and North Arlington are provided by the Contra Costa County Sheriff’s Office (SO).
Both are unincorporated islands and qualify for the streamlined annexation procedures under
Government Code Section 56375.3 because they are less than 150 acres in size.
North Arlington consists of approximately 96-acres and is surrounded by San Pablo on the
north and west, and by Richmond on the south and east. Within the North Arlington SOI area is an
area generally south and east of Bayview Avenue and Harbor View Avenue that is within the
boundaries of the City of Richmond but not within Richmond’s SOI. These boundaries divide the
community. North Arlington is adjacent to Alvarado Park to the south and open space to the east
and includes territory that is outside the County adopted Urban Limit Line.
Rolling wood consists of approximately 132 acres and is surrounded by San Pablo on the south
and west, and by Richmond on the north and east. The Rollingwood census designated place (CDP)
has less area than the Rollingwood unicorporated island (106-acres versus 132-acres) but helps
provide a demographic picture of the community. The 2010 population for the Rollingwood CDP
was 2,969. (Refer to Map 20-1.)
223
Map 20-1
City of San Pablo Boundary and Sphere of Influence
w y
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i
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Urban Limit Line
Other City Boundaries
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2
This map was created by the Contra Costa County Community Development ®
Map created 12/16/2009 Department with data from the Contra Costa County GIS Program. Some
by Contra Costa County Community Development, GIS Group base data, primarily City Limits, is derived from the CA State Board of Equalization's Miles
651 Pine Street, 4th Floor North Wing, Martinez, CA 94553-0095 tax rate areas. While obligated to use this data the County assumes no responsibility for
37:59:48.455N 122:06:35.384W its accuracy. This map contains copyrighted information and may not be altered. It may be 0 0.125 0.25
reproduced in its current state if the source is cited. Users of this map agree to read and
accept the County of Contra Costa disclaimer of liability for geographic information.
City of San PPablo
Finaancing
The DDepartment’ss services arre financed pprimarily thrrough the Geeneral Fund (97 percentt) and
augmenteed by two nnon-major goovernmentall funds whicch account ffor three percent of totaal PD
expendituures. The Laww Enforcemeent Services Special Reveenue Fund acccounts for rrevenues recceived
from the Supplementtal Law Enfoorcement Serrvices Grant,, the Local Law Enforcemment Block GGrant,
and courtt fines. In FYY 09-10, $441,458 was alllocated to laaw enforcemment activitiees out of this fund.
The Adjuudicated Asseet Seizures FFund accounnts for revennues received from saless of assets sseized
during drrug-related aarrests. In FYY 09-10, $30,,371 was alloocated from tthis fund forr PD expendittures.
General FFund revenuee sources rellated to law eenforcementt services incclude fines annd forfeiturees and
paymentss by the San Pablo Lyttonn Casino for contract servvices. In FY 09-10, thesee revenue sources
constituted $338,838 in revenue.
Generral Fund revvenues are heeavily dependent upon thhe annual caasino businesss license chaarged
to the San Pablo Lyttton Casino. These fees cconstitute 577 percent of the City’s tootal General Fund
revenue in the amouunt of $12.2 million per year. The PPD utilizes $$14.1 millionn in General Fund
revenue pper year (74%% of the Cityy’s total Geneeral Fund revvenue).
Figuure 20-1: San Pablo PD Expenditures (FYs 08, 09, & 10)
Expennditures ovver the last
three fisccal years dippped slightlyy
in FY 08--09 and reboounded in FYY
09-10, ass shown in Figure 20-11.
Police nnet expensees increasedd
$0.8 miillion in 2010. Thee
increase in expendituures in FY 09-
10 is primarily duue to salaryy
increasess and overtiime as Codee
Enforcemment was merged into thee
Police department in that year.
In FFY 09-10, tthe primaryy
expensess for the Department
were peersonnel (882 percent)),
supplies and services (166
percent), internal seervices (onee
percent), and capital outlays (onee
percent).
The CCity had $88 million in loong-term debbt outstandinng as of Junee 30, 2010, none of whichh was
directly rrelated to laww enforcemennt services.
San PPablo takes part in thee Municipal Pooling Auuthority joinnt powers aauthority forr risk
managemment coveragge.
2225
Law Enforcement MSR
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 Department is responsible for community policing and code enforcement, has a Special Entry
and Apprehension (SEA) Team, and conducts Emergency Preparedness training. San Pablo PD is
also involved in the East Bay Regional Communication System, Incident Command System (ICS),
West Contra Costa County Narcotic Enforcement Team (WestNET), and the Contra Costa Mobile
Field Force.
The Department relies on the Sheriff’s Office for search and rescue services and long-term
holding facilities, County Animal Control for animal services, the City of Walnut Creek for bomb
squad services, and the City of Richmond for police dispatch and records management services.
The Sheriff’s Department also provides safety services within the City by responding to a City of
San Pablo “critical incident” in which a request has been made for “mutual aid.”
San Pablo provides contract services to the Lytton Band of Indians for all law enforcement
services at the San Pablo Casino. The Municipal Services Agreement between the City and the
Lytton Band of Indians stipulates that the San Pablo Police Department will enforce California
criminal law at the San Pablo Casino and that the Department will conduct background
investigations of all Casino employees. The Casino has its own security personnel, but all police
services are provided by the PD.
Patrol
San Pablo PD patrols 2.6 square miles which are divided into three beats with “blended shifts.”
Patrol shifts have significant overlap with a blend of three teams with 12-hour shifts and four teams
with 10-hour shifts. The City makes use of bicycle patrols for parks and commercial corridors;
additionally, there are 160 foot patrols per month in the downtown area.
Staffing
Figure 20-2: San Pablo PD Staffing Levels
Over the last three FYs (09, 10, 11),
Position FY 08-09 FY 09-10 FY 10-11
sworn staffing of San Pablo PD has
Chief 1 1 1
remained static as has the number of
Captain 0 1 1
support personnel. (Refer to Figure 20-2.)
Lieutenant 0 3 3
In FY 09-10, three Lieutenants and three
Detective/Sergeants 8 11 11
Detectives were added which offset the
reduction in four officers. In FY 10-11, Police Officer/Sergeants 38 34 34
staffing levels remained the same. K-9 Officer 4 4 4
Traffic Control Officer 3 3 3
Currently, the department determines
Records Specialist 9 9 9
staffing levels based upon recent crime
Office Support Staff 5 5 5
trends. The Chief takes input from
Police Service Assistant 2 2 2
department staff when determining
Police Service Technician 7 7 7
staffing levels for the next fiscal year. San
Building Inspector 1 1 1
Pablo PD presently employs 1.9 sworn
TOTAL 78 81 81
officers per capita, and has been able to
maintain its sworn force.
226
City of San PPablo
Locaation
San PPablo PD prrovides servvices throughhout the Citty’s territorry, and in addition, proovides
services ooutside its bboundaries thhrough mutuual aid agreeements. Thee joint mutuaal aid agreemments
include an agreementt with the Coontra Costa County Sherifff’s Office andd the Countyy Wide Mutuaal Aid
Program,, which is a countywidee agreementt to provide law enforcement serviices to any other
provider when needeed.
The DDepartment did not idenntify any areeas within thhe City’s bouundaries thaat are particuularly
challenging to serve.
Infraastructure
San PPablo PD opeerates out of a police heaadquarters att 13880 San Pablo Avenuue. The gangg unit
and code enforcemennt are housedd off-site. Thhe police heaadquarters wwas reconstruucted in 20088 and
is consideered to be inn very good ccondition. Thhe Departmeent reportedd that the currrent facilitiees are
at maximmum capacityy, and will neeed to be expaanded to adddress any groowth in demaand.
The PD reportedd that ideallly, there wwould be a District Atttorney’s Offiice at the ppolice
headquarrters. The Department inndicates thatt it would bee helpful to bbe able to boook arresteess into
the Westt County Dettention Facillity (WCDF),, as opposedd to transpoort to the Maartinez Deteention
Facility. However, thhe logistics off staffing, traaining and fuunding WCDFF for arrestee intake activities
has not been forthcomming.
It apppears that thhere are no pplans for signnificant capittal improvemments to the police facilitties in
the next ttwo fiscal yeaars.
The DDepartment did not repport any neeeds related tto vehicles or equipmennt. Vehicless and
equipmennt are kept wwithin a secuure area adjaacent to the police buildding. The veehicle fleet raanges
from 19996 to 2011, annd are utilizeed for up to 1120,000 milees.
Servicce Demand and Serrvice Adeqquacy
Each law enforcemment agencyy has been evvaluated usinng a numberr of factors. These factorrs are
indicatedd in Figure 220-4: San PPablo Law EEnforcementt Profile. Thhese profiless can be used to
compare between ageencies, althouugh exact commparisons are not alwayys possible duue to the difffering
conditionns and policiing methods used. Refer also to Chapter 3: Law Enforcemment Overvieww for
comparisson tables.
Servvice Demandd
Figure 20-33: Violent and Property CCrimes (2007--2009)
Durinng the last three
years, thhe annual nuumber
of crimess and the nuumber
of crimess per capitaa have
had a dowwnward trennd. As
shown in Figure 20-3,
while tthe numbeer of
violent crimes has
fluctuatedd over thiss time
period, the number of
property crimes has
2227
Law Enforcement MSR
declined by almost 17 percent between 2007 and 2009. Based on the number of property and
violent crimes between 2007 and 2009, the City had approximately 49 reported crimes per 1,000
residents, while providers countywide averaged 21 crimes per 1,000 residents. The City averaged
26,500 service calls per year in 2007, 2008 and 2009, which is 853 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 with particularly high demand for
police services.
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 San Pablo 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.37 Response times are dependent on the agency’s staffing level and size of
the jurisdiction served. San Pablo PD on average responds to Priority 1 incidents within four
minutes and 30 seconds, while law enforcement providers countywide averaged five minutes and
44 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 20-4, San Pablo PD had a clearance rate of 28 percent for violent crimes (homicide,
forcible rape, robbery and aggravated assault) committed in 2007, 2008 and 2009, and a clearance
rate of 10 percent for property crimes (burglary, motor vehicle theft, and thefts of greater than
$400) during the same period. By comparison, providers countywide on average cleared 38.3
percent of violent crimes and 10.6 percent of property crimes, meaning San Pablo PD solves a lower
portion of both violent and property crimes within its jurisdiction than the average of other
providers in the County.38
37 Walker and Katz, 2002.
38 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. 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.
228
City of San Pablo
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 0.7 sworn staff per 1,000 residents in Danville and Lafayette to 2.0 in Kensington CSD.
San Pablo PD is above the countywide average of 1.2 sworn staff per 1,000 residents, with a sworn
staff to resident ratio of 1.9 per 1,000 residents.
229
Law Enforcement MSR
Figure 20-4: San Pablo Law Enforcement Overview
San Pablo Law Enforcement Profile
Service Configuration Service Demand
Patrol San Pablo Population (2009) 31,065
Number of Beats 3 Population (2010) 29,139
Dispatch Richmond PD Total Service Calls (2009) 26,500
Search and Rescue Sheriff Calls per 1,000 population 853
Investigations San Pablo Crime Activity
Traffic Enforcement San Pablo Arrests (2009) 1,539
SWAT San Pablo Violent Crimes (2009) 287
Temporary Holding San Pablo Property Crimes (2009) 960
Long-term Holding Sheriff Traffic Accidents 323
Bomb Squad Walnut Creek PD Violent Crime Rate per 100,0001 2,905
Canine (K-9) Services San Pablo Property Crime Rate per 100,0001 10,497
Staff Training San Pablo
Animal Control County
Service Adequacy Resources
Avg. Priority One Response Time 4:30 Total Staff (2010) 77
Response Time Base Year 2009 Sworn Staff 56
Clearance Rate of Violent Crimes2 28% Support Staff 21
Clearance Rate of Property Crimes2 10% Volunteers 3
Per Capita Cost (General Fund) $ 485 Sworn Staff per 1,000 population 1.9
Service Challenges
San Pablo PD did not report any significant challenges to providing law enforcement services.
Facilities
Station Location Condition Built
Main Station 13880 San Pablo Ave Very Good 2008
San Pablo, CA
Current Facility-Sharing and Regional Collaboration
San Pablo PD participates in the East Bay Regional Communication System, ICS, WestNET, and Contra Costa
Mobile Field Force.
Opportunities for Facility-Sharing and Regional Collaboration
San Pablo PD did not identify any future opportunities for facility-sharing or regional collaborations.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
230
City of San Ramon
21. City of San Ramon
The City of San Ramon 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 central portion of the County. For general information on the City and related
determinations refer to this MSR.
Basic information on the San Ramon 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 City of San Ramon is a charter city, which was incorporated in 1983. Its boundary area is
approximately 18.4 square miles. The City’s SOI encompasses three separate unincorporated areas,
one in the northwest (Bollinger Canyon area), one in the southwest (Norris Canyon area) and one in
the southeast (Dougherty Valley area). (Refer to Map 21-1.)
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,
as the department head for the Police Department (PD), 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: “Coffee with the
Cops”; Character Counts (a high school program about character and ethics); the Crime Free Multi-
Housing Program; the Crime Free Business Program; Neighborhood Watch; CERT Program
(training citizens in emergency and disaster preparedness); the Ride-Along Program (citizens tour
day-to-day operations of police officers); and the Citizens Volunteer Program. The Department
sponsors an Explorer/Cadet program, which teaches different aspects of law enforcement to youth
possibly interested in a career in police work, and runs a Youth Policing Academy in the summer.
Additionally, the Department takes part in educating senior citizens on identity theft. The
Department makes crime statistics and other information available on its website. The Department
also has a weekly column in the newspaper, and makes themselves accessible to citizens by e-mail.
If a constituent has a complaint regarding the Department or its employees, contact information
is available online, and complaints may be submitted in person, by email, mail, or over the phone.
Informal complaints are handled immediately by supervisors. Formal complaints are handled
through the internal affairs (IA) process. For the San Ramon PD, in 2007 there were two
complaints and both were sustained; in 2008 there were six complaints in which four were
231
Law Enforcement MSR
sustained and two not sustained; and in 2009 there were four complaints in which one was
unfounded, one was exonerated, and two were sustained.
San Ramon 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
Per the City’s FY 10-11 budget, the Department has 77.5 authorized FTEs or 81 positions. Of
the 81 positions, 58 are sworn and 23 are support positions. The Department is supplemented by a
volunteer program that presently has approximately 45 volunteers, and an Explorer/Cadet
Program. Volunteers help with special events, collect emergency contact information from local
business owners, help in the front offices with administrative work, assist the detectives and the
youth resource officer, conduct tours of the police station, and help with other community outreach
programs.
The Department is divided into two bureaus: Operations and Administration. One Captain
oversees both bureaus, and reports to the Chief. The Operations Bureau is divided into three
divisions: Traffic, Patrol, and Investigations. One lieutenant oversees these three divisions. The
Administration Bureau is comprised of four different functional areas: Finance, Executive Support,
Records, and Professional Standards and Training. Youth Services, Character Counts, Crime
Prevention, and Property/Evidence are additional areas of responsibility that complete the
Professional Standards and Training Division. One lieutenant is assigned to oversee each area.
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.
Each year the police department sets goals for the coming year. These goals are established
working in conjunction with the City Council, City Manager, residents and staff. At the end of each
year, the Department’s success in achieving the established goals is evaluated, and goals are set for
the upcoming year. Departmental goals, and related deadlines for completion, are established
during the City’s annual budget process. Major action plan items, as outlined in the FY 11-12
budget are: 1) deploying reclassified lieutenant positions; 2) implementing City Council approved
department reorganization; 3) realigning city patrol beat structure for greater efficiency; 4)
beginning the implementation of a reserve officer program; 5) conducting a shelter training and
exercise; 6) implementing an emergency operations plan; and 7) implementing a Field Operations
Center at Public Services.
Sworn officers are evaluated annually. New staff are evaluated after 12 months of a probation
period. The Department has a “pay for performance” program, meaning officers are rewarded for
outstanding performance. If a sworn officer ‘meets’ expectations, then the officer receives an
annual bonus of an additional paid vacation day. If the sworn officer ‘exceeds’ expectations, then
the officer receives an annual bonus of two additional paid vacation days. Determinations are made
as part of the annual evaluation.
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 both its annual report and during the budget process. The Department also
conducts a quality assurance survey to evaluate the public’s perception of law enforcement services
in the City.
As part of the quality assurance survey, supervisors of employees of the Department
periodically contact citizens that have interacted with department employees. The contact is
conducted on a random basis. Throughout FY 09–10, 706 quality assurance surveys were
completed with random citizens who interacted with the Department. Thirty-four police officers
232
City of San Ramon
were reviewed throughout the survey process. The questionnaire allowed respondents to rate their
experience with each officer as very satisfied, satisfied or dissatisfied. Of the respondents, 99
percent reported that they were satisfied or very satisfied with the services received from San
Ramon PD.
Planning documents that guide San Ramon PD’s services are the City’s 2000-2020 General Plan
(adopted in March 2002), the Planning the City’s Future General Plan 2030 Update (adopted in
April 2011), and a mission statement.
General Plan Service Standards for police are as follows:
Prior to project approval, require written verification from the San Ramon Police
Department that a three- to five-minute response time for emergency calls and a 20-minute
response for all other calls can be maintained 95 percent of the time.
San Ramon PD currently meets the response time standard with a response time for Priority
One calls of three minutes and 30 seconds. The City meets the response time standard for other
calls with an average overall response time for routine calls of a little over 10 minutes per call.
Financial planning documents include the annual budget, a capital improvement plan, and
comprehensive annual financial reports. The City’s capital improvement program is a multi-year
planning program for the construction of new facilities and infrastructure, and for the expansion,
rehabilitation, or replacement of City-owned assets. The plan covers a five-year period and is
updated by staff and approved by the City Council each year. Engineering Services is responsible
for the administration and implementation of the CIP and capital budget. The program is a guide
for identifying current and future fiscal year requirements and becomes the basis for determining
the annual capital budget. The capital budget is the first year of the CIP. The capital budget is
incorporated in the annual budget, which appropriates funds for specific facilities and
improvements. Projects slated for subsequent years in the program are approved on a planning
basis and do not receive ultimate expenditure authority until they are eventually incorporated in a
capital budget. San Ramon’s current CIP is for the period FY 10-11 – 15-16, and consists of 18
projects in construction, of which one project is related to law enforcement services—the purchase
and improvement of the new police headquarters.
Population and Growth Projections
According to the 2010 Census, the population of the City is 72,148. Over the last 10 years, the
population of San Ramon has grown by 61 percent.
The City anticipates that growth will continue to be strong over the next decade; however, the
City has very little vacant land available for new development within its current City limits, with the
exception of the newly annexed Faria Preserve area. Additional growth potential exists within the
SOI; however, much of the SOI areas are outside of the adopted ULL. In order to direct and organize
anticipated growth, the City has adopted specific plans for Dougherty Valley, the Westside, and
North Camino Ramon.
Based on ABAG projections, the City is anticipated to grow by 43 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 90,900 in 2035.
Based on the adopted General Plan standard, the Department is obligated to evaluate the PD’s
ability to respond within adopted response time standards to any proposed developments. 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.
233
Map 21-1
City of San Ramon Boundary, Urban Growth Boundary, and Sphere of Influence
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®
This map was created by the Contra Costa County Community Development
65 b 1 y P C i o n n e t r S a t r C e o et s , t a 4 t C h o F M u lo n a o t p y r c C N re o o m a r t t m e h d u W 1 n i i / n t 1 y g 6 , D / 2 M e 0 v a 0 e r 9 t l i o n p e m z, e C n A t, G 94 IS 5 5 G 3 r - o 0 u 0 p 95 tax b a ra s t e e D d a e a r p t e a a a , r s t p m . r i W e m n h a t i r l w i e ly it o h C b i l d t i y g a a t L a t i e m f d ro i t t m s o , u t is h s e d e e C th r o iv is n e t d d ra a f t r C a o o m th s e t t a h C e C o C o u u A n n t S y ty t a a G s te s IS u B m P o e r a o s r g d n r o a o f m r E e . q s S p u o o al n m iz s e a ib ti i o lit n y ' s for
37:59:48.455N 122:06:35.384W its accuracy. This map contains copyrighted information and may not be altered. It may be
reproduced in its current state if the source is cited. Users of this map agree to read and
accept the County of Contra Costa disclaimer of liability for geographic information.
City of San Ramon
The ccurrently adoopted SOI for the City includes approoximately 300.7 square mmiles and inccludes
the Douggherty Valleyy Specific Pllan Area, thee Westside (Norris Cannyon) Specifiic Plan Areaa, and
Bollingerr Canyon, northwest of thhe City. Thee Dougherty Valley area and a portioon of the Citty are
provided law enforceement servicces by the SSan Ramon PPD through a financing mechanism from
County Service Area M-29. Referr to the CSA MM-29 sectionn of Chapter 23 for detaiils. (Refer too Map
21-1.)
Finaancing
The DDepartment’ss services arre financed pprimarily thrrough the Geeneral Fund (64 percentt) and
the Douggherty Valleyy Special Revvenue Fund (36 percentt), and augmmented by thhe Police Serrvices
Fund which accountss for less than one percennt of total PDD expenditurres. The Police Services Fund
tracks revvenue from ddonations annd fines and fforfeitures.
The DDougherty Vaalley Fund wwas created to track revennue and exppenditures asssociated witth the
services pprovided in County Servvice Area (CSSA) M-29. Peer existing aagreements wwith Contra Costa
County annd the majorr developerss in Doughertty Valley, thee City is requuired to sepaarately budget for
and trackk expenditurres to providde services in the area covered in the agreemeents. As thee City
proceeds with annexiing land in thhe Doughertyy Valley areaa, and build-out continuees, this area oof the
budget ccontinues too grow. Thhe fund traccks expenditures that aare reimburrsable under the
agreemennts, includinng police paatrols, park maintenancce, road maaintenance, and landscaping
services. The City is required to cclaim reimbuursement froom the Counnty for these expenses. DDue to
the slow real estate mmarket fundds available ffrom assessmment revenuues have not kept up witth the
cost of pproviding serrvices in thee area. In FFY 10-11, $22.0 million oof Special Reeserves are bbeing
utilized tto make up the differennce. In futuree years the General Funnd will needd to make up the
difference until homee sales rebound.
Revennues are also collected ffrom charges for servicees ($668,9911 in FY 09-110) and operrating
grants ($155,048 in FFY 09-10), annd are considdered Generaal Fund moniies.
Figuree 21-1: San RRamon PD Expenditures (FYs 08, 09, & 10)
PD eexpendituress over the last
three fisccal years haave increaseed by
16 percent, as shownn in Figure 20-1.
In FY 09--10, the primmary expensees for
the Depaartment werre personnell (84
percent), contract services ((nine
percent), materials and suppplies
(three percent), othher costs (tthree
percent), and capitall purchases (less
than one percent).
At thhe end of FYY 09-10, the City
had $1199 million in long-term debt,
none of which wass related to law
enforcemment servvices. The
Redeveloopment Agenncy purchased the
property for thee new ppolice
headquarrters facility, which is disscussed furthher in the Inffrastructure section, and did not incuur any
debt.
San RRamon takes part in thhe Municipall Pooling Auuthority joinnt powers aauthority forr risk
managemment coveragge.
2235
Law Enforcement MSR
Law Enforcement
Nature and Extent
Upon incorporation in 1983, San Ramon contracted with the Sheriff’s Office (SO) for law
enforcement services. On July 1, 2007, the City established its own police department.
