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CC - Item 5B - Councilmember Request Law Enforcement Services Review• TO: HONORABLE MAYOR AND MEMBERS ROSE AD CITY COUNCIL FROM. BILL OWE, CITY MANAGER DATE: APRIL 5, 2005 LI RE: COUNCILMEMBER REQUEST FOR LAW ENFORCEMENT SERVICE REVIEW AND FEASIBILITY ASSESSMENT OF FORMATION OF A MUNICIPAL POLICE DEPARTMENT At the request of Councilman John Tran, this item has been placed on the C!tV Council agenda for discussion and possible action. During the Council's March 22 meeting, Councilman Tran directed the city manager to assess the feasibility of the City forming its own police department. Use of an independent consultant with expertise in conducting public safety service reviews would be the preferred study approach. Staff solicited information from several communities that have conducted or are considering undertaking similar assessments. Based upon the information provided, a firm has been identified with the requisite expertise to accomplish the task. Attached is a copy of a conceptual proposal from A.C. Lazzaretto & Associates to review current law enforcement services and assess the feasibility of forming an independent police department, as well as, analyze alternative service delivery options for provision of public safety services. Depending upon the desired scope of work, staff estimates the cost could range from $40,000 to $200,000. If Council wishes to proceed with such a review, staff would invite A.C. Lazzaretto & Associates to prepare a project budget, revised scope of work and project timeline for Council consideration at a future City Council meeting. COUNCIL APR 12 2005 ITEM No. • • Proposal For Law Enforcement Audit Services City of Rosemead City of Rosemead 8838 E. Valley Boulevard Rosemead, CA 91770 Tel: (626) 569-2110 April 6, 2005 Submitted By: E I A.C. Lazzaretto & Associates P.O. Box 3073 Burbank, CA 91504 Tel: (818) 569-4526 Fax: (818) 558-7088 City of Rosemead • • April 6, 2005 City of Rosemead Proposal For Law Enforcement Audit Services Background Many of the incorporated cities within Los Angeles County, including the City of Rosemead, contract for law enforcement services with the Los Angeles County Sheriff's Department. Recently these so-called 'Contract Cities' were informed by the County and the Sheriff's Department that it is quite possible that the cost for contract law enforcement services could increase dramatically during the coming fiscal year, beginning in July 2005. Current indications are that the cost for contracting with the Sheriff will increase 10-12%, and could go higher. Like most California cities and counties, Rosemead is struggling to keep pace with high cost of providing quality services to its citizens. In order to avoid being caught without options, the City of Rosemead (City) is interested in reviewing the law enforcement services which are provided to their community by the Los Angeles County Sheriff's Department (LASD). This review would include an appraisal of organizational structure, staffing, scheduling, and programs provided by the LASD, as well as the incremental cost of these services. In addition, the City is also interested in exploring service alternatives to contracting with LASD. Therefore, the City is looking for recommendations to creating a more efficient and effective means of providing law enforcement services to the citizens of Rosemead. To accomplish these goals, the City is interested in engaging the services of a qualified consulting firm to help assess the current service delivery structure and provide recommendations for alternative service delivery options. In response to these needs and at the request of the City, A.C. Lazzaretto & Associates is pleased to present this proposal. Experience During the past twenty years, A.C. Lazzaretto & Associates has assisted a diverse range of communities with professional services running the gambit of public administration. Drawing largely on the experience of the company Principal, who served as City Manager for the Cities of Walnut, Stanton, Alhambra, Burbank, and Pomona, the firm has a deep understanding of the unique needs and special challenges facing municipal organizations. In addition, the firm has provided Proposal to Provide Law Enforcement Audit Services 2 City of Rosemead • • April 6, 2005 organizational reviews for a multiplicity of communities and organizations, which provides the company and its employees with the background necessary to complete the essential tasks of this assignment. Specifically in the recent past, A.C. Lazzaretto & Associates has completed the following projects: Santa Fe Springs-Whittier Police Services: A.C. Lazzaretto & Associates assisted the cities of Whittier and Santa Fe Springs in establishing a contract for police services. During the investigation process, it was necessary to identify the staffing that would be required for the new contract and to establish an organizational structure that offered both efficiency and control. Santa Fe Springs had been contracting with the Los Angeles County Sheriffs Department for 37 years, and so it was necessary to develop a cost benefit analysis and to compare service levels proposed under the new Whittier contract. Ultimately, after the cities had decided to enter into a contract for services, ACL served as project manager during the implementation phase. This project will