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81-049 Hughes, Heiss and Associates - Cost and Benefit Analysis for Public Safety Services (Police and Fire)(ATTACHMEk) e le City of Cupertino AGREEMENT NO. xxx BY THIS AGREEMENT made and entered into on the 29th day of September 19 81 by and between the CITY OF CUPERTINO (Hereinafter referred to as CITY) and Name (1) Hughes ' Heiss & Associates, inc. (2) Address 181 Second Ave., Suite 319 City San Mateo, CA Zip 94401 Phone (415) 343-4508 (Hereinafter referred as CONTRACTOR), in consideration of their mutual covenants, the parties hereto agree as follows: CONTRACTOR Shall provide or furnish the following specified services and/or materials: See Attached Proposal DELIVERY: N/A EXHIBITS: The following attached exhibits hereby are made part of this Agreement: TERMS The services and/or materials furnished under this Agreement shall commence on 10/15/81 and shall be completed before 2/15/82 COMPENSATION For the full performance of this Agreement, CITY shall pay CONTRACTOR: $34,000 Progress payments shall be made to the Consultant based on a task completion schedule GENERAL TERMS AND CONDITIONS mutually agreed upon by the City and Consultant. Hold Harmless. Contractor agrees to save and hold harmless the City, its officers, agents and employees from any and all damage and liability of every nature, including all costs of defending any claim, caused by or arising out of the per- formance of this agreement. City shall not be liable for acts of Contractor in performing services described herein. Insurance. Should the City require evidence of insurability Contractor shall file with City a Certificate of Insurance before commencing any services under this agreement. Said Certificate shall be subject to the approval of City's Director of Administrative Services. Non -Discrimination. No discrimination shall be made in the employment of persons under this agreement because of the race, color, national origin, ancestry, religion or sex of such person. Interest of Contractor. It is understood and agreed that this agreement is not a contract of employment in the sense that the relation of master and servant exists between City and undersigned. At all times Contractor shall be deemed to be an independent contractor and Contractor is not authorized to bind the City to any contracts or other obligations in executing this agreement. Contractor certifies that no one who has or will have any financial interest under this agreement is an officer or employee of City. Changes. This agreement shall not be assigned or transferred without the written consent of the City. No changes or variations of any kind are authorized without the written consent of the City. CONTRACT CO-ORDINATOR and representative for CITY shall be: Name Robert W. Quinlan Department Address 10300 Torre Avenue Cupertino, CA 95014 Telephone _(408) 252-4505 This Agreement shall become effective upon its execution by CITY, in witness thereof, the parties have executed this Agreement the day and year first written above. CONTRACTOR: CITY CUPERTINO: 0 By Richard A. Hughes Titl CityManager APPROVALS Department Head Date Cit Cle It Date n/a /vim Proposal for Conducting Cost and Benefit Analysis of Alternative Delivery Systems for Public Safety Services CITY OF CUPERTINO, CALIFORNIA Submitted By: Hughes, Heiss & Associates San Mateo, California 94401 August 15, 1981 HUGHES - HEISS & ASSOCIATES irgc. IltmagC'moi! (onsullunis .181 SECOND AVENUE, SUITE 319 POST OFFICE BOX 1879 SAN MATEO, CALIFORNIA 94401 (415) 343 - 4508 August 15, 1981 Mr. kobert K. Quinlan City Manager City of Cupertino 10300 Torre Avenue Cupertino, California 95014 Dear Mr. Quinlan: Thank you for the opportunity to submit our proposal for performing cost/benefit analyses of alternative ways to provide police and fire pro- tection services in the City of Cupertino. Our proposal has been based on: (1) my meeting wi-th you, Barbara Brown and your Code Enforcement Officer; (2) collection and review of additional data obtained from the COPANA report, year-to-year monthly statistical summary and a conversa- tion of Chief Cornelius of the Central Fire District; (3) our previous experience in working with 48 different police and fire protection agencies including some in Santa Clara County; and (3) our experience in performing a similar feasibility study for the City of Irvine, California. We have structured our proposal, as follows: Section I provides a brief description of your existing public safety delivery systems, as we understand them,. and displays tentative and unaudited data we collected and tabu- lated to illustrate the possible magnitude of selected police and fire protection problems in the City of Cupertino (based on 1980 information).; sets forth the reasons which exist for performing this feasibility study; and outlines why the study provides a unique opportunity to analyze the economy and efficiency of present and future service delivery systems. Section II provides our detailed work plan for conducting these cost/benefit analyses of delivery system alternatives and consists of seven major work phases; proposes a tenta- tive work schedule; and quotes the consulting charges anticipated. -i- Section III proposes the three person consulting team for the study and their qualifications, including resumes for myself, as the "working" project manager, and Messrs. Heiss and Brady who would assist me with the analysis; and des- cribes a Technical Review Committee composed of a former Public Safety Director, a Police Chief and a Fire Chief. The Technical Review Committee could be used to critique and "quality control" study results. Section IV summarizes the specific and broader range qualifications of the firm and its staff in terms of previous work with police service organizations, fire protection agencies, public safety departments and similar feasibility studies as well as our knowledge of Santa Clara County. Section V provides corporate information on Hughes, Heiss & Associates and references you may wish to contact to get reactions to the quality and practicality of our work. In addition, the attachment to our proposal provides an up-to-date summary of clients served by our firm over the past seven years, the specific assignments performed, for each, and specific individuals who may be con- tacted for reactions to our work. We sincerely believe that our consulting team has the skill, know- ledge and experience required for your public safety delivery system study. Equally important, we are enthused about the analysis since it represents a set of important community and operating issues that many local governments never have or take the opportunity to address. Please contact me if you have questions regarding our proposal. Sincerely yours, Richard A. Hughes HUGHES, HEISS & ASSOCIATES Principal BACKGROUND FOR THE STUDY OF PUBLIC SAFETY DELIVERY SYSTEMS I. BACKGROUND FOR THE STUDY OF PUBLIC SAFETY DELIVERY SYSTEMS The City of Cupertino, with a residential population of about 38,000, is a diverse community of about eleven square miles with residential and commercial areas (including a regional shopping center) as well as indus- trial development. The City government, with 120 FTE's staff, has an operating budget of almost $7.2 million and a CIP of $1.9 million. The City could grow to a.population of from 40,000 to 60,000 persons in the future through annexations and in -fill. I. PUBLIC SAFETY SERVICES PRESENTLY ARE PROVIDED IN CUPERTINO THROUGH CONTRACTS AND A SPECIAL DISTRICT Within the City of Cupertino, police services are handled through a contract with the Santa Clara Sheriff's Department. In fiscal year 1980- 1981, this contract was over $1.2 million. For the present fiscal year, 1981-1982, it could reach over $1.8 million. The City has developed a unique contractual arrangement where it pays for "activities" (in hours) actually provided by the Sheriff. In 1980-1981 approximately 31,500 "activity hours" were paid for. One half (or 50%) of these hours were for citizen generated calls -for -services and related "on -view" activities. The remaining hours reimbursed were to cover traditional preventive patrol work and administrative time. Traffic enforcement services are contracted for separately at a 140 hours per week. For fiscal year 1981-1982, this contractual agreement has been modified to provide for a 2.15 multiplier which includes reimbursement to the Sheriff for follow-up investigative time. A preliminary analysis has been made by the consulting team of selected police service problems which exist in the City of Cupertino. Using unaudited data from monthly statistical and status reports as well as the COPANA report, the average daily frequency of events addressed by the police has been computed. This information is provided below. Magnitude of Selected Police Service Problems Nature of Problem Traffic enforcement citations warnings Suspicious circumstances, person or vehicle Disturbance (fight, music, phone) Theft Alarms (mostly false) Citizen aid Traffic accidents Juvenile disturbance Burglary Disorderly conduct Vandalism Trespass Major crimes against persons (murder, rape, assault, robbery) Auto theft -1- Average # Per day 35.2 14.8 5.3 4.8 4.3 3.5 3.1 1.7 1.5 1.3 1.0 .5 .5 .3 As can be seen from this information, traffic enforcement, as measured by the number of citations and warnings given per day, is a major police ser- vice need with suspicious circumstances generated by either persons or vehicles being second in frequency. Almost five thefts (grand and petty) occur per day as compared to 1.5 reported burglaries. Major crimes against persons (i.e. murder, rape, assault and robbery) are not high frequency events in Cupertino, in terms of overall police service workload. Statistically, a reported crime against persons occurs every two days. Fire protection for the City of Cupertino is provided through a special district, the Central Fire District. Zone II of this district serves Cupertino, Monte Sereno, Los Gatos and one half of the City of Saratoga as well as unincorporated areas in Santa Clara County. Two of District's eight fire stations are located within the corporate boundaries of Cupertino. These two stations house three engine companies and one truck unit. Zone I of the Central Fire District contracts with the San Jose Fire Department for fire protection services in other unincorporated areas of the County. Overall, the Central Fire District has 130 budgeted positions. Again utilizing preliminary and unaudited data, our consulting team has identified the magnitude of selected fire protection problems in Cupertino. This information is presented as follows: Magnitude of Selected Fire Protection Problems Nature of Problem Emergency medical care Alarm - no fire Response to accidents Public service False alarm Structural fire Vehicle fire Grass and brush fire Outdoor property fire Average # Per day 1.1 7 .5 .3 .2 .2 .2 .l .l Average Calls Per Day 3.4 Source: Monthly Statistical and Status Report (1980) -2- As shown above, the range of problems addressed in Cupertino by fire protection personnel range from emergency medical care (which occurs approximately once every day) to grass and brush fires (an event which occurs about once every ten days). Structural fire calls occur about •once every five days. Emergency medical services in Cupertino are available from three different sources: a paramedic program, which is contractual in nature and administered through Santa Clara County; private ambulance services; and response by fire suppression personnel of the Central Fire District. 