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 Department is responsible for community policing, has a Special Weapons and Tactics (SWAT)
Team, and conducts emergency preparedness training. San Ramon PD also participates in the
Central Contra Costa Narcotic Enforcement Team (CCCNET) and is a member to an agreement with
the Town of Danville, San Ramon Valley Fire Protection District and San Ramon Valley Unified
School District to collaborate on improving the emergency preparedness of the San Ramon Valley
community
The Department relies on the SO for police dispatch services, detention facilities, and search
and rescue; County Animal Control for animal services; and Walnut Creek for bomb squad.
The Department has considered taking on dispatch in conjunction the Walnut Creek PD. The
Department worked on a joint dispatch inter-agency task force to evaluate the potential of San
Ramon PD sharing dispatch facilities with Walnut Creek PD. Results of the study in 2009 indicated
that it was not financially feasible to augment a shared dispatch facility.
The Sheriff’s Department also provides safety services within the City by responding to a City of
San Ramon “critical incident” in which a request has been made for “mutual aid.”
San Ramon PD does not provide contract services to other agencies.
Patrol
San Ramon PD patrols 18.4 square miles in the City, plus approximately three square miles in
the Dougherty Valley. The total patrol area is divided into six beats. The Patrol Division consists of
six teams, with three to four officers, one corporal and one sergeant on each watch, who rotate
shifts to provide 24-hour coverage, 7 days per week. San Ramon utilizes a single officer for each
beat vehicle. By maintaining area assignments (beats), patrol reduces overall response time and
provides comprehensive coverage to the City of San Ramon. Additionally, to augment specific
patrol duties, the Patrol Division utilizes three police service dogs and their handlers.
Staffing
Figure 21-2: San Ramon PD Staffing Levels
Over the last three FYs (09, 10, 11), Position FY 08-09 FY 09-10 FY 10-11
unlike many other city police Chief 1 1 1
departments, San Ramon has been able Captain 1 1 1
to maintain stable staffing levels, and Lieutenant 2 2 2
actually added two sworn positions in FY Sergeants 9 9 9
09-10. (Refer to Figure 21-2.) Corporal 0 10 10
Detective 5 5 5
Staffing levels are determined
Police Officer 36 26 27
annually as part of the City budget
K-9 Officer 2 2 3
process. San Ramon PD presently
Community Service Officer 3 3 3
employs 0.8 sworn officers per capita.
Office Support Staff 20 20 20
TOTAL 79 79 81
236
City of San Ramon
Location
San Ramon PD provides services throughout the City’s territory, and in addition, provides
services outside its boundaries through mutual aid agreements. These joint mutual aid agreements
include: 1) the Officer Involved Fatal Incident Protocol which provides fatal incident investigations
for the entirety of Contra Costa County; 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 also provides law enforcement services to the city and unincorporated
portions of Dougherty Valley through CSA M-29. 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. Approximately 68 percent of the District territory is within the City Limits of the City
of San Ramon, and 32 percent is within the unincorporated area. (For more information on CSA M-
29, refer to Chapter 23.)
The Department did not identify any areas within the City’s boundaries that are particularly
challenging to serve.
Infrastructure
San Ramon PD will be operating out of a new police headquarters at 2401 Crow Canyon Road at
Bollinger Canyon Road starting in July 2011. The new headquarters will be shared with several
other city departments. The Department relocated as the previous facilities were inadequate, due
to poor vehicle parking areas and insufficient space to house all police functions at one site. Several
services were based in leased spaces throughout the City, including investigations, youth services,
training, internal affairs, and evidence.
The Department also operates out of a substation in Dougherty Valley. The substation was built
in 2004 and was identified as being in excellent condition. No infrastructure needs or deficiencies
were identified for this facility.
The Police Department fleet consists of 60 vehicles, including patrol cars, traffic safety vehicles
(cars/motorcycles/radar trailers), investigation cars, PST vehicles and emergency command units.
The City reported that it is looking for a replacement model for the Ford Crown Victoria Police
Interceptor that is going out of production in 2012. The Department did not report any other needs
related to vehicles or equipment. Depending on the condition of the vehicles, patrol cars are pulled
out of service between 80,000 and 100,000 miles. If the vehicles are still in good condition, they are
used for non-emergency response purposes or taken to auction.
Service Demand and Service Adequacy
Each law enforcement agency has been evaluated using a number of factors. These factors are
indicated in Figure 21-4: San Ramon 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.
237
Law Enfoorcement MSRR
Servvice Demandd
Figure 21-33: Violent and Property CCrimes (2007--2009)
An increase in
populatioon does not
necessariily indicatte an
increase in level of ddemand,
such as crimes and service
calls. In fact, during the last
three yyears, the annual
number of crimes aand the
number oof crimes peer capita
have hadd a downward trend.
As showwn in Figurre 21-3,
while thee number off violent
crimes has reemained
relativelyy static ovver this
time period, the nummber of
property crimes has ddeclined
by almosst 18 percennt. Based onn the numbeer of propertty and violennt crimes beetween 20077 and
2009, the City had approximateely eight repported crimees per 1,000 residents, while provviders
countywiide averagedd 21 crimes per 1,000 reesidents. Thhe City averaaged 57,7000 service callls per
year in 20007, 2008 annd 2009, whiich is 838 serrvice calls peer 1,000 residdents. By comparison, seervice
providerss countywidde averaged 1,500 serviice calls perr 1,000 residents durinng the same time
period.
The CCity reportedd that it has particularly high demannd in Dougheerty Valley, wwhere popullation
growth has been conssiderable.
Servvice Adequaccy
Adequacy of law enforcement services caan be evaluaated based onn a number of elements. For
the purpooses of this rreport, servicces provided by Brentwoood PD are asssessed according to respponse
times, cleearance ratess (the portionn of crimes solved) and staffing ratioss.
Althoough police rresponse timmes for serioous crimes inn progress aare an imporrtant indicattor of
service aadequacy, theere are not clear standaards as to wwhat that response time should be. PPolice
response times were traditionallyy used to measure effecctiveness. Hoowever, moree recent research
indicates that responnse time does not have a significannt effect on crime-solvinng, because most
crimes arre “cold” criimes and victims do noot tend to caall police immmediately aafter the crimme is
committeed. The moddern approach to responnse time—ddifferential rresponse—iss to ensure quick
response to serious ccrimes (Priorrity 1) in proogress, whenn there are oopportunities to save a vvictim
and/or too apprehendd the criminaal, and to infoorm lower-ppriority calleers (Priority 2 through 6)) that
response time may bee lengthy. Exxperiments indicate that differential response leaads to both ciitizen
and officeer satisfactioon.39 Responnse times aree dependentt on the agenncy’s staffingg level and size of
the jurisddiction serveed. San Rammon PD on avverage respoonds to Prioority 1 incideents within sseven
minutes and eight seeconds, while law enforccement provviders counttywide averaaged five minutes
and 44 seeconds for Prriority 1 inciddents.
39 Walker annd Katz, 2002.
2238
City of San Ramon
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 20-4, San Ramon PD had a clearance rate of 45 percent for violent crimes (homicide,
forcible rape, robbery and aggravated assault) committed in 2007, 2008 and 2009, and a clearance
rate of seven percent for property crimes (burglary, motor vehicle theft, and thefts of greater than
$400) during the same period. By comparison, providers countywide on average cleared 38.3
percent of violent crimes and 10.6 percent of property crimes, meaning San Ramon PD solves a
significantly larger portion of violent crimes and a smaller portion of property crimes within its
jurisdiction than the average of other providers in the County.40
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 0.7 sworn staff per 1,000 residents in Danville and Lafayette to 2.0 in Kensington CSD.
San Ramon PD is below the countywide average of 1.2 sworn staff per 1,000 residents, with a sworn
staff to resident ratio of 0.8 per 1,000 residents.
40 Clearance rates for all agencies provided by the California State Department of Justice, Criminal Justice Statistics Center. 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.
239
Law Enforcement MSR
Figure 21-4: San Ramon Law Enforcement Overview
San Ramon Law Enforcement Profile
Service Configuration Service Demand
Patrol San Ramon Population (2009) 68,779
Number of Beats 6 Population (2010) 72,148
Dispatch Sheriff Total Service Calls (2009) 57,700
Search and Rescue Sheriff Calls per 1,000 population 838
Investigations San Ramon Crime Activity
Traffic Enforcement San Ramon Arrests (2009) 500
SWAT San Ramon Violent Crimes (2009) 46
Temporary Holding None Property Crimes (2009) 510
Long-term Holding Sheriff Traffic Accidents 826
Bomb Squad Walnut Creek Violent Crime Rate per 100,0001 244
Canine (K-9) Services San Ramon Property Crime Rate per 100,0001 2,623
Staff Training San Ramon
Animal Control County
Service Adequacy Resources
Avg. Priority One Response Time 7:08 Total Staff (2010) 81
Response Time Base Year 2009 Sworn Staff 58
Clearance Rate of Violent Crimes2 45% Support Staff 23
Clearance Rate of Property Crimes2 7% Volunteers 40
Per Capita Cost (General Fund) $ 141 Sworn Staff per 1,000 population 0.8
Service Challenges
The City did not report any significant challenges to providing law enforcment services.
Facilities
Station Location Condition Built
Main Station 2401 Crow Canyon Road Excellent Refurbished
San Ramon, CA in 2011
(location effective as of July 2011)
Dougherty Valley 17011 Bolinger Canyon Road Excellent 2006
Substation San Ramon, CA
Current Facility-Sharing and Regional Collaboration
San Ramon PD shares facilities with the Sherriff's Office by contracting for dispatching services. The
Departement will also be sharing the new police headquarters with the planning, building, engineering,
transportation and economic development departments.
Opportunities for Facility-Sharing and Regional Collaboration
The Department worked on a joint dispatch inter-agency task force to evaluate the potential of San Ramon
Police Department dispatch sharing with Walnut Creek Police Department.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
240
City of Walnut Creek
22. City of Walnut Creek
The City of Walnut Creek 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 central portion of the County. For general information on the City and related
determinations refer to this MSR.
Basic information on the Walnut Creek Police Department is contained
in the Central County Sub-regional MSR adopted by the Commission
on September 9, 2009. (www.contracostalafco.org)
Agency Overview
Background
The City of Walnut Creek is a general law city, which was incorporated in 1914. Its boundary
area is approximately 19.8 square miles. The City’s SOI encompasses seven adjacent
unincorporated areas on the edges of the City and three unincorporated islands fully surrounded by
the City. (Refer to Map 22-1.) 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. 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 maintains a daily bulletin
and makes crime statistics and other information available on its website. Additionally, the
Department has a large cadet program through which high school and college students are given
the opportunity to work with police officers as they explore law enforcement career opportunities.
Police volunteers perform vacation house checks by executing a thorough inspection of owners’
property while they are away. As described in the 2007 Strategic Plan, with increased demands on
resources and the State’s continued pressure on cities’ financial resources, maintaining and
enhancing services can become more difficult. The Police Department believes that these
challenges can only be effectively addressed by involving the community. The Department
encourages constituent involvement through the Citizen’s Input page on its website.
241
Law Enforcement MSR
If a customer is dissatisfied with the PD’s services, complaints may be submitted by phone, in
person, or e-mail. In addition, there is a complaint form available online. Each inquiry is reviewed
and forwarded to the Chief for appropriate action. The Chief also acts as the Department
ombudsman. For the Walnut Creek PD, in 2007 there were seven complaints of which three were
sustained, three were exonerated and one was unsubstantiated (service complaint only); in 2008
there were two complaints of which one was sustained and one was exonerated; and in 2009 there
were six complaints of which five were exonerated and one was unfounded.
Walnut Creek 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
Per the City’s FY 10-12 budget, the Department has 120 authorized positions and 111 funded
positions, 76 of which are sworn personnel positions and 35 are support personnel. Nine positions
(five sworn and four civilian) are ‘frozen.’ Additionally, due to the temporary reassignment of
several positions to cover the understaffing of patrol personnel, eight specialty sworn positions and
two civilian positions are currently not available. The Department is supplemented by volunteers
who provide key assistance with several of the Department’s programs. Volunteer personnel
include reserve officers, members of the Cadet Program, and Volunteers in Police Service (VIPS),
including the Chaplain Program. Presently, there are 33 VIPS volunteers, 34 reserves and 15
cadets.
The Department is divided into two divisions, Administration and Operations, each commanded
by a Captain directly accountable to the Chief of Police. The Administration Division has a Services
Bureau which is headed by a Lieutenant and consists of the Records Department, Communications
Department, Training Department, and Volunteers. The Operations Division consists of six patrol
teams supervised by three Lieutenants, and an Operations Unit (traffic, parking enforcement,
general operations and community policing) supervised by a Lieutenant. Each patrol team consists
of one Sergeant and from five to seven patrol officers. It also includes an Investigations Bureau
directed by a Lieutenant, which includes person crimes, narcotics and vice, and property crime.
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 Department prioritizes security of the downtown shopping area. It also practices strict
night enforcement. The Department reported that prioritized short-term quantifiable goals of the
PD include reducing property crime by five percent, increasing the number of volunteers by 15
percent, emphasizing employee health and nutrition, increasing communication with the
community via Facebook and Twitter, and reducing the number of DUI-related traffic accidents. All
of these measures are currently being implemented.
Department employees are evaluated regularly depending on their position. Patrol officers are
evaluated every four months, with all other employees evaluated annually. The probation period
for police officers and dispatchers is 18-months, with a 12-month probation period for all other
employees and upon promotion. To track employee workload, supervisors assess all work
schedules and duties performed. The performance of the Department is evaluated every two years
during the biennial budget process. As part of the budget preparation process, the City Council
adopts goals and objectives for the two year period and evaluates the progress made on goals
established as part of the previous budget. The budget outlines accomplishments and goals for
each division of the Department with related performance and workload measurements. The
Department does not perform benchmarking or comparison of its services with other similar
providers.
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City of Walnut Creek
In order to improve efficiencies, the Department has implemented several strategies, such as
cross-training officers; providing more services online including Mobile ID; using reserves more
extensively; and utilizing a “generalist” approach where an officer processes a case from start to
finish.
Planning documents that guide the PD’s services are the City’s 2025 General Plan, which was
adopted in April 2006, and mission and values statements.
General Plan Service Standards for police are as follows:
Maintain a response time of less than five minutes for emergency calls and less than 20
minutes 95 percent of the time for other calls.
Walnut Creek PD currently meets the response time standard for all calls.
Financial planning documents include the biennial budget and a capital improvement plan. The
City’s capital investment program is a two year planning program adopted as part of the budget for
managing the development, design, construction, maintenance and renovation of major capital
projects. The latest CIP outlines projects for FY 10-12, of which there are no projects related to law
enforcement services.
Population and Growth Projections
According to the 2010 Census, the population of the City is 64,173. Over the last 10 years, the
population of Walnut Creek has declined by 0.2 percent.
The City relies on ABAG projections for its population forecast in the General Plan. Based on
ABAG projections, the City is anticipated to grow by 16 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 countywide growth is anticipated to be 21 percent. ABAG projects that
the City’s population will be 79,300 in 2035.
The City projects that the rate of residential development will be slowing in order to pace the
remaining build out of the community over the next 10-15 years. The City anticipates reduced rates
of growth in the future, and is implementing specific plans and corridor studies to accommodate
this change and related impacts of capital improvement funding and related financial and service
matters.
The 2025 General Plan limits commercial growth through 2015, by restricting new commercial
development (exclusive of the Shadelands Business Park) to 75,000 square feet per year, metered
in two-year periods. This will result in a maximum allowable commercial development of 750,000
square feet over 10 years. Present growth is concentrated in the downtown area, and is reflected in
the Locust/Mt. Diablo Boulevard Specific Plan. If each site in the plan is developed to its full
potential, it will add 136,000 square feet of retail and restaurant space, 46 new housing units, 60
hotel rooms, 97,300 square feet of office space and 799 off-street parking spaces. Other projects
include the Walnut Creek BART Station Mixed Use Project, the Walnut Creek Professional Center,
the Contra Costa Jewish Community Center, the Oak Lane Project, the Broadway Plaza Retail
Project, and the Neiman Marcus Department Store.
Growth strategies related to law enforcement in the City include performance standards
adopted as part of the Safety and Noise section of the City’s General Plan as indicated above. In
addition, the City supports the PD by seeking ways to reduce police service demands through
project design enhancements, incorporating crime-reduction and public-safety features in the
design and planning of private and public projects, and by submitting all discretionary permits to
the PD for analysis of and recommendations to reduce impacts on police services.
243
Law Enforcement MSR
In its 2007 Strategic Plan, Walnut Creek PD indicated that increases in alcohol-licensed
businesses, commercial growth and mixed-use development in the downtown area are predicted to
impact the delivery of police services. Because of increases in the use of resources required to
manage the downtown core, PD staff will spend more time downtown than in outlying areas.
Within the city and on the periphery are significant unincorporated islands and unincorporated
pockets, some of which can be classified as urban communities Within the Walnut Creek SOI are
nine separate areas, most of which are developed with low-density single-family residential uses.
These areas are inhabited (more than 12 registered voters) and are essentially continuations of
existing neighborhoods already within the City. These include:
San Miguel – a residentially developed census designated place (CDP) consisting of
approximately 672 acres and a 2010 population of 3,392. Located east of Interstate 680
and South Broadway, and north of Rudgear Road. This is an unincorporated island
located within the City of Walnut Creek.
Walnut Boulevard-Shady Glen Road Area – a residentially developed area consisting of
approximately 64 acres with an approximate population of 220. Located between San
Miguel and Shell Ridge areas. This is an unincorporated island located within the City of
Walnut Creek.
Shell Ridge - a residentially developed CDP consisting of approximately 275 acres and a
2010 population of 959. Located between Ygnacio Valley Road on the north and Shell
Ridge Open Space area on the south. This is an unincorporated island located within the
City of Walnut Creek.
Contra Costa Centre – a transit-oriented multi-use development consisting of office and
commercial space, hotels, multi-family residential units, and open space consisting of
approximately 448 acres with a 2010 population of 5,133. (Formerly Waldon CDP.)
Located at the Pleasant Hill BART Station east of I-680 at Treat Boulevard. This is an
unincorporated island in which the City of Pleasant Hill City Limit forms the northern
boundary. All but the northerly-most part is within the Walnut Creek SOI.
Acalanes Ridge – a residentially developed CDP consisting of approximately 250 acres
and a 2010 population of 1,137. Located west of I-680 and north of Acalanes Park. This
is an unincorporated island in which the City of Lafayette City Limit forms the western
boundary. All of this area is within the Walnut Creek SOI.
Reliez Valley – a residentially developed CDP consisting of approximately 1,512 acres
and a 2010 population of 3,101. Located along Taylor Boulevard and Pleasant Valley
Road in the northwest Walnut Creek area. Only that portion of Reliez Valley south of
Pleasant Valley Road (consisting of approximately 55 acres and an estimated population
of 200) is within the Walnut Creek SOI.
Saranap – a residentially developed CDP consisting of approximately 726 acres and a
2010 population of 5,202. Located north and south of State Highway 24 and west of
Interstate 680. The area north of Highway 24 and the easterly half of the area south of
Highway 24 (estimated at 480 acres and a population of 3,500) is within the Walnut
Creek SOI.
Castle Hill – is a low-density residentially developed CDP consisting of approximately
466 acres and a 2010 population of 1,299. Located in the southern portion of Walnut
Creek between I-680 on the east and Rossmoor on the west. All of this area is within the
Walnut Creek SOI.
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City of Walnut Creek
North Gate – a residentially developed CDP consisting of approximately 421 acres and a
2010 population of 679. Located in the easterly portion of Walnut Creek south of Oak
Grove Road. All of this area is within the Walnut Creek SOI.
Refer to Map 22-1 for the locations of these unincorporated areas.
The composite population of these nine areas is approximately 16,500. Law enforcement
services to these areas are provided by the Contra Costa County Sheriff’s Office (SO). The SO
reports that serving these unincorporated islands and pockets does not pose any significant
problems because they have been serving these areas for a considerable period of time. Both the
Walnut Creek PD and the SO indicated that these areas are not difficult to serve as each agency is
knowledgeable of its respective service areas.
The Contra Costa Centre contracts with the SO for one Resident Deputy. The remaining areas
receive regular beat patrol services from the SO. These areas are also within County Service Area P-
6, the county-wide police services district. There are also 16 P-6 assessment zones in the Walnut
Creek area; however, they do not currently generate sufficient funds to warrant enhanced police
services by the addition of Resident Deputies.
Only one of the unincorporated islands (the Walnut Boulevard-Shady Glen Road Area) qualifies
for the streamlined annexation procedures under Government Code Section 56375.3 because it is
less than 150 acres in size. The other islands exceed this threshold and will require consent of a
majority of the property owners along with a majority of the registered voters within the island in
order to annex to Walnut Creek.
245
Map 22-1
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Citty of Walnut Creek
Finaancing
Per thhe City’s FY 110-12 budget, the PD hass 120.0 authoorized full timme equivalennt (FTE) posiitions
of which 81.0 are swworn officerss and 39.0 aare support personnel. Currently nnine positionns are
frozen. AAuthorized ppositions mayy not correlaate directly wwith positionns by type as reported bby the
Departmeent due to frozen positions, part-timee employees and vacancies. The Depaartment’s serrvices
are financed primarily through thhe General Fuund and augmmented by thhe Traffic Saffety/Police GGrants
Special RRevenue Fundd which accoounts for fines paid to thhe City from the State Mootor Vehicle Code
and fromm police relatted grants too be used forr public safeety purposes. Revenues are comprissed of
intergoveernmental ($$153,780), innvestment aand rental inncome ($229), and finees and forfeiitures
($186,838), and are cconsidered GGeneral Fundd monies. Foor the 2009-10 Fi9scal YYear, expendiitures
exceededd appropriatiions at the fuund level for Traffic Safetty/Police Graants Special Revenue Funnd by
$40,457. These expennditures werre funded byy either greatter than antiicipated reveenues or available
reserves in these fundds.
Internnal Service Funds are uused to finaance and acccount for sppecial activitties and serrvices
performeed by a desiggnated deparrtment for otther departmments in the City on a cosst reimburseement
basis andd to accumullate funds for the future replacementt of capital iitems. The PPolice Radio Fund
accumulaates funds for the replaceement of police radios. AAt the end off FY 09-10, the balance inn this
fund was $238,006.
Figure 22-1: Walnut Creek PD Expenditures (FYs 08, 09, & 10)
Expennditures oveer the last thrree fiscal
years haave generallyy increased,, with a
seven percent increase from FY 007-08 to
FY 08-099, as shown inn Figure 22-1. In FY
09-10, the primaryy expenses for the
Departmeent were perrsonnel (84 ppercent),
supplies and servicees (15 perceent), and
capital ouutlays (one ppercent).41
At the end of FY 09-10, the City had
no longg-term debtt related to law
enforcemment servicess.
The CCity is a memmber of the MMunicipal
Pooling AAuthority of Northern California
(MPANC)). The AAuthority pprovides
coverageagainst the ffollowing typpes of loss risks under thhe terms of a joint-powerrs agreementt with
the City aand several oother cities annd governmeental agenciees.
41 The breakddown of expenses is based on estimatedd expenditures for FFY 09-10 describedd in the City of WWaalnut Creek 2010--2012 Budget for tthhe Police
Department.