provide a general background for the proposed project in terms of assessing and modifying organizational structures. Whittier-La Mirada Police Services: A.C. Lazzaretto & Associates assisted the Cities of Whittier and La Mirada investigate establishing a contract for police services. As with the study noted above, it was necessary to identify the levels of service that would be required for the new contract and to assess the organizational structure that offered the best options for each agency. Although the client cities chose not to implement the study recommendations, the experience provided essential background for the proposed project in terms of assessing and modifying law enforcement organizational structures and delivery alternatives in the most optimal and cost effective manner. Dana Point-San Clemente Animal Control Services: The South Orange County Animal Authority, (SOCASA) a Joint Powers Authority operated by the Cities of San Clemente and Dana Point, circulated a Request for Proposal (RFP) to conduct a management review of their operations, practices, policies, and procedures. A.C. Lazzaretto & Associates, provided an in-depth review of the animal care and control services provided to their communities by the SOCASA. The review included an appraisal of organizational structure, staffing, scheduling, and programs as well as the role and responsibilities of two volunteer groups, Friends of San Clemente Animals (FASCA) and Animal Rescue Foundation (ARF). The Cities were provided with recommendations for creating a more efficient organization that delivered superior levels of service to the cities of San Clemente and Dana Point. In addition to providing the management audit, A.C. Lazzaretto & Associates and Hannah & Associates provided services as the interim General Manager of SOCASA. La Habra Fire Department, Service Delivery Assessment: A. C. Lazzaretto & Associates (ACL or Consultant) is helped the City of La Habra assess the way fire services are provided to the community. La Habra had decided to investigate the feasibility of obtaining Fire Protection, Hazardous Materials, Emergency Medical, and related services through the auspices of another agency. Proposals were requested from the Consolidated Fire Protection District of Los Angeles County (LACo), the Proposal to Provide Law Enforcement Audit Services 3 City of Rosemead • April 6, 2005 Orange County Fire Authority (OCFA), and the City of Brea. ACL reviewed these proposals in depth. Initial meetings were conducted with upper upper level management and key fire department staff members to discuss functional responsibilities and to gain a better understanding of City and departmental operations. Later on, additional meetings took place between the consultant and line employees of all ranks. Once the consulting team had developed an understanding of the proposals meetings were held with the representatives of LACo, OCFA and Brea, as well as representatives from the LAFCO's for Orange and Los Angeles counties. Every attempt was made to verify all data and to crosscheck information provided in the written proposals. During the course of the assignment, a total of nine financial scenarios were prepared, and the economic considerations and the service delivery alternatives were thoroughly examined. After preparing several versions of the draft report, which was discussed at a series of City Council workshops and meetings, ACL submitted a final report and recommendations, which was formally presented to and adopted by the City Council. La Habra Heights Volunteer Fire Department Study: A.C. Lazzaretto & Associates assisted the City of La Habra Heights in reviewing the organizational structure of its volunteer fire services division and identified means of enhancing the levels of service to the community while keeping costs at or below established levels. Combining and splitting of job assignments was considered as well as modifying the overall configuration and management of the organization. Each option was explored by applying cost-benefit analysis, potential for political acceptance, and overall efficiency. In order to accomplish these tasks, meetings were held with wide sample of department personnel representing all ranks. The interviews allowed the consulting team to obtain an understanding of interactions between management, employees, and the public and to discover any deficiencies that existed. As part of this assessment, the consultant worked with the County of Los Angeles and neighboring communities to explore means of increasing staff efficiency and reducing staff redundancy. San Gabriel Valley Mosquito and Vector Control District Reorganization: While performing as the Interim Director of the San Gabriel Valley Mosquito Abatement and Vector Control District, Andrew Lazzaretto ushered the agency through a structural reorganization. One of the key facets of this project was to assess the methods of service delivery to ensure that quality service was provided throughout 'a geographically diverse region. Centralization and regional service deliveries were considered and proposed management structures were assessed using several criteria. Proposed modifications were presented to the Board of Directors, who represented each of the 22 cities in the San Gabriel Valley, from Altadena to Walnut and from Alhambra to Claremont. Rancho Cucamonga Fire Department