SunnyvaleRTC

December 18, 2003

SUBJECT: PROPOSED PROGRAM OUTCOME STATEMENT, PROGRAM OUTCOME MEASURES, AND WEIGHTING FOR THE PUBLIC SAFETY DEPARTMENT'S PROPOSED SPECIAL OPERATIONS PROGRAM RESTRUCTURE

REPORT IN BRIEF

The Public Safety Department (DPS) currently manages five programs. DPS staff and staff from the Office of the City Manager (OCM) have restructured these programs into seven recommended, new programs. The City Council has expressed interest in re-examining the department's current approach to vice and narcotics investigative services. Council asked staff to develop proposed outcome measures for vice and narcotics services.

City staff has developed two types of outcome measures. One type of measure would be included in a Service Delivery Plan and would be directly affected by the size of the vice and narcotics investigative unit and the number of investigations that are completed. A second type of outcome measure would be included as an Outcome Measure for the Special Operations Program. The anticipated annual performance result for the Program Outcome Measures would be unaffected by either the size or the number of investigations completed by the unit.

Council can provide policy direction regarding these measures either by approving the entire proposed Special Operations Program, or by approving only those specific outcome measures that vice and narcotics investigations affects. Changes in funding for vice and narcotics investigative services will be addressed either at a future City Council regular meeting, or through the process of adopting the City's budget for FY 04/05.

The recommended program outcome statement, outcome measures, and weightings are provided for the new Special Operations Program.

BACKGROUND

The City has been moving its performance program budget to the outcome management budget system for several years. For existing programs, programs are restructured from a performance budget format to the outcome management system. Programs restructured previously to the outcome management system can also be reexamined and redefined through the restructuring process. New programs are proposed in the outcome management system budget format.

Through any of these efforts, three components are created for a recommended program:

· a program outcome statement, describing the program’s overall purpose;

· a concise set of program outcome measures, describing the most important results that the program should produce; and

· the assigned weighting for each outcome measure, describing the relative importance of each outcome.

The outcome management system allows the City Council to review and approve the program outcome statement, outcome measures, and weighting for each program level outcome measure. This allows the City Council to set service levels for programs and to allocate the City’s limited resources among operating and support programs.

The City’s outcome management system also provides a systematic approach for City staff to comprehensively review how services are provided to citizens and customer groups. In restructuring an existing program or developing a new program, staff from a specific department work with the Office of the City Manager to examine one or more programs that are being recommended to migrate to the outcome management system. This effort requires that staff redefine or create the program's overall purpose, identify the fundamental results that the program should produce annually, and prioritize these results. Recommendations in all three areas are made to the City Council, which makes the final policy decisions.

City staff completes three steps to better align the proposed program to residents' and customers' requirements. First, the customer groups that are served by the programs are identified. Second, expectations and requirements for these customer groups are determined. Third, proposed outcome measures are carefully reviewed to strike a balance between customer satisfaction, operational performance, and financial results. Results from past resident satisfaction surveys are used in setting baseline goals for outcome measures addressing customer satisfaction. Listings of customer groups and customer requirements are included for the Council’s information; no formal action is required by the City Council regarding this information.

When approved, the new Special Operations Program will be included in the recommended FY 2004/2005 budget.

EXISTING POLICY

Legislative Policy Manual, Goal 7.1B Financial Practices: "Maintain Sound Financial Practices Which Meet All Applicable Standards and Direct The City's Financial Resources Toward Meeting The City's Long Term Goals".

Policy 7.IB.5 Performance Budget System: "Maintain and refine the Performance Budget System to assure its use for multi-year planning, full-cost accounting, and budget monitoring".

DISCUSSION

A. Vice and Narcotics Investigative Services

The Public Safety Department currently manages five programs. These five programs were some of the first programs that were migrated to the outcome management system during the late 1990s. DPS and Office of the City Manager (OCM) staff are working to restructure these programs into seven proposed new programs. Staff presented these restructured programs to the City Council at three study sessions held during September and October 2003. Council expressed interest in the department's approach and activities regarding vice and narcotics investigative services, and asked staff to develop and present performance measures for these services.