2247
Law Enforcement MSR
Law Enforcement
Nature and Extent
The Police Department is responsible for providing law enforcement services in the City,
including patrol, investigations, traffic enforcement, dispatch, police training, and crime prevention.
The Department is responsible for community policing, operates temporary holding facilities, and
has a Special Weapons and Tactics (SWAT) team, bomb squad and canine unit. Walnut Creek PD
takes part in the East Bay Regional Communications System (EBRCS) for standardized
communications systems and radio interoperability.
The Department relies on the Sheriff’s Office for search and rescue services and long-term
holding facilities. It contracts with the County for animal services. Walnut Creek PD also has
agreements with Contra Costa County for probation, juvenile probation, background investigations,
forensic services, extradition services, VSET, and SPACE Team. The Department also collaborates
with the Contra Costa County Narcotics Enforcement Team (CNET), the Contra Costa DA, ATF, the
Northern California Computer Crimes Task Force (NCCCTF), the Children’s Interview Center,
Community Violence Solutions, the California Office of Traffic Safety, the Mutual Aid Mobile Field
Force (MAMFF), and Internet Crimes Against Children (ICAC).
The Sheriff’s Department provides safety services within the City by responding to a City of
Walnut Creek “critical incident” in which a request has been made for “mutual aid.”
Walnut Creek PD provides bomb squad services to all law enforcement agencies in the County.
The Squad, which was established in 1999, is composed of specially trained line personnel and
several bomb technicians. It responds to about 50 to 60 calls per year.
Patrol
Walnut Creek PD patrols 19.8 square miles which are divided into three sectors. There are six
patrol units with five to seven officers each to provide continuous staffing 24 hours a day, seven
days a week. A sergeant supervises each of the six patrol teams, and three lieutenants, as watch
commanders, share responsibility for managing all of the shifts. Patrol officers, sergeants and
lieutenants change teams and shift assignments every four months. There is generally a single
officer per patrol vehicle. The Patrol Division works a combined three-twelve, four-ten schedule.
Monday through Thursday there are four 10-hour shifts. Friday through Sunday there are three
12.5 hour shifts. Minimum staffing levels for all shifts range from four to six officers, with higher
staffing levels during evening shifts. The patrol schedule requires a minimum of 39 officers to
address all staffing needs. If the patrol force falls below the minimum staffing level necessary,
forced overtime is required to maintain minimums. When the patrol force goes below the
minimum for significant periods, officers are reassigned from special assignments to supplement
patrol. Reassigning personnel from investigations, traffic, and community policing services assures
that core and essential patrol functions are maintained; however, when personnel are removed
from special assignments the services provided to the community by those assignments are greatly
diminished.
248
City of Walnut Creek
Staffing
Figure 22-2: Walnut Creek PD Staffing Levels
Over the last three FYs (09, 10, Position FY 08-09 FY 09-10 FY 10-11
11), the Department has been
Chief 1 1 1
forced to reduce or freeze sworn
Captain 2 2 2
and civilian staff by several
Lieutenant 6 6 5
positions – one lieutenant, four
police officers,, two dispatchers, Detective 10 10 10
one Police Services Officer and one Police Officer 78 77 75
Civilian Manager for a total of nine K-9 Officer 1 2 2
positions frozen . (Refer to Figure
Disptacher 16 15 14
22-2.) These reductions are
Community Service Officer 9 9 9
attributed to the decline in General
Traffic Control Officer 7 7 7
Fund revenues (which funds 99%
of the Department), down three Records Specialist 6 6 6
percent from FY 09-10; sales tax Office Support Staff 2 2 2
(3% decline); and property tax (6% Training Coordinator 1 1 1
decline). Consequently, the PD now
Civilian Supervisor 3 3 3
relies more on volunteers and
Civilian Police Manager 1 1 1
reserves to maintain service levels.
TOTAL 143 142 138
Staffing levels are evaluated
through the biennial budget process, which attempts to balance community needs with available
financial resources. Walnut Creek PD presently employs 1.2 sworn officers per 1,000 population.
Retirements that are expected to occur in the next five years will create a potential need to hire 22
new officers and seven civilian employees.
Location
Walnut Creek PD provides services throughout the City’s territory, and in addition, provides
services outside its boundaries through mutual aid agreements. The Bomb Squad provides services
to all other law enforcement agencies within Contra Costa County on an as-needed basis. Walnut
Creek PD occasionally responds to adjacent counties and jurisdictions. It is also a part of the Mutual
Aid Field Force (MAMFF) along with other agencies in Contra Costa County. In addition, the
Department participates in an agreement between Contra Costa agencies to provide mutual aid as
requested.
The Department did not identify any areas within the City’s boundaries that are particularly
challenging to serve.
Infrastructure
Walnut Creek PD operates out of a police headquarters at 1666 N. Main Street. The combined
City Hall/police headquarters was built in 1995 and is considered to be in good condition. The
Department reported that the last expansion project of the police facilities took place in 2003-04.
The parking area is secure, but it is limited in size and may need expansion in the future. The
Department also operates a communication center.
There are no plans for capital improvements of police facilities in the near term, based on the
City’s FY 2010-2012 capital investment budget. There are also no plans for additional facilities.
249
Law Enfoorcement MSRR
The DDepartment ddid not report any needss related to vvehicles or eqquipment. TThe Strategic Plan,
however,, points out tthat as changes in technology occur, the Departmment needs tto be preparred to
capitalizee on technological changges to effectively and efffiiciently provvide police sservices. Somme of
the anticcipated futuure projects include insstalling inteeroperable ccommunicatiion systemss and
cameras throughout the City, aand upgradinng radio annd computerr systems. The departtment
extendedd both the yyears of servvice (six) and extended the mileagee to 120,0000 miles on ppatrol
vehicles. This help saaved fundingg by reducingg the numberr of new patrrol cars purcchased on a yyearly
basis.
Servicce Demand and Serrvice Adeqquacy
Each law enforcemment agencyy has been evvaluated usinng a numberr of factors. These factorrs are
indicatedd in Figure 222-4: Walnuut Creek Laww Enforcemennt Profile. TThese profilees can be ussed to
compare between ageencies, althouugh exact commparisons are not alwayys possible duue to the difffering
conditionns and policiing methods used. Refer also to Chapter 3: Law Enforcemment Overvieww for
comparisson tables.
Servvice Demandd
Figure 22-33: Violent and Property CCrimes (2007--2009)
Durinng the last thhree years,
the annuual number oof property
crimes and the nnumber of
crimes per capita did not
experiencce significannt change.
As shownn in Figure 22-3, both
violent crimes andd property
crimes ppeaked in 2008 and
slightly ddeclined in 22009. The
number of violent crimes rose
from 20007 to 20009 by 45
percent. Most of thhe increase
was due to aggravated assaults
occurringg throughouut the city.
Many of these “assaaults” were
misdemeeanors only wwith minor innjuries, but ddue to classiification repoorting guidellines by the State,
these shoow as aggraavated assauults. There was not ann increase inn assaults in the downntown
entertainnment districct and the ovverall violent crime rate in the City is very low. OOn the other hand,
the numbber of properrty crimes duuring the samme time periood declined bby one percent.
Basedd on the nummber of prooperty and vviolent crimees between 22007 and 20009, the Cityy had
approximmately 24 repported crimees per 1,0000 residents, wwhile providders countywwide averageed 21
crimes per 1,000 ressidents. Thee City averagged 37,000 sservice callss per year inn 2007, 20088 and
2009, whhich is 576 seervice calls pper 1,000 ressidents. By ccomparison, service provviders countyywide
averagedd 1,500 servicce calls per 11,000 residennts during the same time period.
The DDepartment reported thaat there is paarticularly hiigh demand during the dday when theere is
an influx of approximmately 65,0000 people for shopping annd business bbased on calcculations made by
ABAG.
2250
City of Walnut Creek
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 Walnut Creek 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.42 Response times are dependent on the agency’s staffing level and size of
the jurisdiction served. Walnut Creek PD on average responds to Priority 1 incidents within two
minutes and 30 seconds, while law enforcement providers countywide averaged five minutes and
44 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 22-4, Walnut Creek PD had a clearance rate of 44 percent for violent crimes (homicide,
forcible rape, robbery and aggravated assault) committed in 2007, 2008 and 2009, and a clearance
rate of nine percent for property crimes (burglary, motor vehicle theft, and thefts of greater than
$400) during the same period. By comparison, providers countywide on average cleared 38.3
percent of violent crimes and 10.6 percent of property crimes, meaning Walnut Creek PD solves a
larger portion of violent crimes, but smaller share of property crimes within its jurisdiction than the
average of other providers in the County. 43
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 0.7 sworn staff per 1,000 residents in Danville, Moraga and Lafayette to 2.0 in
Kensington CSD. Walnut Creek PD has the same number of sworn staff per 1,000 residents as the
countywide average of 1.2.
42 Walker and Katz, 2002.
43 Clearance rates for all agencies provided by the California State Department of Justice, Criminal Justice Statistics Center. 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.
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Law Enforcement MSR
Figure 22-4: Walnut Creek Law Enforcement Overview
Walnut Creek Law Enforcement Profile
Service Configuration Service Demand
Patrol Walnut Creek Population (2009) 64,185
Number of Beats 3 Population (2010) 64,173
Dispatch Walnut Creek Total Service Calls (2009) 37,000
Search and Rescue Sheriff Calls per 1,000 population 576
Investigations Walnut Creek Crime Activity
Traffic Enforcement Walnut Creek Arrests (2009) NP
SWAT Walnut Creek Violent Crimes (2009) 131
Temporary Holding Walnut Creek Property Crimes (2009) 1,394
Long-term Holding Sheriff Traffic Accidents 731
Bomb Squad Walnut Creek Violent Crime Rate per 100,0001 554
Canine (K-9) Services Walnut Creek Property Crime Rate per 100,0001 6,479
Staff Training Walnut Creek
Animal Control County
Service Adequacy Resources
Avg. Priority One Response Time 2:30 Total Staff (2010) 3 120
Response Time Base Year 2009 Sworn Staff 77
Clearance Rate of Violent Crimes2 44% Support Staff 43
Clearance Rate of Property Crimes2 9% Volunteers 57
Per Capita Cost (General Fund) $ 353 Sworn Staff per 1,000 population 1.2
Service Challenges
The primary challenge to providing adequate law enforcement services is the increasing service demand in the
downtown area. Other challenges include escalating labor and pension costs, changing availability of resources
among state and local governments, recruitment and retention of police employees, increases in the training
required for police employees, keeping up with technology advancements, and the closing of County social
services. It will also be difficult to find qualified personnel when several employees retire in the next few years.
Costs and limited personnel will dictate those services that are retained and those that are eliminated.
Facilities
Station Location Condition Built
PD Headquarters 1666 N. Main Street, Walnut Creek, CA Good 1995
Communications NP NP Moved in 2002
Center
Current Facility-Sharing and Regional Collaboration
The Department provides bomb squad services to all law enforcement agencies in the County. The PD
collaborates with multiple agencies and teams within the County and the State through mutual aid agreements.
Opportunities for Facility-Sharing and Regional Collaboration
No further opportunities for facility and resource sharing were identified by the Department.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
(3) Authorized positions.
252
County Service Areas
23. County Service Areas
Overview of the services provided. Where (which MSRs) additional information can be found
on non-law enforcement services for this particular agency.
County Service Area P-2
Background
County Service Area (CSA) P-2 (‘P’ for Police) was formed in 1981 to provide financing for
‘enhanced’ police services in the Blackhawk, Alamo and west Danville unincorporated areas. (Refer
to Map 23-1.) The District was formed under the provisions of California Government Code Section
25210 et seq.
CSA P-2 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. Because the CSA is a special district, it does not have land use
authority. Those responsibilities lie with Contra Costa County.
CSA P-2 includes three distinct areas: Blackhawk (which includes Zone A of CSA P-2); Alamo
(which includes Zone B of CSA P-2); and an unincorporated area adjacent to the Town (City) of
Danville (with no designated Zone). (Refer to Map 23-1) Because each area has different
characteristics, each will be addressed as separate sub-sections.
The Finance Services Unit demonstrated full accountability and transparency by cooperating
with LAFCO requests for information, documents and interviews during the MSR process.
253
Map 23-1
County Service Area P-2
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City Boundaries lv d u g
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®
This map was created by the Contra Costa County Community
Map created 4/11/2009 Development Department with data from the Contra Costa County GIS Program. Some
by Contra Costa County Community Development, GIS Group base data, primarily City Limits, is derived from the CA State Board of Equalization's tax rate Miles
651 Pine Street, 3 4 7 t : h 5 9 F : l 4 o 8 o . r 4 N 5 o 5N rth 1 W 2 i 2 n : g 0 , 6 M :3 a 5 r .3 tin 8 e 4 z W , CA 94553-0095 a T re h a is s . m W ap h i c le o n o t b a l i i n g s a t c e o d p t y o r ig us h e te t d h i i s n f d o a rm ta a t t h io e n C a o n u d n m ty a a y s s n u o m t b e e s a n l o te r r e e s d p . o I n t s m ib a i y lit y b e fo r r e i p ts r o a d c u c c u e ra d c in y. 0 0.375 0.75 1.5
its current state if the source is cited. Users of this map agree to read and accept the
County of Contra Costa disclaimer of liability for geographic information.
County Service Areas
CSA P-2, Zone A -- Blackhawk
Blackhawk consists of six gated communities, the Blackhawk Country Club, and the Blackhawk
Plaza shopping center. As a Census Designated Place (CDP) with the adjacent Camino Tassajara
area, Blackhawk is comprised of 9.3 square miles and has a 2010 population of 11,551. The
Blackhawk portion of the CDP has a population of 9,354 and the Camino Tassajara portion has a
population of 2,197. Zone A of CSA P-2 consists of 4.3 square miles (47% of the CDP area) with an
estimated population of 7,362 (2,446 households at 3.1 persons per household). Both the P-2 Zone
A area and the remainder of the Blackhawk-Camino Tassajara CDP (53% of the CDP area) are
within County Service Area P-6, the County-wide law enforcement services special district.
Accountability and Governance
There is a seven-member Advisory Committee for Zone A appointed by the Board. The
Committee meets monthly and provides input to the Board and the SO on Blackhawk police service
matters.
The Blackhawk Police Services office is located at 1092 Eagle Nest Place where Advisory
Committee agendas are posted.
There is no separate website for Zone A. Information may be obtained from the Finance
Services Unit at the SO, or through the Clerk of the Board and County Administrator.
Planning and Management Practices
CSA P-2, Zone A collects a portion of the Basic 1% Property Tax Allocation from properties
within Zone A (currently 0.46048% on average for Tax Rate Area (TRA) 66166, 0.46147% on
average for TRA 66050, and 0.45999%on average for TRA 66162. These taxes generate
approximately $125,000 per year for CSA P-2, Zone A. Zone A also assesses properties an annual
assessment of $280 for residential property and $1,680 for commercial property, although not all
properties are assessed based on a sampling of tax bills reviewed for this study. These assessments
generate approximately $721,000 per year. These revenues (property taxes and property
assessments) are utilized to provide law enforcement services to properties within CSA P-2, Zone A.
Properties within CSA P-2, Zone A are also within CSA P-6 (County-wide 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. However, it does not appear that there are any
P-6 Zones within Zone A (Blackhawk). (Refer also to the CSA P-6 Section of this report.)
CSA P-6 also collects a portion of the Basic 1% Property Tax Allocation (currently 1.20573% on
average) from properties within CSA P-2, Zone A for ‘basic’ law enforcement services. This is
appropriate because the Resident Deputies assigned to Blackhawk obtain support from the local
beat Deputies when the Resident Deputies are not on duty.
Population and Growth Projections
The area within the CSA currently has approximately 2,400 developed residential parcels, along
with the Blackhawk Country Club golf course, and the Blackhawk Plaza shopping center.
Blackhawk is predominately built-out, with perhaps five or six vacant residential building sites.
Development of these parcels would increase the population by 18 to 20 persons.
Financing
Funding for CSA P-2, Zone A is derived as described above. For FY 10-11 estimated revenue is
as follows: Property tax at $125,000 (14.5%); Special Tax (assessment) at $721,000 (84%); and
255
Law Enfoorcement MSRR
miscellanneous revenuue (fines, intterest, propeerty tax relieef) of $13,800 (1.5%) forr total revennue of
$859,8000. Revenues for Zone A have diminiished by aboout $10,000 per year ovver the past three
fiscal yeaars, with prroperty tax and assessmments holdinng steady, aand charges for servicess and
miscellanneous revenuue dropping. (Refer to Figgure 23-1.)
Figure 233-1: CSA P-2, Zone A Reveenues and Expenditures (FYs 08, 09, & 10)
Over the past tthree fiscal years,
costs forr services haave declinedd each
year. Cossts by categoory have aveeraged:
$669,0100 (90%) ffor salariess and
benefits; $7,611 (1%%) for servicees and
supplies; and $67,9882 (9%) for other
charges; for an aaverage tottal of
$744,6033 per year. For FY 10-11,
District expenses for salariess and
benefits are expecteed to increaase by
$103,0000. This is attributed tto the
increasedd costs forr retiremennt and
medical bbenefits. To offset thesee costs,
the Board has reduced ooverall
expendituures for FY 10-11 to
approximmately $7144,800, still within
the expected revenuues of $859,8800. Zone AA does mainntain reservve funds as follows: geeneral
reserve $$265,732; resserve for equuipment replacement $552,564; and rreserve for ppre-paid expeenses
$71,196.
In FY 08-09, a neww patrol vehiicle was purcchased for $331, 051.
Revennues and exppenses for thhe past three Fiscal Years are summarrized in Figurre 23-1.
Laaw Enforcemment Servicees
Enhanced law enfforcement seervices to the Blackhawkk area begann in 1985 andd are provided by
the SO. CCSA P-2, Zonne A funds one Resident Lieutenant and two Ressident Deputties, plus vehhicles
and otheer necessary supplies. TThe Lieutenant and thee Deputies eeach work fllexible/adjusstable
scheduless that correlate to commmunity issuees and activvities, including events aat the Blackkhawk
Country CClub and thee Blackhawk Plaza shopping center. DDuring perioods of time wwhen the Ressident
Lieutenannt and Deputties are off-dduty, the Sheeriff’s beat paatrol from thhe Valley Staation in the AAlamo
Plaza Shoopping Centeer provides coverage. Sinngle officers aare assigned to each beatt vehicle.
The RResident Lieuutenant attennds Advisoryy Committeee monthly mmeeting to keep the commmittee
updated aand to addreess any conceerns.
Throuugh the SO, CSA P-2, Zoone A also uutilizes disppatch servicees, investigative and forrensic
specialistts, and any oother speciallized servicees required. For more ddetailed discussion of the law
enforcemment servicess provided byy the SO please refer to Chhapter 26.
2256
County Service Areas
CSA P-2, 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 (CDP), Alamo is comprised of 20.6 square miles and has a 2010
population of 14,570. Zone B of CSA P-2 consists of 5.3 square miles (32% of the CDP area) with an
estimated population of 7,618 (2,627 households at 2.9 persons per household). Both the P-2 Zone
B area and the remainder of the Alamo CDP (68% of the CDP area) are within County Service Area
P-6, the County-wide law enforcement services special district. CSA P-5 (Roundhill) is within the
Alamo CDP, is adjacent to P-2 Zone B, and is also within County-wide CSA 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 B appointed by the Board, and includes
two members of the Alamo Municipal Advisory Council (MAC). The Committee meets monthly and
provides input to the Board 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.
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 Board and County Administrator.
Planning and Management Practices
CSA P-2, Zone B collects a portion of the Basic 1% Property Tax Allocation from properties
within Zone B (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
B. Zone B also assesses properties in Zone B 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 B.
Properties within CSA P-2, Zone B are also within CSA P-6 (County-wide 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 B territory. At
the present time there are 12 P-6 Zones within P-2 Zone B 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 B.
CSA P-6 also collects a portion of the Basic 1% Property Tax Allocation (currently 1.20573% on
average) from properties within CSA P-2, Zone B 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 B and CSA P-6. A portion of the Basic
1% Property Tax Allocation for properties within CSA M-30 is allocated to CSA P-2, Zone B and to
CSA P-6. Developed residential properties within CSA M-30 are charged an annual assessment for
257
Law Enfoorcement MSRR
M-30 services, and also pay an annnual assessmment to CSA P-2, Zone B and to CSA P-6. Refer tto the
Section on CSA M-30 for details annd also Map 23-5.
PPopulation annd Growth PProjections
The aarea within P-2 Zone BB currently ccontains appproximately 2,627 deveeloped resideential
parcels, aalong with coommercial arreas orientedd along Danvville Boulevarrd. A majority of the P-2 Zone
B servicee area is built-out. It is anticipated that populattion growth will be addded through in-fill
developmment projectss, mixed-use projects andd from increaased densitiees. No population projecctions
for the CSSA P-2, Zone B portion off Alamo have been made.
FFiinancing
Funding for CSA PP-2, Zone B iis derived ass described aabove. For FFY 10-11 estiimated revennue is
as followws: Propertyy tax at $1442,000 (68%%); Special TTax (assessmment) at $655,000 (31%); and
miscellanneous revenuue (fines, innterest, property tax reliief) of $2,7000 (1%) for total revennue of
$209,7000. Revenues for Zone B hhave been fairrly constant over the passt three fiscaal years, averraging
$212,4533. (Refer to FFigure 23-2.)
Figure 23-2: CSA P-2, Zone B Reveenues and Expenditures (FYs 08, 09, & 10)
Over the past thrree fiscal yeaars,
costs forr services hhave increassed
$10,000 to $20,000 pper year. Coosts
by cattegory havve averagged:
$155,3599 (84.5%) foor salaries aand
benefits; $2,819 (1.5%%) for services
and suppplies; and $$25,436 (144%)
for otherr charges; ffor an averaage
total of $$183,614 perr year. For FY
10-11, Diistrict expennses for salarries
and bennefits are expected to
increase significantlyy by $264,000.
This is aattributed too the increassed
costs forr retirementt and mediical
benefits. Expenditurees for FY 10--11
are expected to be $482,648, wwell
above thhe expectedd revenues of
$209,7000. Zone B dooes maintain reserve funds as followss: general reeserve $298,970; and reserve
for equipment replaceement $26,022. It is expeected that geeneral reservves will be ussed to fund thhe FY
10-11 shoortfall.
In FY 09-10, a neww patrol vehiicle was purcchased for $336,159.
Revennues and exppenses for thhe past three Fiscal Years are summarrized in Figurre 23-2.
Laaw Enforcemment Servicees
Enhanced law enforcement seervices to thhe Alamo areea began in 11981 and aree provided bby the
SO. CSA P-2, Zone B funds one RResident Depputy, plus vehicles and oother necessaary supplies.. The
Deputy wworks flexibble/adjustablle schedules that correllate to commmunity issues and activvities,
includingg events in thhe communitty and at the Alamo Plazaa Shopping CCenter. Durinng periods off time
when thee Resident Deeputy is off-dduty, the Sheeriff’s beat paatrol from thhe Valley Staation in the AAlamo
Plaza Shoopping Centeer provides coverage. Sinngle officers aare assigned to each beatt vehicle.
2258
County Service Areas
The Resident Deputy attends Advisory Committee monthly meeting to keep the committee
updated and to address any concerns.
Through the SO, CSA P-2, Zone B also utilizes dispatch services, investigative and forensic
specialists, and any other specialized services required. For more detailed discussion of the law
enforcement services provided by the SO please refer to Chapter 26.