2. THE STUDY OF PUBLIC SAFETY DELIVERY IS DESIRED FOR A VARIETY OF REASONS The City of Cupertino feels that this is an opportune time to analyze the costs and benefits of alternative forms of police and fire service delivery. Specific reasons the City wants to undertake this analysis include the following: Some uncertainty exists regarding the future scope and avail- ability of contractual law enforcement services which will or can be provided by the Santa Clara County Sheriff's Department. As a result, Cupertino needs to know what options exist to meet law enforcement and police service needs as well as the costs of available alternative approaches. - In recent years, both City area and population have grown dramatically as a result of a major annexation. Projections suggest significant future growth potential with a current population of 38,000 expanding to 40,000 to 60,000. Consi- dering these levels, the City is considering whether or not it would be more cost-effective to provide and control dir- ectly its own public safety services. Given the financial problems and limitations which currently face California local governments, Cupertino desires informa- tion about the costs and benefits of the various alternatives which may exist for providing public safety services, now and in the future. -3- The issue of "contractual" and "district" public safety services versus municipally provided and controlled services exists in other areas in the State of California. No one as yet has developed a simple formula to de- termine when it is beneficial from a city's standpoint to transition from contractual or district law enforcement and fire protection service deli- very and organizational modes. A variety of economic and non -economic issues need to be identified and assessed before these determinations can be made. Advantages and disadvantages exist in whatever type of service delivery system is used to provide law enforcement and fire protection services. It is our understanding that you wish to know what these advan- tages and disadvantages would be for the City of Cupertino, now and in the future. More specifically, you want accurate and independent information on the costs and benefits of various alternatives for providing police and fire services, including the following: An independent Police Department. An independent Fire department. A Public Safety Department. Police and/or fire services provided through a district. Police and/or fire services provided through contract. Other combinations of the above. 3. THE STUDY PROVIDES A UNIQUE OPPORTUNITY TO STUDY THE ECONOMY AND EFFICIENCY OF PRESENT AND FUTURE SERVICE DELIVERY SYSTEMS AS AS WELL AS THE FEASIBILITY OF MORE FUTURISTIC OPERATIONAL CONCEPTS The study of public safety services and ways to deliver them provides the City of Cupertino an opportunity to determine if existing police and fire delivery systems are utilizing the most efficient, economical, effective and modern approaches possible... approaches com- patible with the economic realities and constraints of the 1980's. For example, analysis of law enforcement service delivery systems and costs can address such issues as: Use of less costly, non -sworn para -professionals to handle routine calls and follow-up case investigation activities... which constitute from 25% to 35% of the workloads now normally handled by sworn officers in Patrol and Investiga- tion functions. Patrol car scheduling, deployment and manning to more accurately balance workloads with manpower availability. -4- Alternative rank structures and command officer staffing patterns which are "flattened." Use of fuel conservation/cost control techniques such as stationary patrol and the "CAPS" program... which can reduce fuel costs in a policing agency in the 15% to 30% range. Use of "generalist" versus "specialist" officers in Patrol, Investigations, Traffic and special enforcement activities. Alternative work schedules (e.g. 4/10, 5/8, and other work• weeks). More efficient work processing systems to handle report writ- ing, record keeping and service request processing. Newer case management and enhancement systems to increase the probability of criminal apprehension. Similarly. the evaluation of fire protection systems can, for example, address such issues: Fire manpower utilization in non -suppression work activities. Variable manning and its relationship to station location, response time and associated fire protection risks. Characteristics of actual service demand and response time and service level impact of alternative manning and equip- ment allocation policies. Built-in fire protection systems and their relationships to response capabilities needed. Potential impact of technology improvements like large diameter hose or company staffing requirements and suppression capabil- ities. Your study, therefore, provides a unique opportunity for the City and consultant to address operational and service issues that often affect policing and fire protection agencies, regardless of their organizational and legal structure. Exhibit I, following this page, provides an illus- trative checklist of operational and/service problems that may exist in a law enforcement organization. The same type of checklist could be de- veloped for fire protection organizations. The issues set forth in this illustrative checklist can be considered in the planning of future public safety services and cost -benefit evaluations of alternative service de- livery approaches for a policing agency. =5- EXHIBIT I(1) City of Cupertino CHECKLIST OF SELECTED OPERATIONAL AND SERVICE ISSUES THAT MAY EXIST IN A POLICING AGENCY Service levels that are too Response times to CFS that high or low for specific are too high or low? groups or geographic areas? Programs/operational tactics Program gaps in existing that have only limited payoff? operations? Over -emphasis of "national" Over -reliance on historical or "professional" standards/ philosophies on what polic- guidelines? ing requirements are? Lack of information on how Limited data on what are sworn and non -sworn personnel the actual caseloads/work- are utilizing their time? loads of personnel? Improper balancing of work- Too much idle time in cer- load fluctuations with staf- tain organizational units? fing levels available? A need for more skilled or Too much or too little motivated personnel? specialization in work assignments? "Dead wood" or personnel who "High cost" personnel doing can't meet minimum perform- "routine work"? ance levels? Command staff who really are Excessive work reviews and not supervising? approvals? Poor use of "proactive" Time wasted on cases with a patrol time? low solvability probability? . Sick leave and disability Excessive time spent with misuse? prosecutor or in court? Improved "screening" of CFS Too much time spent in re - to avoid dispatching patrol port writing, handling false units? alarms and meetings? Vacations or days off taken Too much "backup" to Patrol when peak workloads are units? occurring? -6- -7- EXHIBIT I(2) Use of more modern equipment? Too much/little time in training and skill im- provement? Unproductive travel time? Excessive use of overtime? Unmeaningful briefing Limited attention on sessions? "getting the community to police themselves"? Basic academy programs Questionable benefits from which are too costly? special enforcement teams, helicopter patrols or other units? Higher than desired Work tasks that have little traffic accident rates and value and could be ineffective enforcement eliminated? tactics? Low vehicle or equipment Poor fuel conservation? utilization? Enough secretarial/clerical Excessive vehicle/equipment support? downtime? -7- II. WORK PLAN AND STUDY COSTS II. WORK PLAN AND STUDY COSTS This second chapter of the proposal outlines a tentative work approach for evaluating delivery systems for public safety services and consulting costs related to the accomplishment of these analytical tasks. 