Fleet Maintenance: For this assignment, the City of Rancho Cucamonga Fire Department asked ACL to review a proposed vehicle maintenance facility and assess appropriate staffing levels. In addition, the City was interested in exploring the possibility of contracting services to several cities in the region. As part of this process, we conducted meetings with management and upper- Proposal to Provide Law Enforcement Audit Services 4 City of Rosemead • April 6, 2005 level staff to assess existing workloads and to identify methods of managerial control that were part of the existing structure. In addition, during the study interviews were conducted with line personnel including floor mechanics. Because the potential contracting cities were located throughout the region - including one more than 20 miles from the maintenance facility - it was necessary to identify the challenges and opportunities that were inherent in such geographical diversification. Because each contracting agency had specific needs, the staff structures that were proposed needed to account for the variety of services required by the agencies. Finally, centralized and regional management structures were explored. La Mirada Human Services Needs Assessment: The City of La Mirada asked ACL to perform an analysis of the entire range of services provided to the community by the Department of Human Services. During this study ACL staff performed a scientific sampling to determine the knowledge citizens had of the programs offered by the city and to gain related information. The opinion survey was conducted by carrying out a wide range of interviews in the community. This review and assessment will provide a general understanding of how unique cities strive to provide the greatest levels of service in the face of limited revenues. Los Angeles Department of Recreation and Parks: The City of Los Angeles asked our firm to review the organizational structure of the Department of Recreation and Parks. This department has an operating budget of over $109 million (1999/00), and staffing of 1,791 full-time, over 6,860 part-time and seasonal employees, and another 8,000 volunteers. Working under the direction of the General Manager, our firm provided an assessment of the current management structure and organization, and recommended alternative service delivery models and enhancements. This monumental study required the firm to investigate every facet of the organization, and to interview representatives from the Mayors' office, Chief Administrative Officer, Chief Legislative Analyst, and employees of other departments. Great emphasis was placed on assessing the department in light with the seating of a new Mayor and his philosophy. In addition to these specific projects, A.C. Lazzaretto & Associates has worked with over 40 agencies throughout California, including the City of Rosemead, on a broad range of projects. Over 90% of our clients have used our firm for multiple projects, indicating that these communities are very satisfied with the services performed. Our guiding philosophy is to develop a close working relationship with each client, their staff, and other specialists; and to provide authoritative analysis and carefully considered recommendations throughout all phases of the project. Quality work and excellent relationships with our clients are our primary goals. A.C. Lazzaretto & Associates is unique in that the company principal is personally involved in each project. Scope of Work Based on the information we have received during interviews with the City Council and City Manager, we envision a multi-phase study that will encompass a full range of law Proposal to Provide Law Enforcement Audit Services 5 City of Rosemead April 6, 2005 enforcement related topics. In order to translate the City Council's request into an action plan, the following steps will be necessary: ■ Phase I Gather and analyze data concerning the City of Rosemead and its current contract with LASD. ■ Phase II Review and analyze surrounding jurisdictions and communities to determine service alternatives available to Rosemead. Using statistical data, prepare estimates for supporting a stand alone police department. ■ Phase III Provide in-depth analysis of costs, implementation issues, constraints, etc. associated with the selected alternative(s). ■ Phase IV Assist in the development of a transition plan for the selected alternative. ■ Phase V Work with the City and the transition team to implement the selected alternative. As noted, there could be five or more phases to implement a comprehensive study of this nature, and each phase could conceivably contain many sub-phases. In order to permit the City to tackle the review of law enforcement services in manageable increments, we recommend that initially, the City plan on completing Phase I and Phase II at this time. Then if the data produced is favorable, continue with additional phases. To identify the most efficient options for providing quality safety services, our Scope of Work will include the following: Phase I Gather and analyze data concerning the City of Rosemead and its current contract with LASD. 1. Meet with the City Manager, and City management and supervisory staff responsible for overseeing the contract with LASD; 2. Review the existing, and any previous agreements, between the City and LASD, and other documents to determine the