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Law Enfoorcement MSRR
CSA P-2 – No Dessignated Zonne
The tthird geograpphic area within CSA P-22 is located oon the west side of Danvville and is aa 0.65
square mmile (417 acrre) area commprised primmarily of the Las Trampaas Regional WWilderness. This
area is unninhabited. ((Refer to Mapp 23-1.)
Accountabilitty and Goverrnance
Theree is no Advisory Committtee for this arrea. There iss no website for this areaa.
Law eenforcementt services are provided bby regular SO beat patrool out of thee Valley Statiion in
Alamo.
Addittional informmation may bbe obtained from the Finnance Servicces Unit at thhe SO, or thrrough
the Clerkk of the Boardd and Countyy Administrattor.
PPlanning andd Managemeent Practicess
Funding for this aarea (identifiied as ‘Danville’ in the Coounty Speciaal District Buudget documments)
is derivedd from propeerty tax whicch generates approximattely $6,900 pper year. Theere is no P-2 Zone
associateed with this aarea.
CSA PP-6 also colleects a portion of the Basiic 1% Property Tax Alloccation from properties wwithin
this portiion of CSA PP-2 for ‘basicc’ law enforccement serviices. There are no P-6 ZZones withinn this
area.
PPopulation annd Growth PProjections
The aarea is designnated as permmanent openn space and is uninhabiteed. Most of the area is wwithin
the Townn of Danvillee Sphere of Influence; hhowever, most of the areea is outsidee the countyywide
Urban Limmit Line.
FFiinancing
Funding for CSA PP-2, No Zone is derived as described aabove. For FFY 10-11 estiimated revennue is
as follows: Property tax at $6,9800 (100%) forr total revenue of $6,9800. Revenues for this areaa have
been fairlly constant oover the past three fiscal yyears, averagging $7,072. (Refer to Figgure 23-3.)
Figure 23-33: CSA P-2, NNo Zone Reveenues and Expenditures (FYs 08, 09, & 10)
Over the past thrree fiscal yeears,
costs foor servicess have bbeen
exceptionnally low, wiith $2,850 sppent
in FY 07--08, $1,510 in FY 08-09, and
$143 in FFY 09-10. Foor FY 10-11, the
Board iss budgetingg $105,477, of
which $999,913 is inn Services and
Supplies.
Revennues and exxpenses for the
past thhree Fiscal Years are
summarized in Figuree 23-3.
2260
County Service Areas
Law Enforcement Services
Law enforcement services to the Las Trampas Wilderness Area are provided by the SO. Patrol
Deputies from the Sheriff’s beat patrol from the Valley Station in the Alamo Plaza Shopping Center
provides coverage. Single officers are assigned to each beat vehicle.
Through the SO, CSA P-2, No Zone also utilizes dispatch services, investigative and forensic
specialists, and any other specialized services required. For more detailed discussion of the law
enforcement services provided by the SO please refer to Chapter 26.
261
Law Enforcement MSR
County Service Area P-5
Background
County Service Area (CSA) P-5 (‘P’ for Police) was formed in 1972 to provide financing for
‘enhanced’ police services in the form of Resident Deputies from the Contra Costa County Sheriff’s
Office (SO) to the unincorporated community of Roundhill. 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
Roundhill is from the I-680/Stone Valley Road interchange and through a portion of the Alamo
community. Roundhill is a single-family residential area along with the Roundhill 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
Roundhill Country Club and provides input to the Board and the SO on Roundhill police service
matters. Agendas are posted at the SO Valley Station, 150 Alamo Plaza, Suite C, and on the web at
www.alamore.org.
The Resident Officers assigned to Roundhill 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. Roundhill can be considered a sub-area of Alamo, which is a larger
unincorporated community west of Roundhill.
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.
262
Map 23-2
County Service Area P-5 (Roundhill)
WWaallnnuutt CCrreeeekk
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by 6 C 51 o n P t i r n a e C S o t s re ta e t C , 3 o 4 7 u t : h 5 n 9 t F M y : l 4 o a C 8 o p o . r 4 n c N 5 r s e 5 o e a N r r t v t h e a 1 d W ti 2 o 4 i 2 n / n 2 : g 0 a 4 , 6 n / 2 M : d 3 0 a 5 D 0 r . 9 e 3 tin 8 v e e 4 z l W o , p C m A e 9 n 4 t, 5 G 5 I 3 S -0 G 0 r 9 o 5 up a b T re a h a s D is s e i e t . s m v d W e c a a u l t p o a h r p r , i c l e m e p o n r n e o t i t m n b a s t l t a i i n a g D r s t i a e e l y t c p e i o C f a d p t r i h t t t y y m o e r i L u g e s i h n s o m e t t u e i w t r t d s c h i , e t i i h s n i s i f s d d o d a a r c e m t t i a t a r e i a v f t d t e r h i . o o d e U m n C f s r a o t e o h n m r u e d s n t C m o t h y f o e a a t n y h C s t i r s n s A a u o m C m t S a b t o e a p e s s t t e a a a n g l B o t C e r o e r o r a e e e u r s d n d t p . o t o y o I r n f t e G s E m a I ib q d S a i u l y a P i a t n y b r li d o e z f o g a a r r r t e c a i i o p c t m s n e r o ' . p a s d S t c t u a t o c h c u m x e e r r d e a a c i t y n e . 0 0.125 0.25 0.5 Miles
County of Contra Costa disclaimer of liability for geographic information.
Law Enfoorcement MSRR
Propeerties withinn CSA P-5 arre also within CSA P-6 (County-widee unincorporrated area except
Kensingtoon). (Refer to Map 23-5.) CSA P--6 collects aa portion off the Basic 11% Propertyy Tax
Allocationn from properties withhin CSA P-55 (currently 1.20573% on averagee) for ‘basicc’ law
enforcemment servicess. This is apppropriate bbecause the Resident Deeputies assiggned to Rounndhill
obtain suupport from the local beaat Deputies wwhen the Reesident Depuuties are nott on duty. Itt does
not appeaar that any of the CSA P-66 special tax zones are wiithin the CSAA P-5 boundaaries.
PPopulation annd Growth PProjections
The aarea within the CSA cuurrently has 735 develooped residenntial parcelss, along withh the
Roundhilll Country Club (golf course, driving rrange, tenniss courts, largge club housse with swimmming
pools and landscapeed grounds). Roundhill is predomiinately built-out, and is not expected to
increase iin populationn. Current population is estimated att 1,764.
FFiinancing
Funding for CSA P-5 is derivved as descrribed above.. For FY 100-11 estimatted revenue is as
follows: Property taxx at $201,2500 (45 percentt); Special Taax (assessmeent) at $242,550 (54 perccent);
and misccellaneous reevenue (fines, interest, pproperty taxx relief) of $6,400 (one ppercent) for total
revenue oof $450,530. Revenues foor the Districct have risenn gradually ovver the past three fiscal yyears,
with propperty taxes hholding steaddy and assesssments risingg due to the CCost of Living Index. (Reefer to
Figure 233-4.)
FFigure 23-4: CCSA P-5 Reveenues and Expenditures (FYs 08, 09, & 10)
Over the past three fiscall
years, coosts for services havee
averagedd: $406,055 for salariess
and beneefits; $4,942 for servicess
and suppplies; and $39,888 forr
other chharges; for an averagee
total of $$450,885 peer year. Forr
FY 10-111, District eexpenses forr
salaries and benefits aree
expected to be rreduced byy
$33,400. This is attriibuted to thee
retiremennt of thee Residentt
Sergeant and the assiignment of aa
replacemment at a lower payy
grade. Exxpenditures for FY 10-111
are expeccted to be $4413,772, welll
within thhe expected revenues off
$450,5300.
In FY 08-09, a neww patrol vehiicle was purcchased for $331,051.
Revennues and exppenses for thhe past three Fiscal Years are summarrized in Figurre 23-4.
2264
County Service Areas
Law Enforcement Services
Law enforcement services to the Roundhill area are provided by the SO. CSA P-5 funds one
Resident Sergeant and one Resident Deputy, plus vehicles and other necessary supplies. The
Sergeant and the Deputy each work flexible/adjustable schedules that correlate to community
issues and activities, including events at the Roundhill Country Club. During periods of time when
the Resident Sergeant and Deputy are off-duty, the Sheriff’s beat patrol from the Valley Station in
the Alamo Plaza Shopping Center provides coverage. Single officers are assigned to each beat
vehicle.
The Resident Sergeant attends Advisory Committee monthly meeting to keep the committee
updated and to address any concerns.
Through the SO, CSA P-5 also utilizes dispatch services, investigative and forensic specialists,
and any other specialized services required. For more detailed discussion of the law enforcement
services provided by the SO please refer to Chapter 26.
265
Law Enforcement MSR
County Service Area P-6
Background
County Service Area (CSA) P-6 was formed in 1983 as a means to provide funding to maintain
and extend law enforcement services to the unincorporated area of the County. The District was
formed under the provisions of California Government Code Section 25210 et seq.
CSA P-6 is classified as a County-wide district, and consists of all unincorporated territory in the
County except that which is in the Kensington Police Protection and Community Services District.
The CSA includes approximately 491 square miles, of which 447 square miles is land. (Refer to Map
23-3.)
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-6 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 Office of the Sheriff, in
particular, the Finance Services Unit of the Administrative Services Bureau. There is no advisory
committee established for this district.
The CSA does not provide law enforcement services directly, but serves as a mechanism to
allocate property taxes and special taxes (assessments) to the Sheriff’s Office (SO). Details
pertaining to accountability and governance for the SO are found in Chapter 26.
Requests for funding are made by the SO through the Board of Supervisors (as the District
Board). These requests are normally agendized as part of the regular Board of Supervisors agenda.
There is no separate website for the CSA. Information may be obtained from the Finance
Services Unit at the SO, or through the Clerk of the Board and County Administrator.
The Finance Service Unit of the SO demonstrated full accountability and transparency by
cooperating with LAFCO requests for information, documents and interviews during the MSR
process.
Planning and Management Practices
As part of district formation in 1983, the County reallocated a portion of the Special Districts
Augmentation Fund to the CSA, thereby placing a share of the property tax on parcels within the
district. Based on research conducted in conjunction with this MSR, it appears that the P-6
property tax allocation has been applied to some properties within city limits, and not applied to
some properties in the unincorporated area. Property tax is collected from properties throughout
the District, including territory within special districts which provide law enforcement services.
More discussion is provided in the other Law Enforcement Special District sections including CSA
M-29, CSA M-30, CSA P-2 and CSA P-5.
As originally structured, and as permitted under CSA law (Section 25217), new development in
the unincorporated portion of the County would be required (as part of the subdivision approval
process) to establish a zone within the CSA to fund law enforcement services. In 1989, four zones
were established for four major subdivisions in Oakley and Bay Point. In 1992, the Board began to
form new zones for each new major and minor subdivision in the unincorporated area of the
266
County Service Areas
County. In 1996, the Board approved a modification to the ordinance, imposing a one-time fee of
$1,000 on minor subdivisions (four parcels or less) instead of forming a new P-6 zone and requiring
a special election.
The original P-6 zone (Zone 0200, Bay Point) started contributing special tax revenue in FY 90-
91. By 1998, with 52 zones created along with 52 zone funds, it became cumbersome and time
consuming to account for and withdraw monies from each of the zone funds. In May of 1998, the
Board approved the creation of a ‘Centralized Administrative Base (CAB) Fund’ to which revenues
collected in P-6 special tax zones are transferred annually. Under Government Code Section
25217.4(c) “any special taxes, benefit assessments, fees, rates, charges, standby charges, or bonds
which are solely for the support of services of facilities within a zone, shall be levied, assessed, and
charged within the boundaries of the zone.” That in fact, was County Counsel’s interpretation of the
original ordinance that established the zones in 1983. However, it was determined (presumably by
the Board) that a program of County-wide application that had the effect of enhancing law
enforcement in all of the zones met the intent of the original ordinance.
There are presently 111 zones in P-6 comprising 5,914 parcels. Zones range from a single
parcel to a 1,153-lot subdivision. During the past three fiscal years, a total of 21 zones have been
added; 12 in FY 07-08, nine in FY 08-09 and zero in FY 09-10.
Each January, the County Auditor transfers the annual zone special tax proceeds into the CAB.
The current balance in the CAB fund is $6.23 million. Revenue from the zones is adjusted annually
based on the June Urban Area Consumer Price Index for the San Francisco Bay Area. This results in
a variance between the annual special tax charged per parcel, which can be as low as $105 per
parcel and up to $374 per parcel. The current average assessment per parcel is $235 per year.
Annual revenues generated by the zones is approaching $1.4 million per year.
Two recent examples of use of the P-6 Zones and the CAB Fund are:
In January of 2009, the Board approved the transfer of $262,228 from the CAB Fund to fund
a Resident Deputy for the Bay Point community for a period of 17 months (through June 30,
2010). Of the total amount of funding for this position, $147,181 came from the FY 2009-
2010 Bay Point P-6 Zones (Zones 0200-0210), and the remainder ($115,047) from
accumulated Bay Point P-6 Zones funds.
In May of 2009, the Board approved the transfer of $529,474 from the CAB Fund to fund
two Resident Deputies, one Crime Prevention Specialist, and one Patrol Vehicle (purchase,
equipment and first year operating expense) for the Discovery Bay community for the 09-
10 Fiscal Year (12-months). All of this funding came from the FY 08-09 Discovery Bay P-6
Zones (Zones 500-504) which generated $548,086 in that year.
Although not stated, it is assumed that funding for these extended police services in Bay Point
and Discovery Bay in subsequent fiscal years would derive from the same CAB Fund and be
included as part of the annual SO budget. In a way, this funding becomes ‘return to source’ monies,
although the funds generated by new residential development projects in different parts of the Bay
Point and Discovery Bay communities are applied to extended law enforcement services that serve
the entire community and not just within the P-6 Zones. For example, P-6 zones in Discovery Bay
are linked to new residential development along Bixler Road in the western portion of the
Discovery Bay community; while the whole community is served from the Sheriff’s Sub-station
located on Discovery Bay Boulevard.
In October of 2009, the Board of Supervisors appointed a ‘P-6 Advisory Committee’ for the
Discovery Bay area, with one representative from each of the five P-6 zones in the West Discovery
Bay area.
267
Law Enforcement MSR
In 2010, the unincorporated community of El Sobrante (population 12,669), along with the
North Arlington Heights Neighborhood considered a proposal to create a new P-6 Zone (Zone
3111) to provide additional funding for police protection services. Under the proposal, residential
parcels would be assessed an initial annual amount of $38 for extended police services (a Resident
Deputy) for a five year period. The proposal (Measure E) was on the June 2010 Primary Ballot,
required a two-thirds vote as a ‘special tax,’ and was defeated with 45% ‘Yes’ votes and 55% ‘No’
votes.
In 2008, the residents of East Richmond Heights and Bayo Heights (in the Arlington area)
(estimated population 3,800) voted on the establishment of Zone 3006 with annual costs of $108
for single-family residential units and $432 annually for apartments and commercial stores. The
proposal (Measure F) was on the November 2008 General Election Ballot, required a two-thirds
vote as a ‘special tax,’ and was defeated with 60.2% ‘Yes’ votes and 39.8% ‘No’ votes.
In 2005, the residents of Bethel Island (population 2,137) approved P-6 Zone 301 which began
accruing special tax revenue in FY 2007-08. The Zone now accrues in excess of $100,000 per year,
with a total of $109,700 accrued in prior years. Bethel Island does not presently receive extended
law enforcement services from the SO, but within the next two years should be able to make the
case for the addition of one Resident Deputy based on the availability of sufficient Zone 301 funds.
Another future candidate for extended services is the unincorporated community of Norris
Canyon (current population 957) located west of San Ramon. Norris Canyon is within P-6 Zone
1700 which currently generated over $110,000 annually in special taxes, with a total of $218,500
accrued in prior years.
Population and Growth Projections
With continued residential development in the unincorporated portion of the County
(especially the East County Area), the P-6 zones have increased substantially in the number of
residential lots and revenues derived there from. In FY 06-07, there were 2,315 lots generating
$542,081; while in FY 09-10 there were 5,914 lots generating $1,387,216. This trend is expected to
continue.
ABAG estimates that the population in the unincorporated portion of the County will increase
from 167,050 in 2010 to 184,450 in 2035, a 10.4% increase.
268
Map 23-3
County Service Area P-6 (Unincorporated Area)
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6 b 5 y 1 C Pi o n n e t r S a t C re o e s t, ta 4 C th o F u l n o t o y r C N o o m rth m W un in ity g , D M e a v r e t l i o n p e m z, e C n A t, G 94 IS 55 G 3 r - o 0 u 0 p 95 a b re a a s s e . d W ata h , il e p r o im bl a ig r a ily te C d i t t y o L u i s m e i t t s h , i s is d d a e ta ri v t e h d e C fro o m un t t h y e a C ss A u m St e a s te n B o o r a e r s d p o o n f s E ib q i u li a ty li z fo a r t io its n ' a s c ta cu x r r a a c t y e . Miles
37:59:48.455N 122:06:35.384W This map contains copyrighted information and may not be altered. It may be reproduced in 0 2.5 5 10
its current state if the source is cited. Users of this map agree to read and accept the
County of Contra Costa disclaimer of liability for geographic information.
Law Enfoorcement MSRR
Finaancing
Funding for CSA P-6 is derived from a shhare of the pproperty taxx, special taxxes (assessmments)
applied to the specifiic zones withhin the CSA, and miscellaaneous sourrces (fines, inntergovernmmental
revenue). Property taax revenues account forr 76 percentt of the fundds generatedd by P-6, witth 23
percent dderived from special zonee taxes, and oone percent ffrom the misscellaneous ccategory.
Propeerty tax reveenue has decrreased in thee past three ffiscal years bby 3.3 percennt ($4.495 mmillion
in FY 07-08 and $4.5507 million in FY 08-099 to $4.348 million in FFY 09-10), but is expectted to
increase to $4.465 mmillion in FY 10-11. Baseed on a sammpling of Taxx Rate Areas, CSA P-6 deerives
property tax revenue from about 1.2 percent oof the basic oone percent pproperty tax allocation.
Speciial taxes levieed through thhe P-6 Zoness increase eaach year due to the annuaal Consumer Price
Index adjjustment andd the additioonal assessedd parcels thaat are addedd to the zonees. Over thee past
three fisccal years, zonne revenue has increasedd from $1.14 million in FYY 07-08, to $1.32 million in FY
08-09, annd to $1.39 mmillion in FY 009-10.
Misceellaneous revvenue for thee past three fiscal years was $165,0000 in FY 07-08, $69,000 in FY
08-09, annd $58,000 inn FY 09-10.
Total P-6 revenuees for the passt three fiscaal years has bbeen fairly sttatic at $7.122 million in FFY 07-
08, $7.144 million in FYY 08-09, andd $7.02 millioon in FY 09-110. Howeverr, this is attribbuted to property
tax revennues decreassing over thee past three fiscal years, and zone assessments increasing ddue to
the built--in annual cost-of-living increase. ((Refer to Figgures 23-5 aand 23-6.) CCSA P-6 reveenues
accounted for approxximately 3.1 percent of tthe total Sheeriff’s Office bbudget in eaach of these three
years.
Expennditures for CSA No. P-6 have increassed in the currrent and previous fiscall years in an effort
to mainttain existingg levels of service for beat patrools in the uunincorporatted area. Total
expendituures were $4.17 millionn in FY 07-088 and $4.11 million in FFY 08-09, coompared to $4.91
million inn FY 09-10. (Refer to Figgures 23-5 annd 23-6.) Esstimated exppenditures foor P-6 in FY 110-11
are expeccted to be inn the range oof $13 millionn, with revennues estimatted at $7.29 million. Thiis has
resulted in expending available ffunds from tthe district, which had aan available funds balannce of
$7.37 miillion as of June 30, 20010. For FYY 10-11, thee SO estimattes that $6.44 million wwill be
transferred from the Central Admministrative BBase Fund too provide laww enforcemennt services wwithin
the uninccorporated portion of thee County.
Figure 23-5: CSSA P-6 Revennues and Exppenditures – PProperty Taxx Base (FYs 008, 09, & 10)
2270
Couunty Service AAreas
Figure 23-6:: CSA P-6 Reevenues and Expenditurees – Zone Baase (FYs 08, 009, & 10)
Laww Enforcemennt Services
CSA PP-6 providess funding to augment General Fund mmonies to prrovide basic law enforceement
services (Deputy pattrol and inveestigations) in the uninccorporated pportions of the County. The
District aalso funds eextended laww enforcemeent servicess (primarily Resident DDeputies) thrrough
utilization of P-6 Zonee special tax revenues. TThese includee:
1 Resident Deeputy for East Richmond Heights;
6 Resident Deeputies for Noorth Richmond (partiallyy funded by PP-6);
3 Resident Deeputies and 11 School Resoource Officerr for Bay Poinnt; and
2 Resident Deeputies and 11 Crime Preveention Specialist for Disccovery Bay.
P-6 fuunding from the Central AAdministratiive Base (CAAB) Fund has also been uttilized to parrtially
fund the SSO helicopter unit.
For mmore detailedd discussion of the law ennforcement sservices provvided by the SO please refer to
Chapter 226.
2271
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 by cooperating
with LAFCO requests for information, documents and interviews during the MSR process.
272
County Service Areas
Planning and Management Practices
The CSA’s boundaries are the same as the Dougherty Valley Specific Plan Area, a master planned
community of predominately single-family and multi-family residential units with commercial
property, a golf course, library, community center, senior center, fire station, police substation, city
public services center, seven schools, a childcare facility, community college, performing arts
facility, developed park space and open space. The Dougherty Valley area is approximately 73%
built-out for residential uses and 50% built-out for commercial uses. Refer to Map 23-4 which
shows the relationship between city and county territory within the CSA boundary.
Because the CSA is a special district, it does not have land use authority. Those responsibilities
lie with the City of San Ramon for that portion of the District within the city, and Contra Costa
County for that portion of the District in the unincorporated area. As new development occurs,
those areas annex to the City, however the annexed territory is not detached from CSA M-29. Under
the City-County Agreement, and in accordance with the CSA’s formation approval, annexed
property remains within CSA M-29 in order to continue the financing of the specified services
provided by the city.
Within CSA M-29 two different revenue scenarios are in place:
1. Within all of M-29 (both county and city), a portion of the Basic 1% Property Tax is
allocated to M-29 (currently 3.79640% on average in the county portion and 3.85770% on
average in the city portion). The county collects these tax revenues and holds them in a CSA
M-29 account (Fund 247500). The county also collects the annual property assessment for
all properties within the District which in FY 09-10 generated $6.2 million. In FY 09-10,
assessments were $1,138.02 for single-family and $806.98 for multi-family in FY 09-10).
These assessments are adjusted annually according to the Consumer Price Index.
2. Within the city portion of M-29 (Tax Rate Area 66405), a portion of the Basic 1% Property
Tax is allocated to M-29 services by the city (currently 4.00000% on average) along with a
contribution from the City General Fund from Indirect Revenue (sales tax, fines and
forfeitures, licenses-permits-franchise fees, and motor vehicle in-lieu fees). Details are
provided in the Financing section below.
Two inconsistencies have been identified with respect to tax rate areas (TRA’s):
1. Within the county portion of M-29, both TRA’s (17133 and 17135) do not allocate a portion
of the Basic 1% Property Tax to CSA P-6, the County-wide law enforcement CSA; which is
appropriate. Similar to Kensington, the county portion of M-29 should be excluded from
CSA P-6. However, County maps include the County portion of M-29 in CSA P-6. (Refer to
Map 23-5.) It does not appear that any P-6 special tax zones have been established in the
Dougherty Valley area.