1. SEVEN MAJOR WORK PHASES ARE REQUIRED TO EVALUATE ALTERNA- TIVE WAYS TO PROVIDE PUBLIC SAFETY SERVICES IN CUPERTINO Our consulting team has prepared a tentative work plan for address- ing the scope of services set forth in the City's RFP. We envision that seven major work phases, each consisting of a series of specific work tasks will be.required. This overall work plan is subject to revision prior to beginning work on the analysis based on your critique and comments. The work phases to be completed and work tasks scheduled for accomplish- ment are described below: Phase I Determine Criteria Against Which Alternative Delivery Systems for Public Safety Services Will be Assessed At the outset of.the study, we would meet with selected City staff and then with the Citizen's Advisory Committee to determine what financial, performance and other criteria will be utilized to determine the compar- ative advantages and disadvantages of alternative ways to deliver police and fire protection services in the City of Cupertino. Based on our past experiences in working on similar projects, these financial, performance and other criteria could include the following: Total costs and costs per capita (including on-going opera- ting costs and, probably, amortized one-time capital costs) for police and fire protection compared with existing systems in other comparable cities. Current and, possibly, future costs per police called -for services answered and fire calls responded to compared to the existing systems and/or to other jurisdictions, if.these com- parative data are available. Average police response times to citizen called -for services received, perhaps, classified by urgency of call (if these data can be obtained). Hours and/or percent of time available by sworn police per- sonnel or pro -active crime and accident control and preven- tion. Average fire response time to fire and non -fire calls for assistance. in Hours and/or percent of time -required by fire protection personnel for "standby" or call availability. Ability to respond to and field sufficient manpower as well as provide sufficient water flow volumes for single and multi -company fire alarms. Impact on ISO ratings and insurance costs of various types of occupancies in the City. Degree and ability of the City government to exercise con- trol over future costs, service delivery innovations, service delivery levels and operational policies. Ability of the City to utilize present as well as new revenue sources and amounts of revenues which can be generated to re- duce the "net" cost of police and fire protection services. Ease and timeliness of implementation steps required to change existing service delivery systems. Legal implications and/or risks of possible changes in service delivery approaches. The availability of "back-up" police and fire protection ser- vices in the event of emergency conditions or service disrup- tions. Capabilities of the City to manage the implementation of ser- vice delivery changes. Citizen and/or political support for possible changes in ser- vice delivery systems. The existence of sufficient numbers of skilled management and non -supervisory personnel to plan, implement, and staff alter- native service delivery systems. It should be underscored that the criteria listed above are only illustrative of the types of measures which could be used to assess the advantages and disadvantages of alternative service delivery systems for police and fire protection in the City of Cupertino. The specific criteria actually employed by the Consultant and approved by the Citizen's Advisory Committee will depend, in part, upon data availability. Since, as your consultant, we would attend all of the Citizen's Ad- visory Committee meetings held, it might be wise to consider combining the meeting on criteria formulation and selection with the other meeting sche- duled for orientation, as specified in your RFP. One meeting, therefore, may be sufficient to address both of these committee work tasks. Phase II Determine Police Service Requirements and the Size of a Present and Future "Stand Alone" Police Department Task 1 -- Develop a Profile of Current Police Service Needs in Cupertino and the Service Delivery Approach Used In this work task, the COPANA report, interviews with City officials and Sheriff representatives and other data will be used to: Document CFS (called -for service) levels generated by the com- munity; response times for CFS at various urgency levels; per- cent of time spent in pro -active crime control tasks; reported crimes and clearance rates; traffic accident levels and the level of activity provided in traffic law enforcement, patrol frequencies; and the types and magnitude of other kinds of police services provided. Determine how police services, now provided by contract by the Sheriff, are delivered, operational tactics employed (e.g. screening calls and manning units), their costs and the ration- ale for these approaches and expenditure levels. Determine "community attitudes" regarding the positive or negative features of existing police services through such possible approaches, as: the conduct of one or two community forums to discuss this issue with interested community resid- ents; analysis of complaints received; interviews with members of the City Council and City Manager and Citizen's Advisory Committee and, perhaps taking a sample of recent called -for services received and contacting residents by phone to deter- mine their reactions to the services which were provided. Document any "gaps" which may exist in terms of service levels provided or police activities performed by comparing them to attitudes expressed, guidelines or norms which exist in the police profession, comparative statistics available, and modern operational tactics used in crime control and service delivery by other jurisdictions. These documentation tasks and the profiles developed will be used in subsequent tasks to: compare the costs/benefits of contractual service delivery to other approaches (e.g. a "stand alone" department or Public Safety department); and surface existing performance and/or operational problems that future service delivery systems need to correct. -10- It should be noted that the degree -to which community attitudes are surveyed in this work task will need to be determined by City officials and the consulting team. Subsequent cost/benefit analyses can be con- ducted with or without these detailed attitudinal data. Task 2 -- Project Police Service Workloads and Needs for a Ten Year Period and/or When Cupertino Reaches a 40,000 to 60,000 Population Range. In this work task the consultant will forecast police service workloads and needs for at least a ten year time frame (1991) and/or when Cupertino reaches a population range of 40,000 to 60,000 persons. In making these projections, we will accomplish the following: Project residential and day time populations based on histori- cal growth trends, housing and commercial developments proposed and other conditions which could affect future population growth and community generated police service requests. Determine the called -for services (CFS) that could be expected per 1,000 population in the future, then total service requests to be handled by the responsible law enforcement agency. Forecast the number of CFS which could be expected by the year 1991 or when the City reaches a 40,000 to 60,000 population range. Project traffic volumes, as measured by the number of vehicles expected on City streets daily, and possible enforcement levels which will need to be provided. Forecast the number of major crimes which are likely to be re- ported and which may require follow-up investigation. Determine other police service needs which could be expected in the future, such as: supervision of special events; time required for crime prevention programs (e.g. neighborhood watch activities); and other police operational requirements (e.g. support service activities, such as personnel management and communications). These various projections will provide the basis for determining the future person-years of time needed to provide "basic" police services in the City of Cupertino. At this point in the analysis, no decision will be made re- garding the most cost-effective ways for providing these various types of "basic" services and handling the resulting workloads. It should be underscored that we have made similar types of pro- jections in our work with the City of Irvine when they were seeking in- formation regarding the size and configuration of their future police department. -11- Task 3 -- Convert Workload Projection to Manpower Resources Needed to Provide "Basic" Police Services in the City of Cupertino Once the workload projections in Task 2 are completed, they will be converted to the person -hours or person-years required to handle them. To make this conversion, we will need to consider and determine the following: The average amount of time which could be expected for an officer to handle a CFS, as well as provide backup for calls, report writing, arrest and booking. The average amount of time which should be available for a patrol officer to engage in pro -active crime control work (which is a service level decision). The relationship which could exist between CFS workloads and response times to these calls. The percentage of CFS which could be "screened" and handled either by a non -sworn position or by a complaint clerk. The traffic citation level which could be expected given traffic volumes and the average amount of time needed to issue a traffic citation or provide a warning. The percentage of reported crimes which are likely to require follow-up investigation and the average amount of time needed for investigation. The amount of first-line supervision middle/top management necessary to plan and control various "basic" police services. The person -hours or years of time which may be needed to pro- vide other programs not directly related to patrol, investiga- tion and traffic enforcement, such as communications, recruit- ment and selection, training management, research and planning and the like. The amount of time (as measured by person -hours) available for each sworn and non -sworn employee, for work, after time losses occur because of vacations, sick leave, holidays, breaks and equipment servicing. The product of this work task will be a matrix which shows, by future time period, the person -hours or person-years of time needed to provide "basic" police services based on forecasted workload and desired service levels to be provided. -12- Task 4 -- Develop a Plan of Organization and Staffing for Providing "Basic " Police Services in a Municipally Operated Police Department In this work task, the resources needed, as measured by person-years of effort required, will be converted into the number and type of positions required for a Police Department in the City of Cupertino. However, before this can be done, the consultant, in conjunction with City officials, and, possibly, the Citizen's Advisory Committee, will need to determine the philosophy upon which this department would be established. It is likely that the organizational philosophy for a municipally operated police department would be that of a "service" and "peace officer" mode rather than the more traditional law enforcement configuration. This would mean, in part, that there would be a combination of sworn and non -sworn personnel providing "basic" police services and that the most efficient delivery