current status of law enforcement services; 3. Assemble information on the City of Rosemead, such as population, housing units, miles of street, square miles, commercial structures, demographics and other quantitative and qualitative data which will assist in developing a profile to be compared to other communities; measures related to calls for service, response times, dispositions, and community satisfaction with services delivered; 4. Accumulate a 3-5 year history relating to law enforcement activity in the City of Rosemead. Meet with representatives with the LASD to acquire and verify the data. This information would include but not be limited to: ■ Calls for Service ■ Deployment, scheduling, attrition/turn over, supervision ■ Part I crimes Proposal to Provide Law Enforcement Audit Services 6 City of Rosemead • April 6, 2005 ■ Response times ■ Clearance rates, case dispositions ■ Traffic collisions, traffic index ■ Arrests. Citations 5. Gather information from the LASD, and the counties of Orange, San Bernardino County, and Riverside relating to cost increases to cities which contract for law enforcement services with the county. At the same time gather the same information for the contracts between the cities of Brea- Yorba Linda and Whittier-Santa Fe Springs. If the information is readily available, profile a 10-year history for each of the identified jurisdictions; 6. Collect information from the LASD, and the counties of Orange, San Bernardino County, and Riverside on the current cost for 56-hour car, 40-hour car, motor, supervisor, CSO, and helicopter service for each of the counties; 7. Develop a matrix that provides as similar a comparison as possible between the different agencies and the costing of their services; 8. Provide a cursory review of possible efficiencies to maintain service within current cost parameters as a short-term option; 9. Prepare an interim report discussing alternatives for improving and more efficiently delivering law enforcement services to the City of Rosemead. The report will assess the relative limitations and advantages of the alternatives identified; 10. Meet with the City Manager, designated staff, and with representatives of the LASD, if requested, to discuss the alternatives and recommendations contained in the interim report. Phase II Review and analyze surrounding jurisdictions and communities to determine service alternatives available to Rosemead. Using statistical data, prepare estimates for supporting a stand-alone police department. 1. Identify alternative contracting agencies available to Rosemead in the surrounding area. Contact the City Manager(s) and law enforcement management staff responsible to determine interest in contracting for law enforcement services with the City; 2. Investigate the feasibility and interest in forming a Joint Powers Authority (JPA) with surrounding communities. This review will attempt to provide preliminary cost figures should a JPA be established between 2 or three agencies; Proposal to Provide Law Enforcement Audit Services 7 City of Rosemead • • April 6, 2005 3. Using comparative data assembled from cities that are similar to Rosemead, prepare an estimate of what it would cost the City to support an independent, stand-alone police department. The analysis would not include start-up costs, but rather would attempt to estimate the annual costs necessary an independent police department; 4. Prepare a report outlining service alternatives and recommendations that warrant further study for efficiently providing quality law enforcement services. The report will discuss the major findings of the study and the pros and cons of the identified alternatives; 5. Distribute the final draft report to staff members designated by the City Manager for review and input. Participate in public workshops and City Council meetings; 6. Finalize the report and recommendations on potential modifications to existing operations, policies, procedures, or organizational structure. Distribute the final report and participate in follow-up meetings; The Scope of Work anticipates meeting with staff members individually as well as attending up to three public meetings to disseminate our findings, as necessary. The Scope of Work will also include up to three versions of the draft report prepared in Phase II. Any additional meetings or drafts of the report would be considered outside of the scope of services and billed at our normal hourly rates. Assignment of Staff Andrew Lazzaretto, Principal, will oversee this project. Mr. Lazzaretto has over 40 years of public administration and public management experience. He has served as City Manager for 5 Los Angeles and Orange County communities. Mr. Lazzaretto has directed A.C. Lazzaretto & Associates since 1985 and has worked on all of the projects identified above, as well as a variety of others that will provide the background necessary to complete the required tasks. on Hannah, a Senior Associate with the firm, will serve as project manager. Mr. Hannah has significant experience in project management related to analyzing organizational operations and making recommendations for improvement. Both employees hold Masters degrees in Public Administration. Working as a Senior Analyst on this project will be Nan Lazzaretto. Ms. Lazzaretto recently joined the firm bringing 20 years of experience as a California State credentialed