2. Within the city portion of M-29 (TRA 66405), 1.16283% on average, of the Basic 1%
Property Tax is allocated to CSA P-6. Since P-6 only covers unincorporated territory, this
allocation should be re-allocated to another category (or categories) within the TRA.
Population and Growth Projections
The Dougherty Valley Area has experienced significant growth and will continue a strong rate of
growth until the Specific Plan Area is built-out. Between 2002 and 2010 the estimated population
of the area within the CSA has grown from 3,366 to 21,854, a 650% increase.
At full build-out, the area will have 11,000 residential dwelling units with an estimated
population of 26,400. Commercial space will be in the range of 330,000 square feet.
273
Map 23-4
Map 10-12
CSA M-29 and Coterminous Sphere of Influence
Sycamore Valley Open Space By LAFCO action on
DDaannvviillllee
5/12/10, CSA M-29
d
R Diablo Vista Park
CrowCanyon boundary and coterminous
Golden View School Park
SOI approved.
D
o u Red Willow Park
g
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Hidden Crest Park
Creekside Park
Coyote Creek School Park
Coyote Crossing Park Valley View Park Picadilly Square
Monarch Park
Hidden Valley Open Space
Dougherty Valley High School Park
Windy Hills Park
Gale Ranch Middle School Park
Hidden Valley Park
Quail Run School Park Bellingham Square
Souyen Park Hidden Hills School Park
Open Space
East Branch Park
Limerick Park
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B Dougherty Station Community Center
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San Ramon Sports Park Live Oak School Park
Fire Truck Park
Windemere Ranch Middle School Park Ramona Park
Sherwood Park
Arlington Park
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Compass Point Park
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Village Green Park Urban Limit Line Parks maintained by CSA M-29
Centennial Park City Boundaries Parks maintained by CSA M-30
Local Parks Open Space or Regional Parks
CSA Boundary and Coterm. SOI
®
This map was created by the Contra Costa CountyCommunity
65 by 1 C P o in n e t r S a t C re o e s t, t 3 a 4 7 t C : h 5 o 9 M F u : l n a 4 o t p 8 o y . r c 4 C N r 5 e o o 5 a m r N t t e h m d 1 W u 2 n 3 i 2 n i / t : 2 g y 0 4 , 6 D / M : 2 e 3 0 a v 5 1 r e . t 3 0 i lo n 8 p e 4 m z W , e C n A t, 9 G 4 IS 55 G 3- r 0 o 0 u 9 p 5 a b r T e a h a s D is s e i e t . s m v d W e c a a l u t p o a h r p r , i c l m e e p o n r n e o t im t n b s a t l a t i i a n g D r t s i a l e e y t c p e i o C f a d p t r i h t t t y y m o e r i L u g e s i s n h m o e t t u e i w t r t d s c h i , e t i i h s i n s i f s d d o d a a r c e m t t i a t a r e i a v f t d t e h r i . o o d e U m n f C s r a o t e o h n m r u e d s n t C o m t h y f o e a a t n h y C s t i r s s n A a u o m m C S t a b t o e a p e s s t t e a a a n g l B o t C r e o e r r o a e e e u r s d n d t p . o t o y o I r n f t e G s E m a i I b d S q a i u l y a P i a t n y b r li d o e z f o g a a r r r t e c a i i o p c t m s n e r o ' . p a s d S t c t u t o c a h c u m x e e r a r d e a c i t n y e . 0 0.25 0.5 1 Miles
County of Contra Costa disclaimer of liability for geographic information.
Couunty Service AAreas
Finaancing
Funding for CSA MM-29 is derivved as descriibed above. Property taxx revenues acccount for 377% of
the fundss generated bby M-29, witth 49% from assessmentts, and 14% dderived fromm the City Geeneral
Fund from Indirect RRevenue (salles tax, finess and forfeituures, licensees-permits-frranchise feess, and
motor vehicle in-lieu fees).
The ccombination of property ttax revenue plus assessmments has inccreased in thhe past three fiscal
years duee to new connstruction wiithin the CSAA: $9.22 milllion in FY 077-08; $10.17 million in FFY 08-
09; and $$10.92 million in FY 09-100. These revvenues are exxpected to inncrease to $11.39 million in FY
10-11.
City IIndirect Reveenue has flucctuated in thhe past threee fiscal yearss, with $1.60 million in FFY 07-
08; $1.800 million in FYY 08-09; andd $1.75 millioon in FY 09-110.
CSA MM-29 properrty tax revennues and asseessment revvenues are coollected by tthe County, wwhich
charges aan assessmeent collectionn fee and ann administrattive charge. These feess and chargees are
0.6% of the tax reveenue collecteed, but havee been increeasing aboutt $3,000 perr year due tto the
increasinng number off assessed paarcels.
Expennditures forr CSA No. MM-29 have inncreased in the three pprevious fiscal years duue to
increasedd costs in all categories ((internal roadd maintenannce, street lanndscaping, ppark maintennance,
open spaace maintenance, flood control servvices, police services, coommunity faacilities, andd city
overheadd). Total exppenditures wwere $10.74 million in FYY 07-08, $144.03 million in FY 08-099, and
$14.55 mmillion in FY 09-10. (Reffer to Figure 23-7.) Estimmated expennditures for MM-29 in FY 110-11
are expeccted to remaain at $14.5 mmillion, with revenues esstimated at $$13.19 millioon. Even witth the
city’s indirect revenue contributioon, the CSA hhas operated at a deficit tthe past two fiscal years aand is
expected to do so agaain in the currrent fiscal year. Deficitss have been aaveraging around $1.8 mmillion
per year.
Becauuse the Douggherty Valleyy is a developping area, revvenues generrated from property taxees and
assessmeents does not always corrrelate to thee costs for pproviding serrvices; that is, there is a ‘time
lag’ betwween when reevenues are rreceived by tthe city and wwhen expendditures are rrequired. Thhe city
anticipatees that at full build-out, revenues will be sufficieent to cover costs. In thhe meantimee, two
options aappear to be aavailable:
1. RRaise the annuual assessmeents (which wwould requirre a two-thirrds vote); or
2. AAllocate a porrtion of CSA MM-29’s fund bbalance to mmake up the sshort-fall. Ass of June 30, 22010,
thhe available ffund balancee was $6.28 mmillion.
Figgure 23-7: CSSA M-29 Reveenues and Expenditures (FYs 08, 09, & 10)
Laaw Enforcemment Expendditures
Over the past three fiscal yeears, costs
for policee services has increasedd by 26%,
from $4.40 million iin FY 07-08, to $5.22
million inn FY 08-09 aand $5.55 million in FY
09-10. EEstimated coosts for FY 10-11 are
$5.80 mmillion. Similar to oother law
enforcemment agencies in the Couunty, these
increasedd costs are attributed to safety
retiremennt and healthh benefit costts.
2275
Law Enforcement MSR
The cost to provide police services in the Dougherty Valley amounts to about 40% of the total
city expenditures within CSA M-29 ($5.8 million out of $14.5 million).
Law Enforcement Services
The San Ramon Police Department (PD) is a full service law enforcement agency, providing
patrol, investigations, traffic enforcement, crime prevention, SWAT Team response, and K-9
officers.
For the Dougherty Valley and both city and county territory within the CSA boundary, San
Ramon PD provides full services as listed above, which are no different than law enforcement
services provided to the remainder of the City. Beat patrols 5 and 6 cover this area.
A Police Substation is located within Dougherty Valley at 17011 Bollinger Canyon Road, and is
staffed on a regular basis.
For more detailed discussion of the law enforcement services provided by the City of San
Ramon, please refer to Chapter 21.
276
County Service Areas
County Service Area M-30
Background
County Service Area (CSA) M-30 (‘M’ for Maintenance) was formed in 1997 to provide financing
for facilities and services within a portion of the Alamo Springs Subdivision. Alamo Springs is a 53-
lot residential subdivision of which 11 lots are within the Town of Danville city limits and 42 lots
are adjacent to but outside the city. Of the 11 city lots, nine have residential structures and two are
vacant. Of the non-city lots, 26 have residential structures and 16 are vacant. The District was
formed under the provisions of California Government Code Section 25210 et seq.
CSA M-30 includes approximately 0.23 square miles (147-acres) and is located on the north
side of Danville just east of Interstate 680. The CSA boundaries include only that portion of the
subdivision that is unincorporated. (Refer to Map 23-5.) Access to the subdivision is from La
Gonda Way on the west side of I-680 and through the Town of Danville. The current estimated
population within the District is 70.
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-30 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
through annual assessments on residentially developed property are administered by the Assistant
Town Manager for the Town of Danville, who reports to the Town (City) Council. There is no
advisory committee established for this district.
CSA M-30 is authorized to provide road maintenance services (although there are no public
streets within the District), street landscaping services (on city streets leading to the subdivision),
parks and recreation services (although there are no park facilities within the District), street
lighting services (through CSA L-100) and law enforcement services. Residents within the District
also pay property taxes and special taxes (assessments) to CSA P-6 (Countywide Police Protection
Services) and CSA P-2 Zone B (Alamo Police Protection Services).
The Alamo Springs Subdivision is within CSA R-7 Zone A (Alamo Park and Recreation Services),
to which a portion of the property tax is allocated. 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, the Board conducts a public hearing to approve the annual levy of assessments on
the developed parcels within the CSA to fund the extended public services provided by the Town of
Danville. Vacant parcels are not assessed. The assessment levy is based on an Engineer’s Report
from the Contra Costa County Department of Public Works, and takes into account the costs of the
proposed services for the Fiscal Year. Currently, the assessment levy is at the maximum rate of
$856.26 (FY 09-10 rate of $831.14 with a 1% CPI increase and a 2% enhancement increase).
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 Town Managers Office
of the Town of Danville.
277
Law Enforcement MSR
The Special District Unit 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 (County-wide
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.
278
Contra Costa County LAFCO
CSA M-30 and Vicinity
Map 23-5
in
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This map or dataset was created by the Contra Costa County Conservation and Development
Miles Map Created on June 6th, 2011 Department with data from the Contra Costa County GIS Program. All District Data
Contra Costa County Department of Conservation & Development including City Limits, is originally derived from the CA State Board of Equalization's
tax rate areas. While obligated to use this data the County assumes no responsibility for
0 1 2 651 Pine Street 3 , 7 4 : t 5 h 9 F :4 lo 8 o .4 r 5 - 5 N N . W 12 i 2 n : g 0 , 6 M :3 a 5 rt .3 in 8 e 4 z W , CA 94553-0095 its r e a p c r c o u d r u a c c e y d . T in h i i s t s m c a u p rr e co n n t t s a t i a n t s e c i o f p th y e ri g s h o t u e r d c e in i f s o c rm ite a d t . io U n s a e n rs d o m f a th y i s n o m t a b p e a a g lt r e e r e e t d o . r I e t a m d a a y n d b e
accept the County of Contra Costa disclaimer of liability for geographic information.
Law Enfoorcement MSRR
Finaancing
Funding for CSA MM-30 is derivved as descriibed above. For FY 10-111, the annuaal assessmennt will
generate $22,263 (annd combined with $600 in interest) wwill provide aa total of $222,863 in available
funds to tthe District.
CSA MM-30 assesssment revenues are colllected by thhe County, wwhich chargees an assesssment
collectionn fee and aan administtrative chargge. For FYY 10-11, coollection feees are $3000 and
administrrative chargees are $3,0000. This leaves $19,563 too fund the reqquired servicces.
Costss for servicess include: $3388 transferrred to CSA L--100 (now CFD 2010-1) for street ligghting
services; and $16,000 transferred to the Towwn of Danviille for road maintenancce services, sstreet
landscapiing services, parks and rrecreation seervices, and llaw enforcemment servicees. The remaaining
$3,175 is placed in ann operating rreserve account. As of Juune 30, 20100, the fund baalance for CSSA M-
30 was $332,889.
Revennues and exppenses for thhe past three Fiscal Years are summarrized in Figurre 23-8.
Figgure 23-8: CSSA M-30 Reveenues and Expenditures (FYs 08, 09, & 10)
Laaw Enforcemment Expendditures
Of thee annual conntribution received from
CSA M-300, Danville aallocates $100,606 (66%)
to law ennforcement, with the reemainder to
street maintenancce ($1,0422), street
landscapiing ($995)), and PParks and
Recreatioon ($3,357).
Laww Enforcemennt Services
The DDanville Policce Departmeent (PD) is a
full serrvice law enforcemennt agency,
providingg patrol, investigatioons, traffic
enforcemment, crime prevention, annd a K-9 officcer.
For tthe Alamo Spprings area (including bboth city lotts and uninccorporated llots), Danvillle PD
provides full servicees as listed above, whicch are no ddifferent thaan law enforcement serrvices
provided to the remaiinder of the TTown. Beat Patrol 1 coveers this area..
For mmore detailedd discussion of the law ennforcement sservices provvided by the Town of Dannville,
please refer to Chapteer 8.
2280
Diablo Community Services District
24. Diablo Community Services District
Diablo Community Services District (CSD) provides law enforcement services through a
contract with the Contra Costa County Sheriff’s Office.
Agency Overview
Background
The Diablo Community Services District (CSD) was formed in 1968 as the successor to the
Diablo Utility District. Diablo CSD currently provides police/security, road and drainage
maintenance, and multi-use trail maintenance services. The District was formed under the
provisions of California Government Code Section 61000 et seq. Law enforcement services are
through a contract with the Contra Costa County Sheriff’s Office (SO). This chapter focuses on the
District’s law enforcement services germane to this report. LAFCO adopted a sub-regional MSR
covering all services provided by cities and various districts, including Diablo CSD, in the central
portion of the County. For general information on the District and related determinations, refer to
this MSR.
General information on Diablo CSD police services is contained in the
Central Contra Costa County Sub-regional MSR adopted by the
Commission in September 2009. (www.contracostalafco.org)
Diablo CSD includes approximately 1.56 square miles (998-acres) and is located northeast of
and adjacent to the Town of Danville, and north of Diablo-Blackhawk Road. (Refer to Map 24-1.)
Access is from the I-680/El Cerro Boulevard interchange and through a portion of Danville. The
Diablo community is a single-family residential area along with the Diablo Country Club. The
current estimated population within the District is 1,200.
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.
Diablo CSD is an ‘independent’ special district in which a five-member Board of Directors is
responsible for operating the District. Board members are elected ‘at large’ in even numbered
years to staggered four-year terms by the registered voters residing in the District. Administrative
staffing for the District is provided by the District Manager who also serves as District Counsel.
The Board of Directors meets monthly on the second Tuesday at the Diablo Country Club.
Meeting notices are posted at the Post Office, 1701 Nido Road. The District has a website
(diablocsd.org) where Board agendas, minutes and other information is posted.
The District’s mission is to “maintain the roads, culverts, and bridges accepted for maintenance
by Diablo Community Services District, to provide security services to the residents and guests as
well as Diablo Country Club members and guests, and to maintain the pedestrian/equestrian path
between Alameda Diablo and Mt. Diablo Scenic Boulevard.”
281
Law Enforcement MSR
Constituent outreach, education and other customer service issues are discussed in Chapter 26
covering the SO.
The District Manager demonstrated partial accountability and transparency by cooperating
with LAFCO requests for information, documents and interviews during the MSR process.
Planning and Management Practices
Because Diablo CSD is a special district, it does not have land use authority. Those
responsibilities lie with Contra Costa County. The District (through the individual Board members
and the District Manager) monitors activities in the community on a regular basis.
The District does not have any employees. Contract services are provided by the District
Manager for administration, by the SO for law enforcement services, and MCE Engineers for road
and drainage maintenance services.
All roads within the CSD are private except for Caballo Ranchero, which has been dedicated to
the County. The District maintains approximately 8.5 miles of improved roads within its boundary.
The District is also responsible for storm drainage culverts along these roads as well as three
bridges whose age and structural conditions are of concern to the District. Near and far future
development in the area is expected to stress the creeks, culverts and bridges. The District is
currently undergoing a comprehensive study to evaluate the ability of the bridges and culverts to
handle increased flows caused by future development.
Population and Growth Projections
The District is largely built-out, with several vacant lots remaining in the northerly (hillside)
portion of the District. Population growth is not expected to increase by more than one percent (12
residents) by the year 2030.
The District SOI is coterminous with the District boundary, except for an approximate 11-acre
area consisting of 8 parcels east of Mt. Diablo Scenic Boulevard/South Gate Road. This area was
added to the District SOI by LAFCO in May 2011. (Refer to Map 24-1.) A corresponding annexation
proposal will be considered by LAFCO in July 2011.
282
Map 24-1
Diablo Community Services District and SOI
Alamo
South Gate Rd
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Blackhawk
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Urban Limit Line
City Boundaries
Community Services District
Community Services District SOI
®
This map or dataset was created by the Contra Costa County Department of Conservation
by Contra Costa County Depar M tm a e p n c t r o e f a C te o d n s 5 e /1 rv 2 a /2 ti 0 o 1 n 1 and Development - GIS Group ba a s n e d d D a e ta v , e p lo ri p m m a e ri n ly t w C i i t t h y d L a im ta it s fr , o i m s d t e h r e iv C e o d n f t r r o a m C t o h s e t a C C A o S u t n a t t y e G B I o S a r P d r o o g f r E a q m u . a l S iz o a m tio e n 's Miles
651 Pine Street, 3 4 7 t : h 5 9 F : l 4 o 8 o . r 4 N 5 o 5 r N th 1 W 22 in : g 0 , 6 M :3 a 5 r . t 3 in 8 e 4 z W , CA 94553-0095 its t a a x c c ra u t r e a c a y re . a T s h . i s W m h a il p e o co b n lig ta a i t n e s d c t o o p u y s ri e g h th te is d d in a f t o a r t m he a t C io o n u a n n ty d a m s a s y u m no e t s b n e o a r l e te s r p e o d n . s i I b t i m lit a y y f o b r e 0 0.125 0.25 0.5
reproduced in its current state if the source is cited. Users of this map agree to read and
accept the County of Contra Costa disclaimer of liability for geographic information.
Law Enforcement MSR
Financing
The District has recently initiated a new budget system which tracks revenues and
expenditures by line item and by month. Details for prior years were not available. However, in FY
07-08 the District had revenues of $502,568 and expenditures of $241,391; and in FY 08-09
revenues of $499,712 and expenditures of 278,580. FY 09-10 figures from the State Controller’s
Office are not yet available.
A portion of the Basic 1% Property Tax (currently 6.52077% on average) is allocated to Diablo
CSD, which currently generates approximately $462,000 of tax revenue per year. The District also
assesses developed residential property within the district a special tax of $435 per year, and
undeveloped property a special tax of $85 per year. This assessment currently generates
approximately $179,000 per year. Total District revenues for FY 10-11 are as follows: property tax
$462,000 (71%), special tax (assessment) $179,000 (27%), fines $600 (less than 1%), and interest
$10,000 (2%), for total revenues of $651,600. As of June 30, 2010, the District had $1,349,398 as
cash on hand, which is considered to be a reserve account. The reserve account is required to cover
anticipated future needs.
Properties within Diablo CSD are also within CSA P-6 (County-wide law enforcement services for
the unincorporated area except Kensington). (Refer to Map 23-5.) CSA P-6 collects a portion of the
Basic 1% Property Tax Allocation from properties within the Diablo CSD (currently 1.20573% on
average) for ‘basic’ law enforcement services. This is appropriate because the Resident Deputy
assigned to Diablo CSD obtains support from the local beat Deputies when the Resident Deputy is
not on duty. It does not appear that any of the CSA P-6 special tax zones are within the Diablo CSD
boundary.
For FY 10-11, costs for services are: law enforcement $294,466; road maintenance $113,793;
legal (includes District Manager) $39,728; insurance $16,144; and administrative $4,297, for a total
expenditure of $468,428. Revenues exceeded costs for services by $183,172, allowing the District
to build up its reserves. For FY 11-12 projected revenues are $473,330 with expenditures of
approximately $475,000 to $500.000. This may require the District to utilize some of its reserves.
For FY 10-11, capital outlay for road and bridge repair was minimal, with $12,000 designated
for the vehicle replacement fund. The District purchases a new patrol vehicle every five years.
During FY 10-11, the District deferred road maintenance capital expenditures until later years.
For FY 11-12, capital outlay for road and bridge repair is estimated at $277,500.
Law Enforcement Expenses
For FY 10-11, specific costs to provide law enforcement services are as follows: contract with
the SO $291,073; auto repairs $1,730; and miscellaneous $1,643 for a total of $294,446. For FY 11-
12, these costs are expected to be: contract with the SO $288,000; auto repairs $3,000, and
miscellaneous $2,500 for a total of $293,500.
Law Enforcement Services
Law enforcement services within the Diablo CSD are provided by the SO. Diablo CSD funds one
Resident Deputy, plus vehicles and other necessary supplies. The Deputy is based at the SO Valley
Station in Alamo, and works a flexible/adjustable schedule within an overall 40-hour work week
that correlate to community issues and activities, including events at the Diablo Country Club.
During periods of time when the Resident Deputy is off-duty, the Sheriff’s beat patrol from the
Valley Station provides coverage. Single officers are assigned to each beat vehicle. Beat services
for Diablo CSD involve a single deputy per vehicle and a single beat.
284
Diablo Community Services District
Law enforcement issues associated with the Diablo community include speeding, residential
burglaries (4-5 per year), and complaints about bicyclists. During street closures at Halloween,
Cadets from the SO are utilized for traffic control.
The Resident Deputy and attends monthly Board of Director meetings to keep the community
updated and to address any concerns.
Through the SO, Diablo CSD also utilizes dispatch services, investigative and forensic specialists,
and any other specialized services required. For more detailed discussion of the law enforcement
services provided by the SO please refer to Chapter 26.
285
Law Enforcement MSR
25. Kensington Police Protection and CSD
The Kensington Police Protection and Community Services District provides law enforcement
services, park and recreation services, and solid waste collection within the District boundary. This
chapter focuses solely on the District’s law enforcement services germane to this report.
Basic information on the Kensington Police Protection and
Community Services District is contained in the West Contra Costa
County Sub-regional MSR adopted by the Commission on November
18, 2009. (www.contracostalafco.org)
Agency Overview
Background
The District was formed in 1946 as the Kensington Police Protection District and was
reorganized in 1953 under the Community Services District Law (Government Code Section
61000et seq.) as the Kensington Community Services District. In 1955, the District expanded its
services to include parks and recreation. In 1979 solid waste collection services were added, and in
1995 the name of the District was changed to the Kensington Police Protection and Community
Services District (KPPCSD).
The District provides services to the unincorporated community of Kensington, which is a
Census Designated Place (CDP). The community comprises approximately 1.1 square miles and has
a 2010 population of 5,077. Kensington is adjacent to the City of El Cerrito on the north and west,
the City of Richmond and Tilden Regional Park on the east, and the Alameda County cities of Albany
and Berkeley on the south. (Refer to Map 25 -1.)
There are three other organizations that are involved in the Kensington Community:
The Kensington Municipal Advisory Council (MAC) – consisting of five members who advise
the County Board of Supervisors on planning matters;
The Kensington Community Council – a non-profit volunteer organization with a 20-
member board who operate recreation programs under contract to the KPPCSD; and
Kensington Fire Protection District – which provides fire suppression, fire prevention and
emergency medical response services to the community by contract with the City of El
Cerrito.