systems now known would-be employed in the City of Cupertino. In short, trained police officers would not be performing work tasks which could be handled by non -sworn personnel; modern CFS screening and case management techniques would be employed; effort would be made to stimulate the community to assist in "policing themselves"; and in, general, this municipal police department would follow efficient and effective policing practices applicable to the financial realities of the 1980's. For the time period through 1991 (as well as currently), the consultant would propose the types and number of positions required to provide "basic" police services in the City of Cupertino. In addition, an organizational structure for assigning and utilizing these personnel would be established. In this work task we would also set forth the key guidelines which we feel should be utilized in developing a municipal police organization for the City of Cupertino and its service delivery system for law enforcement. It is likely that the guidelines, around which a plan of organization and staffing are based, would be as follows: Maximizing the use of para -professionals and non -sworn personnel such as Community Service Aides, in handling various workloads such as routine and non -hazardous called -for services and rou- tine and paper oriented follow-up investigative work. Minimizing the militaristic hierarchy and environment found in many police agencies and facilitate decision making at the lowest possible organizational level. This guideline could be utilized to reduce the number of different ranks required in the police department and, possibly, employing the "police agent" concept. Reducing paper work, processing, and storage. Using one person patrol units and the more efficient 5/8 work week rather than the 4/10 plan. -13- Tailoring the police services delivered by the department to the unique crime control and service needs of different facets of the community. Developing and using information so that police services can be efficiently and effectively managed on an on-going basis. The specific plan of organization and staffing developed will be reviewed with City officials to obtain their critique before the plan is finalized. Task 5 -- Determine the Equipment and Facility Needs for a Municipally Operated Police Department In this work task, the types and number of equipment will be deter- mined for the provision of. "basic" police services as well as other supporting functions which would be most economically performed by a police department in the City of Cupertino. Also, space needs will be assessed. In this task, we will: Determine the types and numbers of vehicles needed (using pooling concepts), including those required for backup to cover downtime. Determine radio and other communication equipment comparing "stand alone" costs with contractual services and other service needs, both "stand alone" and shared with other agencies. Determine the types and numbers of various equipment (e.g. handie talkies) which should be provided to sworn and non—sworn personnel. Determine office equipment required and other types of equip- ment needed, as appropriate (e.g. a mini -computer). Determine the amount and types of building and land space needed to house a municipally operated police department. Determine the options available for meeting facility needs including: a new building on existing City -owned land or a new purchased site; private construction on a lease arrange- ment; possible joint use of facilities; use of renovated facilities; and other alternatives. It should be noted that our consulting team has planned or analyzed the space needs of police facilities in a number of jurisdictions, including: Santa Rosa, California; Pasadena, California; Glendale, California; and the Stanislaus County Sheriff's Department. -14- Task 6 -- Determine the Cost of a City -Operated Police Department Rendering "Basic" Services and Other Support Service Functions as well as Revenues That Might be Generated In this work task, the consulting team will develop a proposed operating and capital outlay budget for the establishment of a City -operated police department in Cupertino. This budget would set forth: Salary and fringe benefit costs for various types of personnel. Material and supply costs for the department. Vehicle and equipment operation costs Contractual service costs (e.g. such as those for communications if not on a "stand alone" basis). Capital outlays required for equipment and facilities, including debt service where needed. Other costs associated with the operation of a municipal police department. It is likely that this operating and capital budget would be developed for a specific time frame, such as for 1981-1982 and/or the date when it might be likely that a police department in the City of Cupertino would be established. Whatever time frame we utilize for the preparation of this "futuristic" budget would be utilized for comparing "stand alone" as well as for project- ing near term and longer range costs for police services in the City of Cupertino. Budgetary forecast would be adjusted in accordance with.expected staffing level changes and inflationary trends. In this task we will also project possible revenues which would be re- ceived by the City to defray, in part, its police service costs. These revenues would include: reimbursement from POST; traffic fines and forfei- tures, periodic grants which may be available; alarm fees; report handling fees; and so. on. Based on our future population projections, we can then forecast, as appropriate, the per capita cost of police services in the City of Cupertino in the future (i.e. 1991 or when it reaches a.40,000 to 60,000 population range). Task 7 -- Survey the Cost of Police Services in Other Similar Communities and Compare Them With the Proiected Cns To determine the reasonableness of our cost (and revenue) projections for your community, it will be important to conduct a cost comparison of police services of other selected communities which could be considered similar to -15- Cupertino over the various stages of the proposed planning period. We will work with you to determine what cities should be included in our sample so that basic comparability can be attained. As specified in your RFP, we will oversee City staff in their collection of these data. Steps will be taken to insure that "comparable" data are obtained which either includes or excludes support service costs (e.g. communications, personnel administration, purchasing, accounting services and so on) as well as other cost element categories which often differ among communities in how they are accounted for (such as some fringe benefit costs). Once this cost information is collected and converted into per capita costs, it will be compared to our cost projections near term and in the future. Where major variances might exist between the possible per capita costs in the City of Cupertino and other jurisdictions, reasons for these differences will be documented and explained. Phase III Analyze Structure and Cost of a Stand -Alone Fire Service System Task 1 -- Document Key Characteristics of the Current Fire Service Delivery System The purpose of this first work task is to thoroughly document the nature and scope of fire services delivered through the Central Fire District in the City of Cupertino. Data developed in this task will be employed to structure a "stand alone" fire department later in this phase. We will docu- ment the scope of the existing fire service delivery system through inter- views with personnel of the Central Fire District, review of operating and call records maintained by the District, analysis of running cards and re- sponse policy documents maintained by the District, review of budgets and operating expense reports, and other relevant materials. Through using these data sources, we will document existing fire services in terms of the following: Locations of existing fire stations serving the City of Cupertino to include stations within City boundaries as well as other dis- trict stations outside of the City boundaries which have response responsibilities within the Cupertino area. Each station will be analyzed in terms of location, configuration of the response dis- trict boundaries surrounding those stations, and the like. Allocation of fire suppression resources across the various stations involved in providing services to the Cupertino area. Resource allocations will be analyzed in terms of: -16- Manning at each station. - Reserve and first-line equipment located at each station. The equipment inventory will be documented in terms of equipment type, age, and specific station assign- ment. Fire suppression response policies currently employed by the Central Fire District. This would include detailed analysis of response policies by type of call received in the Cupertino area; specific relationships among the various Central District; fire stations required to implement that response policy; and mutual and automatic aid agreements maintained between the Central Fire District and other surrounding fire agencies -- with special emphasis on those agreements which have immedi- ate impact on fire service delivery in the Cupertino area. How fire prevention services are currently provided by the Central Fire District to the City of Cupertino. This would include: Staffing, service policies and capabilities of specialist fire prevention personnel maintained by the Central Fire District. - Fire prevention programs maintained and implemented by specialist prevention personnel. Company inspection policies of the Central Fire Dis- trict. Use of such fire prevention techniques as master plan- ning by the Central Fire District. Familiarization with current codes and ordinances of the City of Cupertino which impact fire prevention pro- gram development and implementation. Inventory of key capital items maintained by the Central Fire District involved in providing fire service within the City of Cupertino. This would include basic vehicle data developed above; specific information related to key facilities operated by the District to include age, capital investment, improvement requirements, and available space in each fire station; and the location, age, and capacity of training facilities maintained by the District within the