teacher. Ms. Lazzaretto served several years as a member of the Western Association of Schools Committee (WASC). The responsibility of a WASC team member is to determine if a school merits accreditation under the educational structure of the State of California. Ms. Lazzaretto brings her research and statistical analysis skills to this project. Proposal to Provide Law Enforcement Audit Services City of Rosemead • • April 6, 2005 Price Proposal Due to the open ended nature of the work that will need to be performed, it is recommend that a contract be formulated which will call for services to be reimbursed on an actual time-and materials basis and which contains a "not to exceed" clause, subject to the approval of the City Manager. We would estimate that Andrew Lazzaretto would devote approximately 5 hours per week, Don Hannah would devote 30 hours, and Nan Lazzaretto approximately 10 hours per week over the course of approximately five months in order to complete this project. As a result it is suggested that a cap be placed in the contract for the completion of Phase I and Phase II with the maximum "Not to Exceed" amount of $39,500. This would not include the cost of duplicating or other direct expenses. All work will be performed under the direction of the City Manger or the designated staff person. It will be our goal to begin this study in April 2005, and complete this study and have the final draft documents in the hands of the City Manager by October 31, 2005. The following standard rates for the personnel of our firm will be applied to this project: Position Hourly Rate Principal $145.00 Senior Associate $125.00 Associate $95.00 Senior Analyst $85.00 Project Analyst $65.00 Secretarial and Clerical $34.50 Once again, we appreciate the fact that you would take the time to contact us on behalf of the city of Rosemead. We look forward to establishing an excellent relationship with your management staff. Proposal to Provide Law Enforcement Audit Services City of Rosemead • . April 6, 2005 Please let me know if you have any questions or need additional information. For more information on the work experience of our firm and the background of our staff, please visit our website at www.aclazz.com; we would also be happy to forward a copy of our company brochure. If there is any way in which we can be of further assistance, I can be reached at (818) 5694526. Sincerely, Andrew C. Lazzaretto, Principal Attachments Proposal to Provide Law Enforcement Audit Services 10 City of Rosemead • • April 6, 2005 Andrew C. Lazzaretto, Jr. Principal Experience Mr. Lazzaretto has in excess of 40 years of professional experience in public and private administration, redevelopment, and economic development. His background includes management and administration of projects involving economic development, community redevelopment, general management, economic analysis, environmental management, and public finance. Prior to establishing the consulting firm specializing in services to municipalities and redevelopment agencies, Mr. Lazzaretto served as City Manager and Executive Director of Redevelopment for the Cities of Burbank, Alhambra, Stanton, and Walnut. He also held administrative positions in the Cities of Montebello and Lynwood. Under his direction industrial parks were developed, downtown areas were revitalized and redeveloped, and major public and private improvements were planned and implemented. In the course of bringing these changes about, Mr. Lazzaretto helped place over $200 million in public financing, primarily through the use of Tax Increment Financing. Responding to the dynamics of a changing society, Mr. Lazzaretto has guided the firm into important new activities. Recently, he has become actively involved in the formation and administration of publicly assisted housing projects utilizing Tax Increment Housing Set-Aside Funds. Providing first time Low- and Moderate-Income families with the opportunity of purchasing homes has been one of his most rewarding experiences. In addition to these redevelopment-oriented activities, Mr. Lazzaretto has also become very involved in the field of Environmental Management. While assisting various client cities he has developed Source Reduction and Recycling Elements, Household Hazardous Waste Elements, Nondisposal Facility Elements and other strategies in response to AB 939; reviewed and critiqued environmental site assessments and remediation plans; provided economic and environmental review and analysis for the development of a 3,000 tons per day Materials Recovery Facility (MRF); monitored and analyzed the citing and expansion of a major regional sanitary landfill; made presentations to the State Regional Water Quality Control Board, the Department of Toxic Control Substances, the Department of Health Services, the County Local Task Force, and the Waste Management Commission; Proposal to Provide Law Enforcement Audit Services I I City of Rosemead • • April 6, 2005 administered and supervised the clean-up of contaminated properties; and developed a working knowledge of Federal and California environmental laws and regulations, and the California Environmental Quality Act (CEQA). Mr. Lazzaretto has served as Redevelopment Consultant to the many cities throughout California. In addition, he has served as interim city manager for the cities of La Habra, and Pomona, and acting executive director