The KPPCSD and the Fire District serve the same area and have boundaries that can be
considered coterminous (same boundary for each district).
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.
KPPCSD is an ‘independent’ special district governed by a five-member Board elected at-large
to staggered four-year terms. The General Manager of the District is also the Chief of Police, who
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Kensington Police Protection and CSD
serves at the pleasure of the Board. The Board meets on the second Thursday of each month. The
District does not have a law enforcement-related advisory commission or committee. The
Kensington Public Safety Council is a community-based organization designed to work with
government and citizens on disaster preparedness. Membership is comprised of 15-20 volunteers
who meet monthly along with liaisons from the PD and the fire district.
Constituent outreach efforts are aimed at crime prevention, education about the Police
Department’s activities, and involving constituents in police efforts. Through the Fire District, the
MAC and the Kensington Community Council, residents are fully engaged in their community. The
District utilizes a ‘community policing’ concept in which law enforcement staff can be contacted
individually by e-mail. The District has an extensive website, and encourages input from the
community. Law enforcement-related activities in the community include two key programs:
Neighborhood Watch and Vacation Watch, which can be requested electronically from the website.
The District sponsors Boy Scout Troop No. 100, and interfaces regularly with Senior Citizens. One
police officer is assigned to senior programs and one officer is assigned to Neighborhood Watch.
This officer is in the process of establishing a ‘Citizens Academy’ to familiarize residents with law
enforcement. The Chief files a detailed monthly report and a monthly police activity log on all
police-related activities to the Board of Directors.
If a constituent has a complaint regarding the Police Department (PD) or its employees,
complaints may be filed with the District Secretary via telephone, e-mail or through the website
electronic form. Complaints are rare and any inquiries are evaluated by the Chief in concert with
the Board.
Kensington 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
Per the District’s FY 10-11 budget, the Department has ten authorized sworn positions, and two
support positions. The Department is supplemented by five reserve officers.
The Department is divided into two sections, each headed by a Sergeant. Team A is assigned to
patrol and is comprised of one Sergeant and two Police Officers; and Team B is assigned to patrol
and is comprised of one Sergeant and two Police Officers. Patrol is supplemented with one
Detective Sergeant and one Traffic Officer. Support is provided by a Police Services Aide and the
District Secretary.
The Chief holds regular meetings with line staff internally, and attends all meetings of the
Board.
Major points of emphasis for the PD are preventing property crimes and controlling traffic.
Property crimes from unlocked vehicles and residential burglaries tend to increase during the
Holiday shopping season, requiring additional education bulletins to the citizens and stepped up
patrol in the commercial areas. Utilization of a new police motorcycle for traffic enforcement is
expected to reduce speeding and vehicle code violations.
Sworn officers are evaluated annually. New staff are evaluated after 18 months of a probation
period. The Department conducts training programs every three months.
Because KPPCSD is a special district, it does not have land use authority. Those responsibilities
lie with Contra Costa County. The County General Plan, adopted in 2005, addresses law
enforcement in the Public Facilities and Services Element, but does not detail any standards for
Kensington as a distinct community within the County.
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Law Enforcement MSR
Financial planning documents include the annual budget, which includes a ‘capital outlay’
component. There is no separate Capital Improvement Program (CIP).
Population and Growth Projections
According to the 2010 Census, the population of the Kensington community is 5,077. Over the
last 10 years, the population has grown by 3 percent. The community is significantly built-out so
there is no expectation that the population will increase to any degree. Limited commercial
development in the south Arlington Avenue area is a possibility.
There are no ‘service islands’ within the District boundary. The adopted SOI is coterminous
with the District boundary. (Refer to Map 25-1.)
288
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Law Enfoorcement MSRR
Finaancing
The KKPPCSD buddget has fourr components: police; rrecreation; ddistrict activvities; and caapital
outlay. LLaw enforceement revennues are derrived from pproperty taxx, a special ttax (assessmment),
Measure G supplemeental tax, feees and servicce charges, mmiscellaneouus income aand interest. The
District rreceives a poortion of the Basic 1% PProperty Taxx (currently 113.48323%) which geneerates
approximmately $1,2211,000 of tax revenue perr year. The DDistrict also assesses prooperty withiin the
district twwo special taaxes, which ccurrently gennerate approxximately $1,086,000 per year. All thrree of
these revvenue sources are dedicatted 100% to police activiities.
The ffirst special tax was origginally approoved by the voters in 11980, with inncreases in 11984,
1993, 19994, and 19977. The 1997 vote capped annual fees at $300 for ssingle-familyy residential, $450
for multipple unit residdential, $4500 for commercial and inddustrial, $3000 for miscelllaneous imprroved
property,, and $90 forr unimprovedd property. TThis tax doess not have a ccost of livingg increase claause.
The ssecond special tax (Measure G) was aapproved byy the Kensinggton voters iin June 20100 by a
vote of 688.58% ‘Yes’ aand 31.42% ‘No.’ A two--thirds majorrity was requuired and thee measure paassed
with a 400 vote margiin. Special ttaxes are levvied on single-family residential ($2000 per parceel per
year); muultiple unit rresidential ($$300 per parrcel per yearr); commercial and institutional ($3000 per
parcel peer year); misscellaneous iimproved prroperty ($2000 per parceel per year); and unimprroved
property ($60 per paarcel per yeaar). These sppecial taxes will increase based on tthe Cost of LLiving
Index.
Propeerty tax revenues consttitute 52 perr cent of poolice activitiees revenue, the special taxes
provides 46 percent, fees and seervices less tthan one perrcent, miscelllaneous incoome one perrcent,
and interrest 1.5 percent. Total ppolice activityy revenues ffor FY 10-11 are estimatted at $2,3400,000.
This was a 14 percentt increase ovver FY 09-10 due to the adddition of Meeasure G speecial taxes.
Figuree 25-1: Kensiington PD Expenditures (FYs 08, 09, & 10)
Expennditures for police servvices
have inccreased sligghtly each yyear
over thee last threee fiscal yeears.
(Refer too Figure 25-11.) In FY 099-10,
the primmary expeenses for the
Departmeent were personnel (87
percent) and servicees and suppplies.
There weere no capittal outlays inn FY
09-10, buut in FY 07-08 a new poolice
vehicle ($$32,830) and new weappons
and raadios ($442,369) wwere
purchaseed.
Theree is no llong-term ddebt
related too law enforceement servicces.
2290
Kensington Police Protection and CSD
Law Enforcement
Nature and Extent
The Police Department is responsible for providing law enforcement services in the community,
including crime prevention, parking and traffic control, community awareness, and investigations.
Kensington PD is also involved in the East Bay Regional Communication System and the Contra
Costa Mobile Field Force.
The Department relies on the Sheriff’s Office for SWAT Team, search and rescue services, and
long-term holding facilities; County Animal Control for animal services; the City of Walnut Creek for
bomb squad services; and the City of Richmond for police dispatch services.
The Sheriff’s Department also provides safety services within the Kensington community by
responding to a “critical incident” in which a request has been made for “mutual aid.”
Kensington PD does not provide contract services to other agencies.
Patrol
Kensington PD patrols 1.1 square miles which are divided into four beats. Team A (consisting
of one sergeant and two officers) works 12-hour shifts (Sunday through Tuesday) while Team B
(consisting of one sergeant and two officers) works 12-hour shifts (Thursday through Saturday).
Each team works an 8-hour shift every other Wednesday. The Traffic Control Officer works a
flexible schedule in order to maximize traffic enforcement. Kensington PD utilizes a single officer
for each beat vehicle.
Staffing
Figure 25-2: Kensington PD Staffing Levels
Over the last three Fiscal Position FY 08-09 FY 09-10 FY 10-11
Years (08-09, 09-10 and 10-11,
Chief 1 1 1
the Department has been
Sergeant 3 2 2
reduced by one sergeant and
Detective 1 1 1
one officer. A recent vacancy
resulted from the disability Police Officer 5 5 5
retirement of an officer. This Traffic Control Officer 0 1 1
position will be refilled by Records Specialist 1 1 1
October 2011. (Refer to Figure
Office Support Staff 1 1 1
25-2.)
TOTAL 12 12 12
Currently, the department
determines staffing levels based upon the necessary number of sworn officers to achieve a set ratio
per capita of 2.0 officers per 1,000 residents. This level of protection has been validated by the
community and their willingness to pay for police services.
Location
Kensington PD provides services throughout the District 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 California Law Enforcement Mutual Aid Plan; and
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Law Enfoorcement MSRR
3) the CCounty Widee Mutual Aidd Program, which is a countywidee agreementt to providee law
enforcemment servicess to any otherr provider wwhen needed.
The DDepartment did not idenntify any areeas within tthe community area that are particuularly
challenging to serve. The PD prrovides assisstance to thee East Bay RRegional Parrks District ppolice
upon request.
Infraastructure
The PPolice Deparrtment operaates out of tthe Kensingtton Fire Prottection Distrrict fire statiion at
217 Arlinngton Avenuue. KPPCSD leases spacee from the FFire District. The fire staation was buuilt in
1970 andd remodeled in 2005. Thee building is being remoddeled again ddue to structuural damage from
earth moovement. The two functions (police aand Fire) shaare locker arreas and othher common areas
in a comppatible mannner.
The DDepartment did not repport any neeeds related tto vehicles or equipmennt. Vehicless and
equipmennt are parked behind thee fire station,, but not withhin a secure area. This hhas not posed any
security problems. The PD hass seven vehhicles and rootates one oout each year. New veehicle
purchasees may be dellayed in ordeer to reduce ccapital costs..
Servicce Demand and Serrvice Adeqquacy
Each law enforcemment agencyy has been evvaluated usinng a numberr of factors. These factorrs are
indicatedd in Figure 255-4: Kensinggton CSD Laww Enforcemeent Profile. These profilles can be ussed to
compare between ageencies, althouugh exact commparisons are not alwayys possible duue to the difffering
conditionns and policiing methods used. Refer also to Chapter 3: Law Enforcemment Overvieww for
comparisson tables.
Servvice Demandd
Figure 25-33: Violent and Property CCrimes (2007--2009)
Over the last thrree years, thhe
annual number of crrimes and thhe
number oof crimes peer capita havve
varied buut ultimatelyy declined iin
2009. AAs shown in Figure 25-33,
both property and vviolent crimees
peaked inn 2008, and tthen, in 20099,
returned to a level sslightly beloww
that seenn in 2007. Based on thhe
number of propertyy and violennt
crimes bbetween 20007 and 20099,
the Disttrict had aapproximatelly
13.4 repported crimees per 1,000
residentss, while providerrs
countywiide averagedd 21 crimes pper 1,000 residents. Thee District aveeraged 5,0000 service callls per
year in 20007, 2008 annd 2009, whiich is 985 serrvice calls peer 1,000 residdents. By comparison, seervice
providerss countywidde averaged 1,500 serviice calls perr 1,000 residents durinng the same time
period.
The DDistrict reporrted that therre were no pperiods or evvents with paarticularly higgh demand.
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Kensington Police Protection and CSD
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 Kensington CSD 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. Kensington CSD on average responds to Priority 1 incidents within one minute
and 30 seconds, while law enforcement providers countywide averaged five minutes and 44
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 25-4, Kensington CSD had a clearance rate of 44 percent for violent crimes (homicide,
forcible rape, robbery and aggravated assault) committed in 2007, 2008 and 2009, and a clearance
rate of two percent for property crimes (burglary, motor vehicle theft, and thefts of greater than
$400) during the same period. By comparison, providers countywide on average cleared 38.3
percent of violent crimes and 10.6 percent of property crimes, meaning Kensington CSD solves a
larger portion of both violent and a slightly lower percentage of property crimes within its
jurisdiction than the average of other providers in the County. 44
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 0.7 sworn staff per 1,000 residents in Danville and Lafayette to 2.0 in Kensington CSD.
Kensington CSD is significantly higher than the countywide average of 1.2 sworn staff per 1,000
residents with 2.0 sworn staff per 1,000 residents.
44 Clearance rates for all agencies provided by the California State Department of Justice, Criminal Justice Statistics Center. 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.
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Law Enforcement MSR
Figure 25-4: Kensington CSD Law Enforcement Overview
Kensington Law Enforcement Profile
Service Configuration Service Demand
Patrol KPPCSD Population (2009) 5,077
Number of Beats 4 Population (2010) 5,077
Dispatch Richmond Total Service Calls (2009) 5,000
Search and Rescue Sheriff Calls per 1,000 population 985
Investigations KPPCSD Crime Activity
Traffic Enforcement KPPCSD Arrests (2009) 13
SWAT Sheriff Violent Crimes (2009) 3
Temporary Holding None Property Crimes (2009) 56
Long-term Holding Sheriff Traffic Accidents 31
Bomb Squad Walnut Creek Violent Crime Rate per 100,0001 259
Canine (K-9) Services None Property Crime Rate per 100,0001 3,809
Staff Training KPPCSD
Animal Control County
Service Adequacy Resources
Avg. Priority One Response Time 1:30 Total Staff (2010) 12
Response Time Base Year 2009 Sworn Staff 10
Clearance Rate of Violent Crimes2 44% Support Staff 2
Clearance Rate of Property Crimes2 2% Volunteers 11
Per Capita Cost (General Fund) $ 415 Sworn Staff per 1,000 population 2.0
Service Challenges
The District did not report any significant challenges to providing law enforcement services.
Facilities
Station Location Condition Built
Headquarters 217 Arlington Avenue Fair 1970
Current Facility-Sharing and Regional Collaboration
Kensington PD is involved in the East Bay Regional Communication System, the Contra Costa Mobile Field
Force and West Net, shares dispatch facilities with Richmond PD and its headquarters with Kensington Fire
Protection District.
Opportunities for Facility-Sharing and Regional Collaboration
No further opportunities for facility and resource sharing were identified by the District.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
294
Non-LAFCO Agencies
Non-LAFCO Agencies
26. Contra Costa County Sheriff
The Office of the Sheriff provides law enforcement services to the unincorporated portion of the
County and is responsible for certain County-wide functions including Coroner, Custody
(Detention), Court Security, Marine (Boat) Patrol, Air (Helicopter) Unit, Forensic Services,
Emergency Services (including Homeland Security), Restraining Order and Identification
(fingerprint) services, and the Primary Service Answering Point (PSAP) for all county 911 The
Office of the Sheriff (SO) also contracts with four cities, and provides ‘enhanced’ police services to
four special districts, a transit district, a regional medical center, and a federal installation.
Agency Overview
Background
The Office of the Sheriff was established in 1850 when Contra Costa County was formed as one
of the original counties at the time of Statehood. The Sheriff is an elected position and the Office of
the Sheriff operates under authority of the State of California Constitution, Article III, Article V, and
Article XI. The 22nd and current Sheriff is David O. Livingston, who was elected in June of 2010 and
sworn in on January 3, 2011. Sheriff Livingston succeeded Warren E. Rupf, who retired after 40
years of service, 18 years as Sheriff.
Contra Costa County is located in the East Bay portion of the San Francisco Bay Area. The
county is adjacent to San Pablo Bay, the Carquinez Strait and Suisun Bay on the north (Solano and
Sacramento County); San Joaquin County on the east, Alameda County on the south and southwest;
and the San Francisco Bay on the northwest (San Francisco and Marin Counties).
The county is comprised of 720 square miles of land, of which 444 square miles of land are in
unincorporated territory, and 276 square miles of land are within incorporated cities. There is also
82 square miles of water within the county boundary.
The County is not required to have a Sphere of Influence (SOI), but is included in this MSR
because of the direct relationship between the SO and all of the law enforcement agencies within
the county.
Accountability and Governance
As an elected official, the Sheriff is ultimately responsible to the electorate, including both
county residents and city residents. The SO also operates under an annual budget adopted by the
County Board of Supervisors.
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 Sheriff provides a number of opportunities for citizens to interface with the Office,
including direct contact with patrol deputies (especially Resident Deputies) and through specific
services provided by the SO. Some of these include:
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Law Enforcement MSR
Citizen Report Procedure – allows anyone to provide a complaint, constructive criticism or
suggestion for investigation by the SO. The form is available on-line at the SO website.
The Records and Identification Unit - provides all of the official incident reports, warrants,
visa and clearance letters, and statistical information for the unincorporated areas of the
county and all public safety agencies that the Office of the Sheriff contracts with. Also
provides restraining orders and identification (fingerprint services) county-wide.
In collaboration with Detention Health Services, the SO has implemented a Crisis
Intervention Training (CIT) Program designed to assist officers and deputies in dealing with
people with mental illness, the developmentally disabled, and individuals in crisis.
The SO has implemented a ‘Crime Free Multi-Housing Program’ in which residents, owners
and managers of rental communities are trained to keep drugs and other illegal activity off
their property. The program involves training and a certification process to insure that
minimum safety requirements have been met.
Public Information – available directly from the Public Information Officer (PIO) Jimmy Lee.
The State Victim Notification Service (VINE) – helps victims of crimes to obtain information
about the custody status of their offender. Available in English and Spanish 24-hours a day,
seven days a week.
Offender Watch – is the nation’s leading registered sex offender notification program and
allows free and confidential e-mail notification on punishable offenders by location.
Sex Offender Registry – for information on the location of sex offenders within a one-mile
radius by address. Works in conjunction with Megan’s Law.
Online Reporting- for citizens wishing to make crime reports online, the Office of the Sheriff
offers online reporting for crimes not involving leads or suspects.
The SO is involved with one Neighborhood Watch program in the Discovery Bay Community,
sponsors a cadet program (Explorer Post 240), and provides permanent identification marking on
household items (Operation I.D.). Neighborhood Watch was the responsibility of the Crime
Prevention Unit which has been de-funded.
The SO has an established complaint policy. Citizens may make a complaint by filling out a
complaint form or by calling the SO. Complaints are evaluated by the Lieutenant in charge of the
Professional Standards Unit (which is the Internal Affairs office for the Sheriff). Complaints are
logged by computer and those that are investigated are assigned a number. Over the past three
calendar years (2008-2010) the SO averaged 17 complaints per year, of which an average of 5 per
year were found to have merit. Complaints are usually related to officer conduct or excessive force.
The current SO administration demonstrated accountability by cooperating with LAFCO’s
requests for information, documents and interviews during the MSR process.
Planning and Management Practices
There is a new Sheriff in town, having started a four-year term in January of this year. Sheriff
Livingston is in the process of establishing his policing philosophy and his approach to law
enforcement on a County-wide scale. He has a record of supporting a community policing
philosophy, and is intent on utilizing advanced communication systems and new technology. He
values training, teamwork and professionalism. At the present time, Sheriff Livingston is reviewing
the organizational structure developed by his predecessors, and is looking at ways to provide the
best service in a climate of reduced financial resources.
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Contra Costa County Sheriff
The Office of the Sheriff is organized into four major bureaus in addition to the Executive Office
of the Sheriff. Each bureau is headed up by a Commander. The SO is currently staffed by a total of
1,021 persons, of which 670 are sworn and 351 are support. Supplemental services are provided
by 60 reserve deputies, 231 search and rescue volunteers, and 103 SAVES (Sheriff’s All Volunteer
Extended Services) volunteers. The organization is described as follows:
Executive Office of the Sheriff
The Office of the Sheriff consists of the Sheriff, the Undersheriff, the Sheriff’s Executive
Assistant, an Executive Secretary and the Professional Standards Unit consisting of one Lieutenant,
two Sergeants and one Senior Clerk. The Professional Standards Unit is responsible for policies and
procedures and Internal Affairs (IA), and has a total of five sworn and three support staff members.
Administrative Services Bureau
Consists of the Employee Development Unit (training, recruiting and background checks), the
Inspection and Control Division (conducts inspections and audits for specific operations), the
Personnel and Finance Division (responsible for payroll, employee records, budget, and contract
management), and the Planning and Research Unit (Strategic Plan, employee performance, and
legislation). There are a total of nine sworn and 37 support personnel.
In order to actively recruit and train new officers, the Law Enforcement Training Center was
established in 2001 in partnership with Los Medanos College. The Center operates out of the
Administrative Services Bureau and serves all of California, with emphasis on the San Francisco Bay
Area, and provides a Basic Academy Course and an In Service/Technical Program.
Field Operations Bureau
Consists of the Patrol Services Division (unincorporated area patrol services, city and district
contracts, SWAT Team, Air Support Unit (helicopter), the Marine (Boat) Patrol); the Investigations
Service Division (criminal investigations within unincorporated areas, contract cities and special
districts); and the Coroner’s Division (central morgue facility and contract with Forensic Medical
Group). There are a total of 299 sworn and 17 support personnel.
Custody Services Bureau
The Office of the Sheriff operates four detention facilities (Martinez Detention Facility, the
Custody Alternative Facility, the West County Detention Facility, and the Marsh Creek Detention
Facility) with an inmate population in excess of 1,500. Also provides inmate transportation
services and contract security for seven court facilities within the County. The Sheriff’s Health
Security Services Unit provides Sheriff’s protection to 14 Health, Employment and Human Services
locations throughout the county. There are a total of 328 sworn and 140 support personnel.
Support Services Bureau
Consists of the Forensics Services Division (crime scene investigation; alcohol, drug and
toxicology analysis; latent print services; criminalistic analysis of evidence; and property and
evidence storage); the Emergency Services Division (disaster preparedness, mutual aid, volunteer
services, community warning system, public affairs, and homeland security); and the Technical
Services Division (communications (dispatch) center, civil process and extradition), Information
Systems (computer network and support, and telecommunications), and Records and Identification
Unit (crime reports and fingerprint services), and Fleet Services Unit. There are a total of 34 sworn
and 233 support personnel.
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Law Enforcement MSR
The Office of the Sheriff adheres to a mission statement and executive order issued by the
Sheriff which suggests that protection of people and their property is the primary responsibility of
the SO. To that end, the Office of the Sheriff operates under a published Manual and a Five–Year
Strategic Plan.
The County General Plan, adopted in 2005, addresses law enforcement in the Public Facilities
and Services Element. Law enforcement standards are as follows:
A sheriff facility standard of 155 square feet of station area per 1,000 population shall be
maintained within the unincorporated area of the County.
Sheriff patrol beats shall be configured to assure minimum response times and efficient use
of resources.
A maximum response time goal for Priority 1 or Priority 2 calls of five minutes for 90
percent of all emergency responses in central business district, urban and suburban areas,
shall be strived for by the sheriff when making staffing and beat configuration decisions.
Levels of service above the county-wide standard requested by unincorporated
communities shall be provided through the creation of a County Service Area or other
special government unit.
Increased costs associated with the County jail system shall not reduce the level of sheriff
patrol services throughout the County.
As funding levels for County law enforcement continue to decline, meeting these standards will
no longer be possible. While most support services (including detention) have remained static, the
number of Deputies on patrol and in investigations has diminished.
Population and Growth Projections
According to the 2010 Census, the total County population is 1,049,025, of which 154,708
residents lived in the unincorporated portion of the County with law enforcement services
provided by the Sheriff. This is an increase of 100,209 (10.6%) from the year 2000 county-wide
population of 948,816; and an increase of 3,151 (2.1%) from the year 2000 population of 151,557
residents in the unincorporated portion of the County. Population in the 19 cities (plus Kensington
Police Protection and Community Services District) increased by 97,191 (12.2%) from 797,126 in
2000 to 894,317 in 2010.