boundaries of the City of Cupertino. -17- Key aspects of the Central Fire District personnel system to include salary and fringe benefit structure; hiring standards related to personnel recruitment and selection; length of service data for all existing District.fire service employees to include retirement program/plan for the next three years; and nature and scope of agreements with existing employee organizations. Vehicle replacement and purchase needs programmed for the next five years by the Central Fire District to include vehicle type; timing of replacement; and the existence of any reserve funds allocated to support equipment replacement in future years. The current system for providing emergency medical services in the Cupertino area to include: The role of the contract paramedic service in providing first -response to medical service emergencies in the Cupertino area. The role of the Central Fire District suppression re- sources in responding to emergency medical services. The role of private ambulance firms. The detailed financial structure of the Central Fire District to include the following components: Detailed operating budget for the current fiscal year. Financing structure of the District to include shares of property tax revenues; allocation of special District augmentation funds by the Santa Clara County Board of Supervisors; any fee or special assessment revenue cur- rently received by the District; and other current District access to financing resources. Existance of any reserves currently maintained by the District. The results of this detailed inventory of existing fire service delivery system will be employed in subsequent tasks to structure a "stand-alone" fire service for the City of Cupertino; provide major input into the development of a Public Safety alternative in Cupertino; and to compare the cost benefits of the various alternatives to the existing system. Task 2 -- Analyze Current and Expected Future Demand for Fire Service in the City of Cupertino Once the existing fire service system has been documented in some detail, the project team will develop an in-depth understanding of the current demand for fire service within the City of Cupertino and develop key assumptions about the expected growth of that demand over coming years. The first step in analyzing demand for fire service will be an in- depth review of all fire and emergency service calls responded to in the Cupertino area over the last twelve to eighteen months. By analyzing call reports, data available through communications centers and CFRS re- ports, we will develop a detailed portrait of the fire and service call demand for the Cupertino area. At a minimum, the following characteristics of fire service call demand will be documented: Response times for each category of fire service call. Number and type of fire apparatus and personnel responding to each call. Specific characteristics of each call to include the nature of fire suppression services required such as: - Actual fire suppression required. - Fire out on arrival. - Smoke check. - False alarm. - Actual medical emergency. - Other relevant service indicator. The amount of clock and staff time required to handle each call dealt with by the Central Fire District in the Cupertino area. If available, specific characteristics of fire suppression services delivered in those instances where actual fire situations were encountered such as: Involvement at the arrival of the first responding unit. Spread before control over the fire was achieved. Injuries to include whether these injuries were in- curred before or after arrival of fire suppression units. In the instance of emergency medical service calls, the following data would be collected: min .. Whether or not fire suppression units were first on the scene. Nature and scope of services actually delivered. For example, were resuscitation or patient stabilization services required or did fire sup- pression personnel simply provide backup to para- medic or ambulance company personnel? The product of this first step will be an extensive set of tables with accompanying narrative which will depict call load, service levels, and fire suppression resources utilization in the Cupertino area. In addition to documenting the existing demand for fire service, it is important that the study team develop, to the extent possible, an under- standing of likely future demands for fire service. Through interviews with -Central District personnel, elected and appointed representatives of the City of Cupertino, review of general plans and other documents out- lining expected City growth, we will develop assumptions about expected City growth and related future fire demand in terms of the following: Location and type of population growth expected in future years. Any projected likely annexations to occur over future.years. Annexations would be analyzed in terms of: Location. Size. Characteristics of the area likely to be annexed -- residential, commercial, industrial and the like. Projected changes in land use patterns within the City of Cupertino to include: Extent to which increasing density could be expected. - Location and magnitude of likely development of multi- storied structures. Any projected major changes in existing street and transportation patterns. These assumptions will be documented in the form of a written narrative which will outline expected growth patterns in the City of Cupertino as understood by the project team; project fire and emer- gency service call volume over the planning period based on these assump- tions; and other growth assumptions which have impact on the level and scope of fire services required. For example, if increasing multi -story -20- construction can be expected, this can have major impact on fire suppression resource requirements -- both in terms of number as well as location. Projections of expected call volume as well as other related fire service requirements will be developed for a ten year planning period comparable to the planning guidelines employed to structure the police service agency described in Phase II earlier in this proposal. Task 3 -- Define the Parameters of an Autonomous Fire Service Agency for the City of Cupertino In this task, the results of the preceding tasks will be employed to structure and describe a "stand-alone" fire service agency for the City of Cupertino. An agency will be structured to meet both current service demands as well as demands projected for the ten-year planning period. In structuring the "stand alone" fire service agency, we will accomplish the following work steps: Analyze existing and projected call demand and identify specific requirements for station location within the City of Cupertino. This would include consideration of such factors as the following: The impact of establishing a "stand alone" fire ser- vice agency in Cupertino on station location require- ments. For example, analysis may indicate that the establishment of a stand-alone organization may re - require the addition of one or more stations when the immediate resources of other Central Fire Dis- trict stations are no longer available for first response within the City of Cupertino. Conservely, analysis will consider the feasibility of establish- ing automatic aid agreements with the Central Fire District if a stand-alone fire service agency in Cupertino is established. Such automatic aid agree- ments will be analyzed from the perspective'of minimizing impact on station location and subsequent capital facility expansion requirements should a stand-alone fire service agency be established. Other capital facility requirements related to the estab- lishment of a stand-alone fire agency. This would in- clude assessing the feasibility of existing fire stations located in Cupertino to provide space for administrative and fire prevention staff to support fire service agency operations. Analysis will include determination of whether additional capital facilities would be required; size and scope of those facilities determined in conjunction with the development of an expected departmental staffing plan described later in this section; and considered in conjunc- tion with police service administrative requirements de - developed in an earlier phase of this proposal. -21- Develop a detailed fire suppression staffing plan for the stand-alone agency. This would include: Company assignment by station. Company manning. - Manning policies underlying company manning assumpt- tions. Based on current service demand as well as projected growth assumptions, structure a fire prevention program and related staffing requirements for the stand-alone agency. Based on the previous work steps, develop an overall plan of organization and staffing for the stand-alone agency. Develop a proposed apparatus inventory for the stand-alone agency -- to support fire suppression service levels defined in a previous work step. Structure a proposed salary and benefit plan for a stand- alone agency. In addition to accomplishing the work steps outlined above, we will portray the impact of establishing a stand-alone fire agency over the course of the planning period. This will include addressing such issues: Capital equipment replacement needs faced by the stand-alone agency over the planning period. Potential increases in staffing required over the course of the planning period as Cupertino grows and community configura- tion changes. Identify, at specific points in the planning period, when additional stations might be required. With the completion of this task, it is now possible to estimate the cost of establishing a stand-alone fire agency. Task 4 -- Estimate the Costs and Revenues Associated With Establishing and Maintaininq a Stand-alone fire service organization In this fourth work task, we will develop a proposed operating and capital outlay budget related to the establishment of a City -operated fire service agency. This budget, developed in terms of both current and future costs, would include the following basic components: -22- Salary and fringe benefit costs for fire service personnel. Projected material and supply costs related to departmental operations. Basic equipment and vehicle operating costs. Capital outlays required for equipment and facilities, in- cluding debt service where appropriate. Any other costs associated with the