of the San Gabriel Valley Mosquito Abatement and Vector Control District. Education Master of Science California State University, Los Angeles, California Organization and Management and Personnel Bachelor of Arts St. Mary's College of California, Moraga, California Political Science and Public Administration Member International City Management Association American Society for Public Administration Proposal to Provide Law Enforcement Audit Services 12 City of Rosemead • April 6, 2005 Donald J. Hannah Senior Associate Experience Donald Hannah has enjoyed a marvelous twenty-eight (28) year career in service to local government. After starting as an Administrative Assistant to the City Manager of the City of Rosemead, Don went on to a distinguished term of service with the Whittier Police Department. Don initially joined the department as a Police Officer and was subsequently promoted to the rank of Corporal, Sergeant, Lieutenant, and Captain. While a Captain, Don was a member of the executive management team and Commander of the Patrol Division. Significant accomplishments in this capacity included the integration of the Community Oriented Policing and Problem Solving philosophy into the organization, development and implementation of the policing partnership that provides law enforcement services to the City of Santa Fe Springs, and establishing a more cohesive management team. Don previously served as Commander of the Investigation, and Support Services Divisions. In addition to his service with the Whittier PD, Mr. Hannah has been an instructor in the Public Services Department at Rio Hondo College for the past twenty-two (22) years. He is also an instructor for the Delinquency Control Institute at the University of Southern California and was a part-time faculty member at the USC School of Public Administration for seven (7) years. Don has devoted time to the California Commission on Peace Officer Standards and Training and served on several POST Advisory Committees: Racial, Ethnic, Religious, and Minority Violence; Ethical Conduct (Basic Academy); Ethics and Decision-making (Supervisory School); and Planning and Organizing (Supervisory School). Since joining A.C. Lazzaretto & Associates, Mr. Hannah has initiated a management team-training program for the City of Pomona, and provided staff support and assistance on a study related to the expansion of Los Angeles International Airport. The professional expertise that Don brings to the firm includes executive management, project research and development, problem solving, and management team development and assessments. He has an excellent understanding of California Criminal Law, the State Vehicle Code, the Government Code, and a working knowledge of CEQA & NEPA. Education Ph.D. Candidate United States International University Proposal to Provide Law Enforcement Audit Services 13 City of Rosemead • April 6, 2005 School of Human Behavior Master of Public Administration University of Southern California Public Administration Bachelor of Arts, Magna cum Laude California State University, Long Beach Recreation Administration Law Enforcement Executive Management Training Southwest Command College FBI National Academy, 174th Class Quantico, Virginia Member Phi Kappa Phi Honor Society SYMLOG Team Building and Leadership Development Group Greater Whittier Area YMCA, Executive Committee Rio Hondo District Boy Scouts of America, Assistant Council Commissioner Proposal to Provide Law Enforcement Audit Services 14 City of Rosemead April 6, 2005 Nan K. Lazzaretto Senior Analyst Experience Prior to joining A.C. Lazzaretto & Associates, Nan Lazzaretto served for over 20 years as a credentialed teacher in Burbank, California. In recognition of her skills, Ms. Lazzaretto was selected "Teacher of the Year" for the city of Burbank in 2001. She brings a rich background in human resource management and problem solving to the work environment and is an excellent writer and presenter. During the Olympic Games of 1984 Ms. Lazzaretto served as Venue Technology Manager for the Sports Arena venue where she managed a staff of 80. While holding a full-time position teaching in the primary grades, Ms. Lazzaretto served as a member of several accrediting teams for the Western Association of Schools Committee (WASC). The responsibility of the WASC accrediting team is to determine the viability of a schools' ability to maintain its accreditation under the educational structure of the State of California. Experience The special skills that Nan brings to A.C. Lazzaretto & Associates include research, statistical analysis, data collection, public relations, & technical writing. Recently Nan has worked: as project manager on a Plan Amendment to the Redevelopment Plan for the City of West Covina, as senior analyst on the mid-term review of the Five Year Implementation Plan for the City of La Habra and as a senior analyst on a Report for the County of Los Angeles analyzing the Environmental Impact of the proposed Master Plan for Los Angeles International Airport. Education Bachelor of Arts Holy Names College, Oakland, California English, with a Minor in Theology and Education Recipient of the Founders Medal awarded to the Outstanding Graduate Credential California Teaching Credential Member California Redevelopment Association California Teachers Association Proposal to Provide Law Enforcement Audit Services 15