Based on ABAG projections, the unincorporated area of the County is expected to grow to
184,450 by 2035 (25-years), a 21.6% increase. However, the ABAG projections for 2010 were
higher than the Census by 12,300, which will in turn reduce the projected 2035 population.
Service demands on the patrol and investigation side of the Sheriff’s Office (the Field Operations
Bureau) have been fairly static over the past three years. However, due to reductions in the
number of sworn officers, fewer Deputies and Investigators are available to provide service. Details
are provided in the ‘Staffing’ portion of this chapter.
Based on the ABAG projections, the unincorporated segment of the County will grow fairly
slowly (average of 700 new residents per year, based on an adjusted estimate). If most of this
growth occurs within the larger unincorporated communities (Rodeo, Alamo, Blackhawk, Contra
Costa Centre, Bay Point and Discovery Bay) where ‘enhanced’ police services already exist, the SO
should be able to maintain its existing level of patrol and investigations. However, if additional
Deputy and Investigator positions are eliminated, it will be difficult for the Sheriff to maintain
adequate patrol and investigative services.
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Contra Coosta County SSheriff
Finaancing
As deescribed in tthe SO 2009 Fourth Quaarter Report:: “Almost a yyear has passsed since buudget
consideraations eliminnated 93 Depputy Sheriff ppositions. Thhis follows sseven years oof gradual buudget
reductionns.”
Figuure 26-1: Sherriff’s Office EExpendituress (FYs 08, 09 & 10)
Over the past thhree fiscal years the
overall Shheriff’s budgget has remaiined fairly
stable wiith total expeenditures in FY 08-09
of $222.11 million; inn FY 09-10 of $220.4
million; aand a FY 100-11 budget of $223.8
million. General Fuund expendiitures for
these three fiscal years show a $99.0 million
reductionn in FY 08-009, but a $33.6 million
increase in FY 10-11. (Refer to FFigure 26-
1: Sherifff’s Office Expenditures FFYs 08, 09
& 10.)
The County Genneral Fund provides
approximmately 33 peercent of thee Sheriff’s budget. Otheer funds incclude Criminnalistic Lab FFund,
Abandoned Vehicle FFund, Prisoner Welfare FFund, and AAssembly Billl 879 Fund. The SO exppends
approximmately 20.4%% of the County’s general ppurpose reveenue; $63.9 mmillion out oof $313.3 million.
With fund amounnts remaininng relatively constant, peersonnel cutts in the SO are attributted to
increasedd costs for ssafety membber retiremennt pensions and increassed health beenefit costs. The
Sheriff’s budget unit for salaries and benefitts has remainned the samme ($89.4 miillion for thee past
three yeaars) which hhas necessitaated reductioons in persoonnel, both ssworn staff aand support staff.
Refer to tthe Staffing SSection for deetails.
The Law Enforcement Trainning Center operates aas an Enterpprise Fund, and has annnual
operatingg expenses oof $1,334,8000 per year. HHowever, operating income has geneerated $1,0855,000
per year, resulting in a deficit of $250,000 per year.
No loong-term deebt attributeed to the SOO is indicatted in the 22010 Comprrehensive Annnual
Financiall Report (CAFFR).
Law EEnforcemeent
Natuure and Exteent
The Office of thhe Sheriff iss responsiblle for providing law eenforcement services too the
unincorporated porttion of the County, as well as prroviding Couunty-wide seervices incluuding
detentionn, coroner seervices, courtt security, forensics, law enforcemennt training, hoomeland seccurity,
marine ppatrol, air suppport, and search and reescue. The SSO also conttracts with ffour cities, sppecial
districts, and other aagencies for law enforceement servicces. The SO is also the primary dispatch
center forr a number oof jurisdictionns. Details are as followss:
The SSO provides llaw enforcemment services to the uninncorporated areas of the County incluuding
a numbeer of unincorporated communities ((usually Cennsus Designaated Places) with popullation
concentraations. Thesse communitties are detaiiled in Figuree 26-2 by subb-regions. EEnhanced serrvices
(as indicaated below) aare also listed.
2299
Law Enforcement MSR
The cities of Danville, Lafayette, Oakley and Orinda contract with the Office of the Sheriff for law
enforcement services. The SO provides sworn personnel including an SO Lieutenant who serves as
the Police Chief; along with services including patrol, investigations, and forensic services, records,
identification, and dispatch. The cities provide support staff, facilities, vehicles, and equipment.
The Office of the Sheriff provides ‘enhanced’ law enforcement services (usually in the form of
Resident Deputies) to the following special districts with funding provided by the districts:
County Service Area P-2/Zone A (Blackhawk);
County Service Area P-2/Zone B (Alamo);
County Service Area P-5 (Roundhill);
County Service Area P-6 (County-wide except incorporated cities); and
Diablo Community Services District.
The unincorporated community of Crockett benefits from ‘return to source’ funding provided
by Crockett Cogen Plant for enhanced law enforcement services from the Office of the Sheriff.
The unincorporated community of Bay Point benefits from CSA P-6 funding as well as Keller
Canyon Landfill Mitigation funds for enhanced law enforcement services from the Office of the
Sheriff.
The unincorporated community of Discovery Bay benefits from CSA P-6 funding for enhanced
law enforcement services from the Office of the Sheriff.
The unincorporated community of North Richmond benefits from enhanced law enforcement
services from a combination of funding sources that include Waste and Recovery Mitigation,
Redevelopment, Contra Costa Housing Authority, and Health Services.
The unincorporated community of Rodeo benefits in a limited way from funding provided by
the Contra Costa County Housing Authority for enhanced law enforcement services from the Office
of the Sheriff.
The unincorporated community of Pacheco benefits from funding provided by a partnership
with local businesses for enhanced law enforcement services from the Office of the Sheriff.
Refer to Figure 26-2 for details, and Maps 3-1, 3-2, 3-3 and 3-4.
In addition, the SO provides sworn personnel to various agencies by contract. These include:
The Military Ocean Terminal at Concord (MOTCO) to assist the U.S. Army Military Police
(one Lieutenant, two Sergeants and seven Deputies);
The Alameda-Contra Costa Transit District (AC Transit) to patrol bus routes, transit centers,
and corporation yard (one Lieutenant and seven Deputies);
Contra Costa County Health Services for hospital security services (one Lieutenant, three
Sergeants, 10 Deputies, and 10 Sheriff’s Ranger’s);
Contra Costa Water District for Los Vaqueros Reservoir security (one Deputy); and
Contra Costa Centre (one Deputy).
The following list is a compilation of unincorporated communities by sub-area and the current
population of each (2010 Census Data). These communities are under the jurisdiction of the SO,
except for Kensington (which is under the jurisdiction of the Kensington PPCSD), Alamo Springs
(which is afforded law enforcement services by the Town of Danville), and Dougherty Valley (which
is afforded law enforcement services by the City of San Ramon).
300
Contra Costa County Sheriff
Figure 26-2: Unincorporated Communities
Population
Communities Enhanced Police Services
(2010)
West County 49,241
Bayview CDP 1,754 None
Crockett CDP 3,094 Sheriff (1.5 Resident Deputies)
East Richmond Heights CDP 3,280 Sheriff (1 Resident Deputy)
El Sobrante CDP 12,669 None
Kensington CDP 5,077 Kensington Police Protection & CSD
Montalvin Manor CDP 2,876 None
North Richmond CDP 3,717 Sheriff (6 Resident Deputies)
Rodeo CDP 8,679 Sheriff (Housing Authority Deputy)
Rollingwood CDP 2,969 None
Tara Hills CDP 5,126 None
Central County 75,068
Acalanes Ridge CDP 1,137 None
Alamo CDP (portion of CSA No. P-2B) 14,570 Sheriff (1 Resident Deputy)
Alamo Springs + (CSA No. M-30) 70 Danville (Regular Beat)
Alhambra Valley CDP 924 None
Blackhawk CDP (portion of CSA No. P-2A) 9,354 Sheriff (1 Lieutenant, 2 Resident Deputies)
Camino Tassajara CDP 2,197 None
Canyon + 200 None
Castle Hill CDP 1,299 None
Clyde CDP 678 None
Contra Costa Centre CDP + 5,133 Sheriff (1 Resident Deputy)
Diablo CDP (Diablo CSD) 1,158 Sheriff (1 Resident Deputy)
Dougherty Valley + (CSA No. M-29) 13,600 San Ramon (Regular Beat)
Mountain View CDP 2,372 None
Norris Canyon CDP 957 None
North Gate CDP 679 None
Pacheco CDP 3685 Sheriff (1 Resident Deputy)
Port Costa CDP 190 None
Reliez Valley CDP 3101 None
Roundhill + (CSA No. P-5) 450 Sheriff (1 Sergeant, 1Resident Deputy)
San Miguel CDP 3392 None
Saranap CDP 5,202 None
Shell Ridge CDP 959 None
Vine Hill CDP 3,761 None
East County 39,683
Bay Point CDP 21,349 Sheriff (3 Resident Deputies, 1 SRO)
Bethel Island CDP 2,137 None
Byron CDP 1,277 None
Discovery Bay CDP 13,352 Sheriff (2 Resident Deputies, 1 Crime Prevention Specialist)
Knightsen CDP 1,568 None
Orwood Resort None
Source: 2010 Census
Notes:
1) CDP indicates Census Designated Place.
2) + indicates estimated population.
301
Law Enforcement MSR
Patrol
The SO operates out of four ‘stations’ which are geographically located to serve each sub-region:
West County; North Central County; South Central County; and East County. Refer to Infrastructure
Section below for locations.
The unincorporated portion of the County is divided into 15 beats that cover approximately 444
square miles. However, because of budget reductions, only 11 beats are currently staffed. Beat
Deputies are supplemented by Resident Deputies in various communities as detailed in Figures 26-
2. Beat Deputies work either a four-day, 9.5 hour shift Monday through Thursday, or a three-day,
12.5 hour shift Friday through Sunday. The 9.5 hour per day Deputies have an eight hour make up
day each 28-day cycle, while the 12.5 hour per day Deputies have a ten hour make up day each 28-
day cycle. The make-up hours are typically used for training purposes or special event duties (i.e.,
County Fair security). Resident Deputies have flexible/adjustable schedules that correlate to
community issues and activities. The SO utilizes a single officer for each beat vehicle.
In addition to land patrol, the SO maintains a Marine (Boat) Patrol unit which provides law
enforcement services to the Delta, the San Joaquin River, and along Carquinez Strait and San Pablo
Bay. The Sheriff also operates a helicopter which is available to all law enforcement agencies in the
region.
Staffing
In FY 10-11 the Sheriff’s Office totaled a staff 1,073, of which 670 were sworn and 403 were
support. Refer to Table 26-3 for staffing levels by position.
Figure 26-3: Sheriff’s Office Staffing Levels (FYs 08, 09, & 10)
During the past three fiscal Position FY 08-09 FY 09-10 FY 10-11
years, the overall staffing levels
Sheriff 1 1 1
for the SO have been reduced by
Undersheriff 0 1 1
70 positions including 50 sworn
Commander 4 3 4
staff and 20 support staff. This
continues a trend which began Captain 6 7 9
in 2003, and has resulted in an Lieutenant 35 33 35
overall reduction of 84 sworn Sergeant 94 89 91
positions (approximately 11%
Deputy Sheriff 562 503 512
of the 2003 level).
Deputy Criminalist 9 9 8
Sheriff’s Office staffing K-9 Officer 9 9 9
levels have remained relatively
Dispatcher 57 52 53
static for the Administrative
Records Specialist 24 23 24
Services Bureau (Training,
Office Support Staff 290 268 274
Personnel, Finance, Inspection
& Control), the Custody Services TOTAL 1,091 998 1,021
Bureau (Martinez, West County and Marsh Creek Detention Centers, and Court Security), and the
Support Services Bureau (Dispatch, Records and Identification, Emergency Services & Homeland
Security, and Forensic Services). Over the past eight years, the major reductions have been in
sworn staff within the Patrol Services Division (70 Deputies), and the Criminal Investigation Unit of
the Investigations Services Division (9 Deputies).
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Contra Costa County Sheriff
Since 2003, there are 40 less Deputies assigned to patrol the unincorporated areas of the
County and 30 less Deputies to serve the Contract Cities (Danville, Lafayette, Oakley and Orinda),
the Special Districts (primarily CSA P-6) and the Contract Agencies (primarily AC Transit). The
Office of the Sheriff currently has 59 positions unfilled and unfunded, including 10 Sergeants and 49
support staff including nine Dispatchers.
Since June of 2008, Deputies, Dispatchers, Aides and Specialists have been working without a
contract.
In the 2005-2010 Strategic Plan, the Sheriff identified the following personnel needs, none of
which have been funded:
Restore three Drug Abuse Resistance Education (D.A.R.E.) Officers;
Establish a Gang Registration Unit, two officers;
Add a Background Investigation Coordinator position;
Add four Patrol Administrative Sergeants, one at each Station;
Fully staff the K-9 program with four Deputies and dogs;
Increase the High Technology Crime Unit with two Detectives and one Specialist;
Add four Patrol Rangers to assist in a variety of tasks;
Add five Deputies to the Valley Station to increase patrol in Dougherty Valley;
Re-staff the vacant J-Team and add two J-Teams with one Sergeant and six Deputies for
each;
Augment the school system with five Juvenile Diversion/School Resource Officers;
Add a Clerk/Receptionist at each of the four closed Patrol Stations;
Add a Community Policing Sergeant to the Bay Station;
Restore four Deputy positions in the State Bureau of Narcotics Enforcement and the Unites
States Custom Service;
Replace three Narcotics Detectives in West County;
Replace the vacant Misdemeanor Complaint Sergeant position;
Fund four Patrol Relief Deputies to cover on-duty injury or training relief;
Increase Marine Patrol staffing by three Deputies to allow an additional boat patrol;
Add one Mental Health Clinical Specialist at West County Detention Facility (WCDF);
Provide staffing for the new (as yet to be constructed) maximum security facility at WCDF,
including eight Sergeants, 60 Deputies, six Aides, five Clerks, and three Detention Service
Workers; and
Hire 14 ‘Call Takers’ for the dispatch center to free up dispatchers.
Location
Within the County, a number of unincorporated communities are served by the SO beat patrol.
All receive basic services along with a number of communities that receive ‘enhanced’ services,
primarily through funding augmentations generated by special districts. Refer to the specific
County Service Area and Special District profiles for details.
303
Law Enforcement MSR
Refer to Table 26-2 for a listing of these communities, their populations and type of law
enforcement services they receive. Currently, the community of El Sobrante is the largest
unincorporated community without enhanced services. The El Sobrante voters turned down a
ballot measure at the 2010 Primary Election (Measure E), which proposed a special tax for a period
of five years to fund police protection services. The measure was defeated with 52.56% No votes;
and required a two-thirds affirmative vote to pass. Other larger communities without enhanced
services include Rodeo, Saranap and Tara Hills. The SO provides a Resident Deputy for the Bayo
Vista development in Rodeo which is funded by the Contra Costa County Housing Authority.
The SO also provides law enforcement services to a number of ‘unincorporated islands;’ that is,
County territory surrounded by City territory. Several of these islands require more than basic
police services due to community conditions or higher populations. Details are provided within
each City profile.
The Office of the Sheriff operates primarily within Contra Costa County, but provides services to
agencies outside the County through mutual aid agreements. These 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 Officer Involved Fatal Incident Protocol which provides fatal
incident investigations for the entirety of Contra Costa County; and 3) the County Wide Mutual Aid
Program, which is a countywide agreement to provide law enforcement services to any other
provider when needed. The Sheriff is also part of the State of California Law Enforcement Mutual
Aid Region II (Coastal Region) for which Contra Costa County is the Operation Area Manager.
Beat patrols have been established for an extensive period of time, so patrol Deputies are
familiar with the areas they serve, whether it be in the extreme rural areas of the County or within
unincorporated urban pockets. Only one area was identified as difficult to serve, that being
Bradford Island and Webb Tract, which are only accessible by ferry from Jersey Island.
Infrastructure
The SO operates out of 22 facilities, which are located in various places throughout the County.
Locations of these facilities and the purpose of each are shown in Figure 26-5.
Infrastructure Needs
The Office of the Sheriff developed a Five-Year Plan (covering the period 2005-2010) that
addressed communications, facilities and infrastructure. This plan proposed significant
expenditures for new facilities and the remodeling of existing facilities, with an estimated cost (in
2005 dollars) of $122 million. Projects included a new Command Center/Emergency Operations
Center, a vehicle sally-port at the Martinez Detention Facility, construction of a new maximum
security detention facility, a remodel of the Marsh Creek Detention Facility, and construction of a
new crime lab. To date, only the vehicle sally-port at the Martinez Detention Center has been
completed.
One of the inefficiencies identified in the Five-Year Plan is the use of five different locations to
house SO functions, particularly the Forensic Services Division. The Criminalistics Section of the
Forensic Services Division is in the process of moving to the 2nd floor of the Summit Center. This
relocation does not address this issue entirely, but it does put this section closer to the Muir Lab
and provides for increased floor space which will increase efficiency.
Of the existing Patrol Stations, Delta Station requires replacement or significant improvements.
In addition, the Field Operations Building will require expansion.
304
Contra Costa County Sheriff
The Martinez Detention Facility (MDF), a maximum-security facility, was opened in 1981 (30-
years ago) with a design capacity of 386 inmates in single-person rooms. With the necessity of
double-bunking in most rooms, MDF is now rated by the California Department of Corrections to
house 695 inmates, which is the average daily inmate population in recent years. The West County
Detention Facility (WCDF), a medium-security facility, opened in 1991 (20-years ago) with a bed
capacity of 1,104 and maintains a daily average daily population of 800 inmates. Marsh Creek
Detention Facility (MCDF), a minimum-security facility, has a bed capacity of 256 and maintains an
average daily population of 90 inmates. The facility-related problem occurs when MDF is at
capacity and the two other detention facilities cannot take maximum-security inmates. Hence the
request to construct a new 400-bed maximum security detention facility at the West County site at
an estimated cost of $40 million.
No vehicle, boat or equipment needs were identified. The SO has been able to restore one of
two helicopters in the Air Support Unit.
Emergency Communication Center
The Office of the Sheriff provides dispatch services for the unincorporated portion of the
County, the four contract cities (Danville, Lafayette, Oakley and Orinda), and the cities of Moraga,
Pittsburg, and San Ramon. In addition, the SO dispatches for Los Medanos College, County Animal
Control, AC Transit, and the City of Rio Vista in Solano County.
9-1-1 calls are first answered by the Sheriff’s Communications Center (answering point) and
routed to the appropriate responder (police, fire or emergency medical). Wireless (cell phone) 9-1-
1 calls are currently answered by the California Highway Patrol Center located in Vallejo. Planning
is underway and infrastructure is being put in place with an aim toward providing wireless 911
services to the SO by the end of 2012, if the Sheriff is budgeted funds to support the personnel
needed.
During the past three calendar years (2008-2010), the SO dispatch center received an average
of 305,300 emergency 9-1-1 calls, of which an average of 109,800 were Priority 1 calls. The SO
dispatch center receives approximately 425,800 calls for service per year, including Animal Control.
The Communications Unit has been able to maintain its dispatcher positions (currently at seven
Supervising Dispatchers and 54 Dispatchers) over the past eight years, and the call volume has
remained fairly constant. However, when cell phone 9-1-1 calls are forwarded to the SO dispatch
center, the call volume is expected to increase, but by how much is not yet known. The
Communications Unit currently has nine positions unfunded and unfilled.
Service Demand and Service Adequacy
Each law enforcement agency has been evaluated using a number of factors. These factors are
indicated in Figure 26-5: Sheriff’s Office 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.
305
Law Enfoorcement MSRR
Servvice Demandd
Figure 26-44: Violent and Property CCrimes (2007--2009)
Durinng the last three calendarr years, the
annual number of crrimes and thhe number
of crimess per capita in the uninccorporated
portion of the County havee had a
downwarrd trend. As shown in Fiigure 26-4,
the number of violeent crimes wwent from
666 in 2007 to 428 in 20099, a 36%
reductionn. Likewise, property crrimes have
declined from 2,220 in 2007 too 1,818 in
2009, ann 18% reduuction. Baseed on the
number of propertyy and violent crimes
between 2007 and 20009, the
unincorporated area had approxiimately 17
reported crimes per 1,000 resideents, while
providerss countywidde averaged 21 crimes
per 1,0000 residentss. The SO averaged
425,800 service callls per year in 2007,
2008 andd 2009, which is 2,780 seervice calls pper 1,000 ressidents. By ccomparison, service provviders
countywiide averagedd 1,500 serrvice calls pper 1,000 residents duuring the saame time peeriod.
Howeverr, the larger vvolume of seervice calls ffor the SO arre attributedd the calls foor Animal Coontrol
services, plus non-speecific jurisdicction calls (i.e., calls fromm city residennts to the SO)).
Otherr reported sstatistics incllude: citatioons issued ((15,250 issued in 2009 versus a peeak of
24,795 inn 2005); crimme reports prrocessed (froom a peak off 34,024 in 20007 down too 25,661 in 2010);
and detenntion facilityy bookings (frrom a high of 25,612 in 22003 to an avverage of 23,,284 over thee past
three caleendar years)). The number of warrannts served haas increased from 7,514 iin 2008 to 11,821
in 2010; however, thhis is still coonsiderably bbelow the peeak year of 2002 when 31,966 warrrants
were servved.
Servvice Adequaccy
Adequacy of law enforcement services caan be evaluaated based onn a number of elements. For
the purposes of this report, servvices providded by the SSheriff’s Officce are assesssed according to
response times, clearaance rates (tthe portion of crimes solvved) and stafffing ratios.
Althoough police rresponse timmes for serioous crimes inn progress aare an imporrtant indicattor of
service aadequacy, theere are not clear standaards as to wwhat that response time should be. PPolice
response times were traditionallyy used to measure effecctiveness. Hoowever, moree recent research
indicates that responnse time does not have a significannt effect on crime-solvinng, because most
crimes arre “cold” criimes and victims do noot tend to caall police immmediately aafter the crimme is
committeed. The moddern approach to responnse time—ddifferential rresponse—iss to ensure quick
response to serious ccrimes (Priorrity 1) in proogress, whenn there are oopportunities to save a vvictim
and/or too apprehendd the criminaal, and to infoorm lower-ppriority calleers (Priority 2 through 6)) that
response time may bee lengthy. Exxperiments indicate that differential response leaads to both ciitizen
and officeer satisfactioon.45 Responnse times aree dependentt on the agenncy’s staffingg level and size of
the jurisdiction servved. The Shheriff’s beat patrol Depputies on avverage respoond to Priorrity 1
45 Walker annd Katz, 2002.
3306
Contra Costa County Sheriff
incidents within eight minutes and 39 seconds, while law enforcement providers countywide
averaged five minutes and 44 seconds for Priority 1 incidents. This higher average Priority 1
response time for the Deputies is attributed to the greater distances Deputies travel in the rural
areas.
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 26-7, the SO had a clearance rate of 29 percent for violent crimes (homicide, forcible rape,
robbery and aggravated assault) committed in 2007, 2008 and 2009, and a clearance rate of 3
percent for property crimes (burglary, motor vehicle theft, and thefts of greater than $400) during
the same period. By comparison, providers countywide on average cleared 38.3 percent of violent
crimes and 10.6 percent of property crimes, meaning the SO is below both violent and property
crimes clearance rates within its jurisdiction compared to the average of other providers in the
County. 46
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. Looking at two different ratios for
the SO results in the following: 1) total sworn officers (all functions) at 675 and a total County
population of 1,049,025 results in a ratio of 1.6; and 2) comparing patrol and investigative sworn
officers only (176) with the County unincorporated population (154,708) results in a ratio of 1.1.