operation of a fire ser- vice agency. The budget and capital expenditure data described above will be set forth in terms of the following considerations: One-time costs related to the establishment of a stand-alone fire service agency. Operating costs which could be expected in the first year of operation of the stand-alone fire agency. Projected expenditures over the course of the planning periods. This "futuristic" budget -would be adjusted to reflect expected staffing changes and to the extent possible, inflationary trends. Projection of operating and capital costs is only one portion of the financial equation related to establishment of a stand-alone fire service operation. Revenue also needs to be considered. In addressing this side of the equation, our analysis will include the following: Estimate the property tax transfer impact resulting from de -annexation from the Central Fire District. This analysis will address both short-term revenue impact resulting from property tax transfer, as well as considering expected growth in City assessed valuation and its impact on overall revenue required to support departmental operations. Analysis of the division of assets between the City of Cupertino and the Central Fire District should the City select to de -annex from the District. Division of assets will be analyzed from the perspective of start-up costs related to establishment of a stand-alone fire service agency. Once costs and revenues have been identified, our analysis will focus on the identification of potential gaps between expected revenues, resulting from property tax transfer, and costs associated with operating a stand-alone fire department. To the extent revenue surpluses or gaps exist, they will be identified both in terms of the first year of opera- tion as well as over the course of the planning period. -23- Task 5 -- Survey the Cost of Fire Services in Other Similar Communities and Compare Them With the Projected Costs for the City of Cupertino Comparable to the analytical tasks described in Phase II, analysis of a stand-alone police agency, our analysis of a "stand-alone" fire agency will include a test.of the reasonableness of our cost and revenue projections based on comparison with comparable jurisdictions. Our test will include comparisons of projected fire services and their cost in Cupertino with other selected communities which could be considered similar to Cupertino. We will work with you to determine which cities should be included in our sample so that basic comparability can be attained. As specified in the RFP, we will oversee City staff in the collection of these data. Steps will be taken to insure that "comparable" data are obtained. Once this cost in- formation has been collected and converted into per capita costs, it will be compared to our cost projections near term and in the future. To the extent that significant variances exist between the possible per capita costs related to the establishment of the stand-alone fire agency in the City of Cupertino and cost documented for other jurisdictions, the reasons for these differences will be analyzed and documented. Task 6 -- Identify Key Issues Related to Establishing a Stand -Alone Fire Service Agency Once a stand-alone agency has been structured and appropriate cost estimates developed, the project team will prepare a summary analysis of the potential advantages and disadvantages associated with establish- ing a stand-alone agency. Our analysis would include the following components: Identify specific transition requirements which Cupertino might face if the decision were made to de -annex from the Central Fire District and establish a stand-alone agency. Identify specific service advantages and disadvantages associated with establishing a stand-alone agency. Identify specific short term considerations and longer term considerations related to the establishment of stand- alone agency. Completion of these tasks will result in the development and analysis of the impact of establishing a stand -along fire service agency in the City of Cupertino. Material developed as a result of this phase will be used in subsequent tasks to: to compare the cost/benefits of maintaining membership in the Central Fire District with other potential approaches -- to include establishing a "stand-alone" department or pro- viding fire services through a public safety department. In addition, the results of the analysis developed in this phase will identify existing performance and/or operational problems that future service delivery systems need to address and correct. -24- Phase IV Determine the Size and Cost of an Integrated Public Safety Department Basically, work tasks set forth in Phase II and III (to determine the size and cost of "stand-alone" police and fire agencies) generally would be duplicated in this fourth work phase to calculate the configuration and bud- get for a Public Safety Department. Using the Sunnyvale Public Safety De- partment as a model, the cost for a public safety department generally will be found to be somewhat different from "stand-alone" police and fire organiza- tions. These differences can be illustrated in a number of ways. For example, a public safety department generally will have higher salary and and fringe benefit ranges since it normally pays a premium pay level for the extra skill requirements of its sworn and non -sworn personnel. It also spends more time on training since most sworn personnel are periodically rotated between station based fire protection and mobile-patrol/fire sup- pression activities. Information systems and planning and research activity costs also tend to be higher since more planning and control normally occurs on how personnel will be deployed and utilized. In costing out a public safety department, these differencials will need to be taken into account. Conversely, a public safety department will have lower, overall, per- sonnel cost than "stand-alone" police and fire agencies. This occurs for a number of reasons, as follows: Fewer personnel are devoted to fire protection "stand-by" status at fixed fire station locations since mobile Public Safety Officers can respond quickly to a fire scene and become part of the fire control team. Economies generally exist in the number and type of middle and top level command officers required as well as the number of support staff needed for such functions as records, train- ing, personnel administration, financial management and so on. Within a public safety department, combined or integrated com- munication systems exist which results in fewer dispatchers and communications posts needed. In this important work phase police and fire workload projections will be converted to personnel, equipment and other needs required in a Public Safety Department as well as a plan of organization and staffing for this type of organization. This structure then will be "costed out" and revenues projected to determine the "net cost" to the City of Cupertino of an integrated police and fire service delivery system. In analyzing the size and cost of a public safety department, con- sideration will be given to different staffing patterns which may occur. -25- Phase V Determine Legal Constraints and Implications of Various Police and Fire Delivery Systems In this work phase, the legal parameters affecting future public safety services in Cupertino will be explored using the City's City Attorney, League of California Cities legal staff and other knowledgeable persons and organizations. The consulting team will present these persons and/or organ- izations with a list of issues to research. While all the questions which could be posed are not known at this time by us, some illustrative issues likely to be addressed could be as follows: What are the.legal implications of Cupertino withdrawing from the Central Fire District and creating a "stand-alone" agency? What assets and current revenues would the City be entitled to and what is their one-time and ongoing value in dollars? How difficult would this legal change be, what process would be followed in pursuing this option and what timing could be involved? Could Cupertino keep a "special district" legal framework for fire services, to protect existing assets and revenue sources (including augmentation funds) which it is entitled to but use this device only as a financing mechanism for either a "stand- alone" fire department or a Public Safety Department over which it could exercise policy and management control? Could a special district be created for police and fire ser- vices? Would adequate revenue sources exist and could the City exercise adequate control over its services and their costs? What legal challenges could be anticipated if Cupertino pursued a service delivery approach different from the ones now used? What legal implications and risk exist for any of the police and fire service delivery systems to be considered? What laws might need to be changed, why and by whom? While, as stated in the City's RFP, the City of Cupertino would assume responsibility for obtaining answers to these questions, the consulting team would be accountable proposing the proper questions to ask. -26- Phase VI Analyze the Advantages and Disadvantages of Alternative Ser- vice Delivery Systems and Recommend the Most Viable Option In this work phase, the costs and benefits (advantages and disad- vantages) of alternative service delivery systems for public safety ser- vices would be assessed. As stated in the City's RFP, a wide range of alternatives exist, including: (1) "stand-alone" police and fire de- partments; (2) a Public Safety Department; (3) special districts for any or all of these three different service delivery approaches; (4) con- tractual service delivery with other public or private organizations; and (5) other variations of the above. We believe, however, that the thrust of the cost and benefit anal- yses should be directed toward: a "stand-alone" police agency and a muni- cipally operated Fire Department; a Public Safety Department as compared with the previous two options; and these various alternatives assessed against the existing Sheriff's contract and the Central Fire District. In addition, the issue of "district" services needs to be thoroughly explored as it pertains to funding sources, "net costs" to the city and future control by the