The activity "Vice and Narcotics Investigations" is one of 20 activities that make up the proposed Special Operations program. These activities are organized into three service delivery plans (SDPs) as shown below: (The vice and narcotics activity is highlighted.)

Special Operations Program

Police Investigations SDP

Activity Product

1. Persons Crime Investigations Case Investigation

2. Property Crime Investigations Case Investigation

3. Narcotics and Vice Investigations Case Investigation

4. Non-Criminal Investigations Case Investigation

5. Crime Analysis Report

6. Employee Training Training Hour

7. Administration Work Hour

Fire Prevention and Engineering SDP

Activity Product

1. Facility Inspection Visit

2. Site Inspections Inspection Visit

3. Fire Cause Investigation Fire Investigated

4. Consultation and Coordination Support Hour

5. Plan Review Plan Processed

6. Employee Training Training Hour

7. Administration Work Hour

Hazardous Materials SDP

Activity Product

1. Facility Inspection Inspection Visit

2. Hazmat Inspection Investigation

3. Consultation and Coordination Support Hour

4. Plan Review Plan Processed

5. Employee Training Training Hour

6. Administration Work Hour

B. Potential Outcome Measures

Vice and narcotics investigations may either directly or indirectly affect annual results for the outcome measures that staff has developed as part of the process of restructuring the Special Operations Program. One outcome measure would be included in the program's Police Investigations Service Delivery Plan (SDP). This outcome measure will be directly affected by increasing or decreasing the size of the investigations unit. The number of detectives will determine the number of investigations completed, and the ratio between proactive and reactive investigations that are undertaken. This is illustrated on page 6-7 in this report.

The following outcome measure could be included in the Special Operations Program's Police Investigations SDP:

"The ratio between proactive/reactive vice and narcotics investigations will be maintained at xx % proactive/xx % reactive investigations."

The actual ratio would be set when Council determines whether to restore funding for the vice and narcotics unit. It is anticipated that Council will address this question in January 2004.

The second type of Program Outcome Measure would be included at the program level for the Police Services Program and Special Operations Program (e.g. crime rate, clearance rate). Vice and narcotics investigations will contribute to meeting the performance goals that will be set for the City's overall crime rate and clearance rate. However, there are other activities in other proposed Public Safety programs that also affect whether performance goals for the crime rate and clearance rate are met. For example, the success level of the Neighborhood Services activity (Community Safety Program) will affect future crime and clearance rates. By itself, the number of completed vice and narcotics investigations do not necessarily or independently affect the City's overall crime rate or clearance rates. For this reason, changes in funding levels for vice and narcotics investigation will not necessarily generate higher or lower outcome measure results for the City's crime rate or clearance rate.

Anticipated performance results for the City's crime rate and clearance rate are described in four proposed program level outcome measures. These proposed outcome measures are included in two proposed programs:

Police Services Program

Sunnyvale's crime rate for “California” crimes will be maintained at a rolling three-year average.
Sunnyvale's crime rate for “California” crimes will be 48% below the averaged crime rates for all Santa Clara County law enforcement agencies.

Special Operations Program

Sunnyvale's clearance rate for “California” crimes will be maintained at a rolling three-year average.
Sunnyvale's clearance rate for “California” crimes will be 3% above the averaged clearance rate for all Santa Clara County law enforcement agencies.