Staffing ratios in Contra Costa County ranged from 0.7 sworn staff per 1,000 residents in Danville,
Moraga and Lafayette to 2.0 in Kensington CSD. The SO patrol and investigative sworn staff is
slightly below the countywide average of 1.2 sworn staff per 1,000 residents.
46 Clearance rates for all agencies provided by the California State Department of Justice, Criminal Justice Statistics Center. 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.
307
Law Enforcement MSR
Figure 26-5: Sheriff Law Enforcement Overview
Sheriff's Office Law Enforcement Profile
Service Configuration Service Demand
Patrol Sheriff Population (2009) 153,161
Number of Beats 15 Population (2010) 154,708
Dispatch Sheriff Total Service Calls (2009) 425,800
Search and Rescue Sheriff Calls per 1,000 population 2,780
Investigations Sheriff Crime Activity
Traffic Enforcement Sheriff Arrests (2009) 27,204
SWAT Sheriff Violent Crimes (2009) 556
Temporary Holding Sheriff Property Crimes (2009) 3,012
Long-term Holding Sheriff Traffic Accidents NP
Bomb Squad Walnut Creek PD Violent Crime Rate per 100,0001 737
Canine (K-9) Services Sheriff Property Crime Rate per 100,0001 3,620
Staff Training Sheriff
Animal Control County
Service Adequacy Resources
Avg. Priority One Response Time 8:39 Total Staff (2010) 1,021
Response Time Base Year 2010 Sworn Staff 670
Clearance Rate of Violent Crimes2 32% Support Staff 351
Clearance Rate of Property Crimes2 5% Volunteers 394
Per Capita Cost (General Fund) NA Sworn Staff per 1,000 population 1.1
Service Challenges
Due to a significant reduction in the number of Patrol Deputies over the past eight years, only 11 out of 15 beat
patrols are staffed. Specialty personnel are needed for school resource officers, gang registration, crime
prevention, K-9, patrol deputies, clerks at four closed Patrol Stations, narcotics enforcement, marine patrol,
and call takers at the dispatch center.
Continued on next page
308
Contra Costa County Sheriff
Facilities
Function Location
County Administration Building, 651 Pine Street,
Executive Office and Administrative Office
Seventh Floor, Martinez
Law Enforcement Training Center 340 Marina Boulevard, Pittsburg
Field Operations Bureau, Patrol Services Division, and Muir
1980 Muir Road, Martinez
Station (North Central County)
Bay Station (West County) and West County Detention
5555 Giant Highway, Richmond
Division
Alamo Plaza Shopping Center, 150 Alamo Plaza,
Valley Station (South Central County)
Alamo
Delta Station (East County) 210 O’Hara Avenue, Oakley
Discovery Bay Sub-station 1535 Discovery Bay Boulevard, Discovery Bay
Investigations Services Division, Coroner's Division, Support
Services Bureau,Forensic Services Division, Alcohol, Drug 1960 Muir Road, Martinez
and Toxicology Section, and SWAT Team
Air Support Unit Buchanan Field, Concord
Marine Patrol 5 Marina Plaza, Foot of L Street, Antioch
Custody Services Bureau and Martinez Detention Facility 1000 Ward Street, Martinez
Custody Alternative Facility 1011 Las Juntas Street, Martinez
Marsh Creek Detention Facility and Inmate Industries
12000 Marsh Creek Road, Clayton
Engraving/Sign Shop
Contra Costa County Regional Medical Center,
Health Services Security
2500 Alhambra Avenue, Martinez
Court Security Division 815 Court Street, Martinez
Technical Services Division and Fleet Services Unit 30 Glacier Drive, Martinez
Communications Unit, Information Systems Unit 40 Glacier Drive, Martinez
Emergency Services Division - Emergency Services Support
Unit, Homeland Security Unit, Community Warning System
50 Glacier Drive, Martinez
Unit, Public Affairs Unit, Volunteer Services Unit, Sheriff’s
Reserves Program
Civil Unit 920 Mellus Street, Martinez
Records and Identification Unit, Fingerprinting, Live Scan
500 Court Street, Second Floor, Martinez
Unit, and Central Identification Services
Criminalistics Laboratory 1122 Escobar Street, Martinez
2099 Arnold Industrial Way,
Property and Evidence Services Section
Suite D, Concord
Current Facility-Sharing and Regional Collaboration
The SO provides booking services at the Martinez Detention Facility for all law enforcement agencies within
the County. The SO is the Operation Area Manager for the California Law Enforcement Mutual Aid Region II.
The SO participates in the East Bay Regional Communications System.
Opportunities for Facility-Sharing and Regional Collaboration
No further opportunities for facility sharing were identified.
Notes:
(1) Crime rates are aggregated for the period between 2007 and 2009.
(2) Clearance rates are aggregated for the period between 2007 and 2009.
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Law Enforcement MSR
27. Regional Agencies
BART Police Department
Authority: Public Utilities Code § 28767.5
Profile: The San Francisco Bay Area Rapid System (BART) provides mass transit
services to communities in four Counties on approximately 104 miles of
trackway. BART Stations in Contra Costa County are: El Cerrito Plaza, El Cerrito
del Norte, Orinda, Lafayette, Walnut Creek, Pleasant Hill/Contra Costa Center,
Concord, North Concord/Martinez, Pittsburg/Bay Point, and the eBART park
and ride in Antioch. The BART Police Department (PD) is a comprehensive law
enforcement agency providing community-oriented patrol, investigations, traffic
enforcement, dispatch, training, crime prevention, SWAT Team, K-9 units, and
temporary holding facilities. The PD deploys patrol officers throughout the
system by zone and by beat. PD facilities in Contra Costa County are within Zone
2, with a sub-station at the El Cerrito del Norte station and field offices at the
Walnut Creek, Concord, and Pittsburg/Bay Point BART stations. Within Contra
Costa County there are five vehicle beats as well as officers riding on the trains.
Staffing: The present force is comprised of approximately 283 staff of which 208 are
sworn and 75 are support. Patrol officers are dispersed throughout the system
with supervision from sergeants, field lieutenants and the watch commander.
The PD also has seven detectives, six K-9 officers, and one traffic control officer.
Equipment: BART PD has a full complement of patrol vehicles assigned to patrol officers
within the respective zones. Many trains, stations and parking areas are
equipped with video-surveillance cameras which transmit electronically to the
dispatch center. BART PD has its own dispatch system but can also
communicate with and request assistance from local agencies including SO and
cities in which BART stations are located.
East Bay Regional Park District
Authority: Penal Code § 830.1
Profile: The East Bay Regional Park District (EBRPD) is a two county special district
(Alameda and Contra Costa County) within a 1,750 square mile area. Alameda
LAFCO is the principal LAFCO for the District and prepared a MSR that included
the District in September of 2004. Refer to Volume 1 of the Alameda LAFCO
Public Safety Services MSR.
EBRPD has a comprehensive Police Department (PD) to provide law
enforcement services to the District including 65 parks and 1,150 miles of trails;
and by contract to watershed and recreation facilities for the East Bay Municipal
Utility District (EBMUD). The PD operates out of its main headquarters at Lake
Chabot in Castro Valley, with sub-stations at the EBMUD San Pablo Reservoir in
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Regional Agencies
Orinda and Costa Loma Regional Park in Antioch. The District and EBMUD lands
are divided into six beats with six teams providing daily coverage under the
supervision of watch commanders and sergeants. Beats are adjusted based on
the season.
Staffing: The PD has 67 sworn officers and 84 support personnel. The Department is
supplemented by 175 members of Volunteer Trail Safety Patrol. Sworn officers
include one Chief of Police, one Captain, three Lieutenants, 12 Sergeants, and 50
Officers. The Department includes an Air Support Unit (two helicopters with
police officer/pilots), Marine Patrol, Equestrian Patrols, K-9 Unit, Special
Enforcement Unit, and an Investigations Unit.
Equipment: EBRPD PD has a full complement of patrol vehicles assigned to patrol officers
within their respective beasts. Specialty equipment includes the two
helicopters, five motorcycles, one boat, five all-terrain vehicles, and bicycles.
The PD has its own dispatch system, but can also communicate with and request
assistance from local agencies including the SO and cities that are nearby
including Antioch and Orinda.
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Law Enforcement MSR
28. State Agencies
California Department of Fish and Game
Authority: Fish and Game Code § 856 and Penal Code § 830.2
Profile: The California Department of Fish and Game (DFG) is a state wildlife
enforcement agency. Contra Costa County is within the North Coast
Enforcement District serving 15 counties from Humboldt to San Luis Obispo.
DFG Game Wardens are sworn officers and are responsible for protecting
California fish, wildlife and plant resources.
Staffing: The Contra Costa County Squad of the North Coast District consists of one
Patrol Lieutenant based in Monterey and four Game Wardens located in
Antioch, Brentwood, Martinez and Walnut Creek respectively. Game
Wardens work a flexible schedule so as to be on-site during opening day of
various sport hunting and fishing seasons, during the commercial fishing
season, at boat launch ramps, and in State recreation areas. DFG is a full
service law enforcement unit, providing patrol, investigations, traffic
enforcement, training, crime prevention, search and rescue, SWAT Team,
and K-9 units.
Equipment: The Contra Costa County Game Wardens utilize four-wheel drive vehicles
and also have available three aluminum skiffs, one ridged hull inflatable
skiff, and two ATVs. Dispatch is provided by the California State Parks
system, but Wardens can also communicate with and request assistance
from local agencies including the SO, the East Bay Regional Park District PD,
and cities in proximity to an incident.
California Highway Patrol
The California Highway Patrol (CHP) operates out of the Contra Costa Area Office located at
5001 Blum Street adjacent to Martinez. The CHP chose not to participate in the Municipal Service
Review process.
Mount Diablo State Park
Authority: Penal Code § 830.2
Profile: Mt. Diablo State Park is located in Contra Costa County between Clayton on the
north, Blackhawk and Diablo on the south, and Alamo and Walnut Creek on the
west. It comprises 20,000 acres with Mt Diablo, with the isolated upthrust peak
of Mt. Diablo at 3,864 feet as the centerpiece. There are 520 miles of hiking and
equestrian trails, camping facilities and picnic sites. Law enforcement
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State Agencies
responsibilities within the park are assigned to State Park Rangers, who are
sworn peace officers. Their responsibilities include a range of law enforcement
activities including: patrol by vehicle, ATV, bicycle and foot; issuance of
citations; perform arrests for misdemeanors and felonies; conduct criminal and
administrative investigations; and perform search and rescue. Park Rangers
also perform visitor services functions.
The Park has an MOU with the CHP for serious accidents, and receives assistance
from the SO, Walnut Creek PD, Danville PD and EBRPD PD as required.
Staffing: Consists of one Supervising Ranger (Sergeant-level), one Superintendent
Ranger, and four Field Rangers. Rangers are on duty during park operating
hours of 8:00 AM to Sunset. The Rangers operate out of a station at the Junction
(North Gate Road, South Gate Road and Summit Road).
Equipment: Each Ranger has an all wheel drive vehicle. Also available are two ATV’s, and
bicycles. The State Park System has its own dispatch capability, and can also
interface with the CHP and local law enforcement agencies.
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Law Enforcement MSR
29. Federal Agencies
Amtrak
Authority: 49 USC 24305(e)
Profile: Operates out of the Martinez Field Office located at the Amtrak Station at 601
Marina Vista Avenue in Martinez. This office is part of the Bay District which is
responsible for law enforcement and security on the California Zepher, Capital
Corridor, Coast Starlight and San Joaquins passenger trains from San Luis
Obispo and Bakersfield through Martinez to Sacramento. Amtrak PD is
responsible for the security of stations, trains, right-of-way, and maintenance
facilities.
Staffing: The patrol division consists of one captain, one sergeant and three officers who
provide uniformed patrol as well as undercover security on the trains. Three
detectives also operate out of the Martinez Field Office.
Equipment: Four fully marked patrol cars and five unmarked vehicles (one per officer);
radio communications through the National Communications Center in
Philadelphia, Pennsylvania which enables the agency to communicate with and
request assistance from local agencies including the SO, cities and BART.
Military Ocean Terminal, Concord (MOTCO)
Authority: 18 USC 1385
Profile: Military Ocean Terminal, Concord (MOTCO) (formerly Concord Naval Weapons
Station) is an approximate 20 square mile facility located on Suisun Bay east of
the Carquinez Strait and north of Concord. The facility is within the City of
Concord SOI. This is a secure facility (including off-shore areas that include
three primary loading docks) operated by the U.S. Army Surface Deployment
and Distribution Command (SDDC) for distribution of surface cargo from
storage and repair depots to military forward based units overseas.
Staffing: Security and military police support to the facility is provided the 6632nd Port
Security Company, U.S. Army Reserve, based on Mare Island, Vallejo. Federal
law precludes use of active duty military personnel from performing military
police and security services to a federal installation. The Port Security Company
is supported by personnel from the SO, including one Lieutenant, two Sergeants
and seven Deputies. The SDDC contracts with the SO for services.
Equipment: Portions of the facility have security fencing with security personnel, primarily
at the multi-modal loading docks. Deputies provide regular patrol in single-
officer patrol vehicles. The SO Marine Unit has two vessels stationed at MOTCO.
Dispatch is through the SO.
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Federal Agencies
United States Coast Guard
Authority: 6 USC 468
Profile: The United States Coast Guard (USCG) serves Contra Costa County from two
facilities, the Vallejo Station located at 2 Harbor Way, Vallejo, and the Rio Vista
Station located at 900 Beach Drive, Rio Vista. The Vallejo Station serves San
Pablo Bay, the Carquinez Straight, and Suisun Bay as far east as Pittsburg. The
Rio Vista Station serves easterly from the Pittsburg Marina throughout the
eastern portion of the Sacramento-San Joaquin Delta. The Coast Guard’s
primary missions are Search and Rescue (taking on water, emergency medical,
boat and marina fires, disabled vessels, lost or overdue boats and people,
drowning victims and boating accidents), Law Enforcement (boating under the
influence, reckless or negligent boat operations, pollution enforcement, drug
traffic interdiction), and Homeland Security. USCG is a first responder for
incidents involving injuries, loss of life or damage to vessels on the waterways.
Both Stations work in conjunction with the SO Marine Unit.
Staffing: Vallejo Station: not specified; Rio Vista Station: thirty-five active duty and 15
reserves.
Equipment: One 41-foot Utility Boat (UTB) and three 25-foot Response Boat-Small (RB-S) at
Vallejo; and four 25-foot RB-S and three emergency vehicles at Rio Vista. Radio
communication with the SO Marine Unit and monitoring of VHF Channel 16.
United States Marshall
Authority: 28 USC 561
Profile: The U.S. Marshals Service is based on the organizational structure of the Federal
District Court system. For Contra Costa County, the Marshals Service is within
the Northern District of California consisting of 15 counties along the California
Coast from the Oregon border to San Luis Obispo County. There are no Marshals
Service offices in Contra Costa County. The Northern District headquarters is in
San Francisco at the U.S. Courthouse/Phillip Burton Building, 450 Golden Gate
Avenue. Federal courts in the Northern District are located in San Francisco,
Oakland, San Jose, and Eureka. Marshals Service responsibilities include
protecting the U.S. Courts and judiciary, conducting criminal investigations, and
executing federal court orders. Participates in the Fugitive Apprehension Strike
Task Force (FAST) related to fugitive apprehension.
Staffing: Not provided; estimate 35 deputy marshals and investigators.
Equipment: Not provided.
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Law Enforcement MSR
30. Educational Agencies
California State University, East Bay
Authority: Penal Code § 830.2 and Education Code § 89560
Profile: California State University, East Bay operates a satellite campus in Concord at
4700 Ygnacio Valley Road. The University Police Department (UPD) is located at
the main campus in Hayward, and is committed to community oriented policing
and problem solving (COPPS). This includes identification and resolution of
safety and security concerns, development of safety and security resources, and
delivery of public safety and security services and training. Campus police are
sworn peace officers and are involved in student and faculty safety escort
service, crime prevention, and lost and found. The UPD’s primary jurisdiction is
each campus and a radius of one mile beyond campus borders.
The UPD does not station any officers on the Concord campus, but has an MOU
with Concord PD to assist in providing police services on campus. UPD is still
responsible for primary law enforcement on campus and any criminal
investigations. The Concord campus UPD office is located in the Facilities
Operations Building.
Staffing: Not specified.
Equipment: Not specified.
Contra Costa Community College District
Authority: Penal Code § 830.32 and Education Code §72330
Contra Costa Community College District consists of District headquarters and
five campuses. The Police Services Department (PSD) is an integral part of the
campus system, and is the primary law enforcement agency for the District. The
PSD operated 16 hours per day, 365 days per year. The PSD has 21.0 full time
equivalent (FTE sworn officers and 12.5 FTE support staff along with 33 student
police aides. The primary responsibility of the PSD is law enforcement and
investigation within the District and its properties, and to provide a safe
environment whereby meaningful learning can take place. PSD is committed to
team work and problem solving through collaborative relationships with the
campus community. Details are as follows:
District Headquarters
Profile: Located at 500 Court Street in Martinez, the Police Services Department
headquarters manages police operations. The Chief provides overall
supervision and coordination for the Department. The emergency services
coordinator is responsible for emergency planning, mass emergency notification
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Educational Agencies
(4CD Alert System), the community emergency response team (CERT) program,
safety training, and homeland security programs.
Staffing: One Police Chief, one emergency Services Coordinator and one Administrative
Assistant
Equipment: One patrol vehicle.
Contra Costa Community College
Profile: Contra Costa Community College is a campus of 19,000 students and is located
at 2600 Mission Bell Drive in San Pablo. The PSD provides law enforcement and
crime prevention services, traffic control, and parking enforcement. Patrol is by
vehicle, bicycle and on foot. Law enforcement assistance to the campus is
provided by the San Pablo PD. Dispatch is provided by Richmond PD.
Staffing: Two Police Services Sergeants, six Police Services Officers, one Senior Parking
Officer, two Dispatchers (internal), and six Student Police Aides.
Equipment: Four police vehicles and eight bicycles.
Diablo Valley Community College
Profile: Diablo Valley Community College is a campus of 22,000 students and is located
at 321 Golf Club Road in Pleasant Hill. The PSD provides law enforcement and
crime prevention services, traffic control, and parking enforcement. Patrol is by
vehicle, bicycle and on foot. Law enforcement assistance to the campus is
provided by the Pleasant Hill PD. Dispatch is provided by Pleasant Hill PD.
Staffing: One Police Services Lieutenant, one Police Services Officer/Detective, six Police
Service Officers, one Senior Parking Officer, one Parking Officer, two Dispatchers
(internal), and eight Student Police Aides.
Equipment: Five police vehicles and seven bicycles.
San Ramon Campus
Profile: San Ramon Valley Center Campus is a satellite campus of Diablo Valley
Community College and is located at 1690 Watermill Road in San Ramon. It has
approximately 2,500 students. Officers from Diablo Valley provide patrol
services to the center.
Staffing: One Police Services Officer and one Parking Officer.
Equipment: Not specified.
Los Medanos Community College
Profile: Los Medanos Community College is a campus of 8,400 students and is located at
2700 E. Leland Road in Pittsburg.. The PSD provides law enforcement and crime
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Law Enforcement MSR
prevention services, traffic control, and parking enforcement. Patrol is by
vehicle, bicycle and on foot. Law enforcement assistance to the campus is
provided by the Pittsburg PD. Dispatch is provided by the SO.
Staffing: One Police Services Lieutenant, five Police Service Officers, one Senior Parking
Officer, two Dispatchers (internal), and eight Student Police Aides.
Equipment: Four police vehicles and five bicycles.
Brentwood Center
Profile: Brentwood is a satellite campus of Los Medanos Community College and is
located at 101 Sand Creek Road in Brentwood. Officers from Los Medanos
provide patrol services to the center
Staffing: Not specified.
Equipment: Not specified.
John F. Kennedy University
Authority: Penal Code § 830.7 and Education Code § 66010(b)
Profile: John F. Kennedy is a small, private university located in Pleasant Hill at 100
Ellinwood Way. The university does not have a police department or any sworn
officers, but does employ private security guards. The role of the guards is to
‘patrol and observe.’ Law enforcement assistance is provided by the Pleasant
Hill PD.
Staffing: One security guard, with back up from the Director of Facilities and two on-
campus employees with security guard training.
Equipment: Not specified.
St. Mary’s College
Authority: Penal Code § 830.7 and Education Code § 66010(b)
Profile: The Office of Public Safety at Saint Mary’s College of California is responsible for
providing private safety and security services to the College. The Chief of Public
Safety oversees these activities. The Public Safety office is located on campus at
the corner of St. Mary’s Parkway and De La Salle Drive.
Staffing: There are no sworn officers associated with St. Mary’s. The Town of Moraga
provides law enforcement services to the campus. The campus is within the
Town limits. Refer to Chapter 13 for details on the Moraga PD.
Equipment: NA
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Educational Agencies
West Contra Costa Unified School District
Authority: NA
Profile: The West Contra Costa Unified School District (WCCUSD) has within its employ
security guards who are responsible for insuring the security of School District
property including the District office, school sites, corporation yards, and any
other property owned by the District. The District office is located at 1108
Bissell Avenue, Richmond.
WCCUSD has agreements with the SO, El Cerrito PD, Hercules PD, Pinole PD and
Richmond PD to provide School Resource Officers (SROs) to District campuses.
Funding for up to 15 SRO positions is provided by the School District.
Consideration has been given by the School Board to reduce the amount of
funding, pending the final State budget.
Staffing: Hercules PD – one SRO; Pinole PD – three SROs; Richmond PD – six SROs.
Equipment: NA
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Law Enforcement MSR
31. Private Companies
Profiles of the private companies listed here will be finalized following the next meeting of the
Contra Costa County Community Awareness and Emergency Response (CAER) Group, Inc. The
meeting will take place on Wednesday, July 20, 2011 beginning at 1:30 PM at the Sheriff’s
Emergency Services Division office, 50 Glacier Drive, Martinez.
Calpine Delta Energy Center and Los Medanos Energy Center
Authority:
Profile:
Staffing:
Equipment:
Chevron Richmond Refinery
Authority:
Profile:
Staffing:
Equipment:
320
Private Companies
Conoco Phillips San Francisco Refinery
Authority:
Profile:
Staffing:
Equipment:
Crockett Cogeneration Plant
Authority:
Profile:
Staffing:
Equipment:
General Chemical Bay Point Works
Authority:
Profile:
Staffing:
Equipment:
321
Law Enforcement MSR
MWECS, Inc. (Monsanto) Avon Plant
Authority:
Profile:
Staffing:
Equipment:
Rhodia Chemical Martinez Plant
Authority:
Profile:
Staffing:
Equipment:
Shell Chemical Catalyst Plant
Authority:
Profile:
Staffing:
Equipment:
322
Private Companies
Shell Martinez Refinery
Authority:
Profile:
Staffing:
Equipment:
Tesoro Golden Eagle Refinery
Authority:
Profile:
Staffing:
Equipment:
Union Pacific Railroad Company
Authority:
Profile:
Staffing:
Equipment:
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Law Enforcement MSR
32. Organizations and Persons Contacted
Organizations and persons contacted to be included in the Final Draft of the MSR.
324