City over service delivery costs and policies. For relevant cost and benefit analyses to take place, the most important determinant is the "size" of independent police and fire organizations as well as an integrated Public Safety Department. District and contractual organizational approaches primarily represent variations of these three basic service delivery options. Since other neighboring cities do not appear to want to participate actively in this service delivery analysis, it is unclear to the consulting team at this time what in-depth attention can be given to contractual or district approaches which are multi -city in nature. Perhaps this issue will be clarified after the study begins. In conducting the cost and benefit analysis of service delivery al- ternatives, the financial, performance and other criteria agreed to in Phase I would be applied to each alternative seriously considered and their relative advantage and disadvantages would then be assessed. These results would be reviewed with the Citizen's Advisory Committee. Once the most viable service delivery approach is determined (that one with the best cost and benefit ratio), findings would be made as to how this approach could be successfully integrated into existing police and fire protection systems in Santa Clara County. -27- Phase VII Develop a Plan of Implementation and a Final Report After the most optimal service delivery approach for police and fire services is determined, a plan of implementation will be prepared, working with City staff to formulate meaningful timetables. -The plan of action developed by the consulting team would set forth: (1) various steps which need to be taken to implement the optimal approach selected; (2) who should be responsible for taking each of these steps; and (3) the estimated time when each task should be started and completed. Our plan of action would also set forth our conclusions and recommendations for dealing with such illustrative issues as: How new staff might be recruited, trained and in what sequence as well as competitive compensation packages which may need to be developed (if a "stand-alone" organization is required for either police or fire protection or both). How facilities should be established for housing police and/or .fire protection staff and operations (under a "stand-alone" approach or the Public Safety concept). How contractual law enforcement and/or special district fire protection services can be tran- sitioned into municipally operated organizations (if the existing system is to be altered). How a neighboring City such as Sunnyvale, might be used to assist Cupertino in the establishment of a Public Safety Department (if this approach to ser- vice delivery seems best). Other issues which could affect the implementation process. The draft and final report developed by the consulting team would document and summarize the study process, including: Criteria formulated to evaluate alternative public safety delivery systems. Profiles of existing service delivery systems for police services and fire protection, their costs and problems that need to be addressed. The size and cost of a "stand-alone" Police De- partment. The size and cost of a "stand-alone" Fire De- partment. The size and cost of a Public Safety Department. Alternative service delivery systems considered and the cost/benefit of each option. A proposed service delivery system for Cupertino, the legal implication of this change and a plan for implementing these proposed changes. These reports (first in draft and then in final form) would be presented to the Citizens Advisory Committee and the City Council (after review and critique by City staff). 2. A PRELIMINARY SCHEDULE HAS BEEN PREPARED TO GUIDE STUDY EFFORTS' Your desire to have the service delivery systems analysis com- pleted by the end of December, 1981, suggests that this study should begin as soon as possible. An evaluation of this complexity will take approximately four months to complete, so a start date should be con- sidered around September 1st. A preliminary work schedule for this study which shows the estimated start and completion times for each major work phase follows this page, as Exhibit II. It should be noted that the consultant plans to attend all Citizen's Advisory Committee meetings scheduled. 3. THE CONSULTING CHARGES FOR THE COSTS AND BENEFITS ANALYSIS OF ALTERNATIVE PUBLIC SAFETY DELIVERY SYSTEMS HAS BEEN DETERMINED We have developed three cost elements for the proposed study of alternative service delivery systems for Public Safety Services in the City of Cupertino. These cost elements consist of the "base" con- sulting charge for performing the scope of work previously outlined in this proposal. The second and third cost elements pertain to use of the Technical Advisory Committee as a source of outside assistance and additional quality control; and the extent to which citizen atti- tudes will be surveyed in the City regarding the adequacy of existing police and fire protection services. Therefore, the second and third cost elements proposed can be considered optional by the City of Cupertino and require decision making on your part. -29- CD O W C J 41 H L LU H O W 0_ = Y H = N m U � F- x ¢ W T' Z 4 H U J W 0_ 0 10 ti N O -30- t0 r� •i - 4 T L T O N C N -LI N N I N41 N U .r-1 u R • .-1 4- Er U: _0 V: 01 R N > N E N ..0 0_ w L N '}+ N N v: NM -P I R v m4- 'O R E R -0 41 0 S 7 U 41 0_ R L C U > R0 N C .1 ..-I C R U R to 41 4- . r-1 O a] O N L R O. r -I ..i -P U R > .I •.+ 41 • N .--� L t N 01 O_ U r -I C N • N 4- CI_ N N _0 _0 O 0_ 4 T • N N 0_ R N R N > VJ 41 O al • r1 -0-0 U C C 0_ H 4� 4� 0 41 -o E C E > O1 L E N R 41 -N C ..-I R R N_0 .--1 C C R. rl L N -0 R N N O C •.-I R 0_ r -I .-t _ L C R N N ..� >. O) 0 4h R -V W. 41 E R 'O L C �-I O W -V N •H f@ 0. E t 41 N_0 41 N U L L •.-I 0_ 41 C C 4- 41 •U 4� C 0 .--1 C H >. N R N >. N D_ R W O 3 C N O 'N L R 4- R R N s > > N s . -V Ll N N N H N -0 ..+ R N R N 41 -0 •.-I 4 R C G .ti N C E N R -{-I C N C 0_ C 4- V.' C V; 4- >. R 4-1 T O •N R N OJ •N N L I C •N N J N' •N O •N 41 O L N N R L d 0_ •N E E U E L 0_ N E C E -O E U E C N N •r-1 C N V7 C O i -I -V L L N• rl L. ti C E L L N • r-1 L ..-1 V: > T L > OO UJ U Li > aJ Z3 CO R 41 N C R N N 41 1 O_ •.-I N i-1 O 41 •.-I to L 41 O' 41 L 41. O L J-1 N -0 -l-� L O r -I R -O -1-� .--I O , > C 0. N S T N N N 4- N R 0 •r1 4- •.-I N O 7 N 41 ..-1 0 C C H N L 0_ N N N D 3 N 0 Cl L O 0_ M 41 O 4- W U 0_ O W 41 -O Q R R_0 0_ O O E L -30- The cost for each of these three expenditure elements are as follows: $30,000 would be required for the use of Hughes, Heiss & Associates to perform the consulting work necessary for this study. $2,000 would be needed for the professional time and reimbursable expenses for the three Technical Advisory Committee members (Chief Hansen, Chief Brown and Chief Marcucci) if it is deemed by you they are important for the completion of this work. $2,000 would be needed to engage in an in-depth assessment of citizen attitudes regarding citizen attitudes regarding public safety services in Cupertino. These consulting costs would cover the development and use of various survey instruments and the tallying of survey results for a "sample" number of residents and businesses in Cupertino. Therefore, the study costs for this project could range from $30,000 to $34,000, depending on the decisions which you make regarding the desirability and need for the second and third cost elements. We would be happy to discuss with you the value of these latter two elements. Our cost estimates provide you with some flexibility in the decisions you can make regarding study costs, study team members and the scope of work to be performed. It should be underscored, however, that the basic work requested in your RFP can be accomplished for the "base" consulting charge of $30,000. The additional two cost elements can, however, enrich the study process and the external validity of study findings. We would be happy to enter into a fixed price contract for what- ever study composition you decide upon. -31- III. STUDY TEAM FOR THE CUPERTINO PROJECT III. STUDY TEAM FOR THE CUPERTINO PROJECT Hughes, Heiss & Associates plans to use a multi -member team to work on Cupertino's public safety delivery system study. This team will be composed of on-site analysts and a technical review committee. Study team members provide a blend of the following characteristics: In-depth experience in analyzing police and fire organization, staffing, operations, facilities, and costs. Experience in performing a similar feasibility study for law enforcement and fire protection services for Irvine, California. Experience, in working with a Public Safety Department (Sunnyvale, California); exploring the cost and benefits of using Public Safety offices in another city; and auditing law enforcement contractual costs for a large county government. Knowledge of Santa Clara County and its law enforcement and fire protection services through previous work with Santa Clara County, the Town of Los Gatos, Mountain View, and Palo Alto. Knowledge of local government and police and fire costing and financing. approaches gained through previous work with city and county governments, including special districts. Team members and their roles on the assignment would be as follows: Richard A. Hughes Mr. Hughes would function as the study team's "working" project manager, involved in all work phases, and concentrate on the cost/ benefit analysis of police service needs and alternative public safety delivery systems. He has performed similar analyses for over thirty law enforcement agencies including San Rafael, San Bernardino, and the Butte County Sheriff's Department. More specifically, he per- formed the contract versus municipally operated police and fire ser- fice feasibility study for Irvine, California, and designed the organization and staffing framework for the new police agency recom- mended, including cost projections. In addition, he headed the study of law enforcement contractual costs in Los Angeles County. He also has worked with the Sunnyvale Public Safety Department and has con- ducted a feasibility study of public safety services for another city government. Mr. Hughes evaluted fire manpower utilization for three cities/districts in Alameda County to identify ways to improve the resources allocated to fire protection. He also hars worked on three program evaluations for the San Jose Police Department. He has been a consultant to government for seventeen years and has a MPA from the University of Michigan and has been actively involved in all of the firms' work with law enforcement in other criminal justice agencies. -32- John W..Heiss Mr. Heiss would concentrate on the analysis of fire protection delivery systems, the cost/benefit of alternative service delivery forms and financing issues connected with special dis- tricts. Mr. Heiss has been involved in all the firm's work with fire protection agencies, including those in Stanislaus, Monterey, Tulare, Alameda and San Mateo counties as well as three cities in Los Angeles County. He also has had the opportunity to plan for adult correctional programs in Santa Clara County and has worked for many policing agencies including the San Jose Police Depart- ment. Mr. Heiss has been a consultant to local governments for eleven years and has an MBA from the University of Pennsylvania and a BA from Dartmouth College. Richard Brady Nor. Brady will assist Messrs. Hughes and Heiss in data collection and analysis in each study phase. Mr. Brady, a former analyst With the Governmental Research Agency of San Mateo County, has been involved in police staffing and operations audits for such agencies as the San Rafael Police Department, San Bernardino Police Department, and Butte County Sheriff's Department; fire pro- tection studies in six jurisdictions; and police and/or fire facilities planning for a number of agencies. Mr. Brady also has been assisting Mr. Hughes in his current work assignment for the San Jose Police Depeartment which involved the recruitment of bi- lingual police officers. He has been in consulting for three years,. has worked with over twenty local governments. He has a doctorate from Oxford University. We also can employ a three-person Technical Review Committee to provide us input on the comprehensiveness and accuracy of our various cost -benefit analyses of alternatives to public safety delivery systems. This committee, who we have worked with in the past, would consist of the following persons: George Hansen - Mr. Hansen has been a Chief of Police of three cities and a Director of Public Safety of two others: Sunnyvale and Oak Park, Michigan. He and Mr. Hughes have worked together on staffing, management and operations audits of the San Bernardino Police Department and for the police agency in. Sparks, Nevada. Robert Marcucci - Mr. Marcucci has been the Fire Chief in San Rafael for ten years and a firefighter for seventeen years. He analyzed and implemented a program for extending San Rafael's fire services to 21,000 persons outside of the City by contract, including the use of a "flying squad" to reduce service delivery cost. He and Mr. Hughes have worked together on a fire station space utilization analysis. -33- Gary Brown - Mr. Brown has been a Chief of Police in three cities: San Clemente, South Pasadena and Chowchilla. He also is a former consultant. Mr. Brown conducted the feas- ibility study for Carpinteria to assess whether to keep con- tractual law enforcement services or form its own police de- partment. A "stand alone" police agency was established and Chief Brown directed implementation efforts to make it operational. Because of the study team's wide experience in working with law enforcement and fire protection organizations, we also would be able to tap the knowledge of other talented persons in this service delivery area. This would include the individual who implemented the new police department for Pleasant Hill, California, and a LAFCO Director who is highly skilled in identification of special district financing constraints, and financing implications of de -annexation. Given the importance of this assignment to the City of Cupertino as well as the interest that our firm has in working on this important issue, the firm is willing to commit a substantial portion of its senior staff members' time to the study, particularly that of Mr. Hughes. More detailed resumes for Messrs. Hughes, Heiss and Brady are pro- vided at the end of this section of the proposal. -34- RICHARD A. HUGHES Background Consultant to over 150 Principal of Hughes, governmental agencies for Heiss & Associates for past 17 years. 7 years. MPA from the University Former vice-president of of Michigan and AB in Booz, Allen & Hamilton political science from for over 9 years and re - Washington University. sponsible for governmental services in the western states. Experience Relevant to the Cupertino Public Safety Study (1) Has evaluated the costs and benefits of contractual versus municipally operated police services and fire protection in Irvine, California and developed a multi-year plan for implementing a City run policing agency. Recommendations to establish a police department and continue contractual fire protection services were adopted by the City Council. (2) Has analyzed law enforcement contractual costs for Sheriff ser- vices in Los Angeles County to contract cities. Recommendations on costs to be charged and methodology to be used to calculate contractual costs adopted by the Board of Supervisors. (3) Developed a performance -cost decision-making system to deter- mine field staffing needs in the Pasadena P.D. which is applica- able to other policing agencies. (4) Has conducted program staffing, operational and cost audits for over 30 policing agencies, including: San Diego P.D. San Bernardino P.D. San Jose P.D. San Rafael P.D. Glendale P.D. Santa Rosa P.D. Mountain View P.D. Colorado Springs P.D. Capitola P.D. Palo Alto P.D. Albuquerque P.D. Butte County Sheriff (5) Has completed recruitments for police chiefs in the cities of Beverly'Hills, Santa Rosa, Pittsburg and Capitola, California. (6) Analyzed police service coordination and consolidation needs in Contra Costa County, including the costs and benefits of alternative delivery systems for selective services. -35- (7) Evaluated fire manpower utilization in three cities (districts in Alameda County, including Valley Community Services Dis- trict, Pleasanton and Livermore), and ways to improve it. (8) Conducted program, staffing and operation audits of fire agencies in Orange and Pomona, California. (9) Trained.all Lieutenants in the Sunnyvale Public Safety De- partment in supervisory and program budgeting techniques and conducted a feasibility study (as part of a City-wide opera- tions audit) of a public safety officer program for residential areas in Pomona, California. (10) Analyzed police and fire facility needs in Santa Rosa and San Rafael, California, and police space needs in Pasadena and Glendale, California. -36- JOHN W. HEISS Background Consultant to over 100 governmental agencies over the past 12 years. BA from Dartmouth and an MBA from the Wharton School of the University of Pennyslvania. Principal of Hughes, Heiss & Associates for 7 years. Former project manager with Booz, Allen and Hamilton for over 5 years. Experience Relevant to the Cupertino Public Safety Study (1) Has conducted a number of analyses of alternative approaches for deliver- ing fire services for cities and counties in California, including: Currently conducting an analysis of the advantages and disad- vantages of alternative organizational approaches for providing fire services in the unincorporated areas of Stanislaus County, California. Conducted a fire service consolidation study for the cities of Lynwood, Southgate and Downey in Southern California. Conducted an analysis of the advantages and disadvantages of alternative forms of fire service consolidation in Northern Monterey County, California. Recently completed an analysis of the fire sery ice system on the Monterey Peninsula. Conducted a cost-effectiveness analysis of the fire service of the fire service system in Tulare County. Conducted an analysis of fire manpower utilization for three East Bay cities -- a project which also included cost -benefit analysis of a fire service consolidation. Conducted an analysis of alternative approaches for providing communications and dispatch services to fire service agencies in San Bernardino County, California. Analyzed the potential costs and benefits associated with fire service consolidation in San Mateo County. (2) Has also conducted.a variety of analysis of law enforcement operations in California and elsewhere in the United States. Relevant experience includes: -37- A management and staffing analysis for the Colorado Springs, Colorado Police Department. Management and staffing analysis of the Albuquerque, New Mexico Police Department. Analysis of alternative approaches for organizing and financing police services in Contra Costa County, California. Developed a criminal justice system master plan for Santa Clara County, California, a project which focused primarily on analyz- ing the need for current and future detention facilities. Currently conducting a jail needs for Butte County, California. Analyzed detention and other criminal justice agency facility needs for San Mateo County, California. Conducted a cost-effectiveness analysis of a criminal justice information system for law enforcement agencies, courts and other criminal justice agencies in San Mateo, California. Background Doctorate in political science from Oxford University, J.K., BA from California State University, Hayward. RICHARD P. BRADY Formerly Senior Resedarch Analyst at the Governmental Research Council, San Mateo, California. Three years consulting Specialist in the analysis experience to over of law enforcement and 20 local governmental fire protection agencies. agencies. Relevant Experience to the Cupertino Public Safety Study (1) Have conducted staffing, management and operations audits of the following law enforcement agencies. San Rafael P.D. Butte County Sheriff San Bernardino P.D. (2) Have participated in criminal justice program and facility planning studies for the following agencies: Stanislaus County San Rafael P.D. (police and (criminal justice) fire) Santa Clara County Glendale P.D. (police) (adult correctional programs) Butte County (jail needs) (3) Have conducted analyses of fire service cost and organizational effectiveness for the following jurisdictions. San Mateo County City of Salinas Northern Monterey Tulare County County Monterey Peninsula San Bernardino County -39-