C. Costs Associated with Performance Levels

At the October 14^th Study Session, Council said it was interested in seeing how increasing or decreasing outcome measures would result in higher or lower program costs. Staff has developed an initial response to this request, using the activity for narcotics and vice investigations. Additional information is being developed for this request, and will be presented at a Study Session in January 2004. The following 4 options list varying ratios for proactive/reactive case investigations that result in higher funding levels for this activity:

Current Service Level

Activity: Vice and Narcotics Investigations

FY 03/04 Budget		FY 03/04 Projected Actual
Positions	.74 (PSO)	Positions	1 (PSO)
Products	276 investigations	Products	100 investigations
Work Hours	1571	Work Hours	1571
Costs	$154,574	Costs	$154,574

SDP Outcome Measure:

"The ratio between proactive/reactive vice and narcotics investigations will be maintained at 10% proactive/90% reactive investigations."

The City's budget crisis resulted in reductions to work hours, positions, and funding dedicated to the vice and narcotics units for FY 03/04. These reductions required that the department use a different approach for providing vice and narcotics investigation services. The PSO position was assigned to the Santa Clara County Special Enforcement Team on August 1, 2003. This regional vice and narcotics task force is operated by the State of California's Bureau of Narcotics Enforcement. Secondly, the department’s uniformed patrol officers are assigned a more direct role in vice and narcotics related investigations as part of their normal duties. Finally, two department detectives with previous expertise in vice and narcotics investigations can be reassigned to vice and narcotics cases as needed and other investigative priorities allow.

Department staff has been monitoring this revised approach. There have been 43 actual investigations (products) through Period 5 (November 22). Annualizing this number will result in about 100 vice and narcotics investigations for the year. The planned goal of 276 products will not be met. Almost all of the 43 investigations have been solely a Daily Bulletin entry or memo to patrol staff that states the complaint and requests their attention to this complaint as time allows. The number and type of case investigations that were conducted by the Narcotics/Vice Unit in past years, often including time consuming undercover surveillance, are not routinely done because of the reduction in resources.

Additionally, the one remaining PSO position is only partially funded -1329 straight time (ST) PSO hours and 242 OT hours. It is a shortfall of 471 ST hours for a fully funded position. Absent additional funding by Council, this will require DPS to either eliminate this detective for the last 3 months of the fiscal year or use hours from another police activity to fund this position for the last 3 months.

Option One - One Fully Funded PSO position

Activity: Vice and Narcotics Investigations

Required Funding:

Positions 1 PSO position
Products 100 investigations
Work Hours 2,042 (1800 ST; 242 OT)
Costs $193,185 (All costs are shown in FY 03/04 dollars)

SDP Outcome Measure:

"The ratio between proactive/reactive vice and narcotics investigations will be maintained at 10% proactive/90% reactive investigations."

The estimated number of products for FY03/04 will not increase if the one detective position is fully funded. It will remain the same because approximately 90% of the products, or case investigations, result from complaints from members of the public and most of these complaints will be handled as informational items provided to patrol officers or referrals to another law enforcement agency.

Option Two – Two PSO positions

Activity: Vice and Narcotics Investigations

Required Funding:

Positions 2 PSO positions
Products 175 investigations
Work Hours 3,842 hours (3600 ST; 242 OT)
Costs $355,307

SDP Outcome Measure:

"The ratio between proactive/reactive vice and narcotics investigations will be maintained at 25% proactive/75% reactive investigations."

At this funding level there will be an increase in the amount of staff time used for each product (investigation). Complaints will receive greater attention by staff and the number of proactive investigations will increase.

Option Three - One lieutenant and two PSO positions

Activity: Vice and Narcotics Investigations

Required Funding:

Positions 1 Lieutenant position and 2 PSO positions
Products 275 investigations
Work Hours 5,642 hours (5400 ST; 242 OT)
Costs $545,123

SDP Outcome Measure:

"The ratio between proactive/reactive vice and narcotics investigations will be maintained at 60% proactive/40% reactive investigations."

At this funding level there will be an increase in the amount of staff time used for each product (investigation). Complaints will receive greater attention by staff. Additionally, the number of proactive investigations will significantly increase as the addition of a supervisor creates a viable independent work unit.

Option Four – One lieutenant and three PSO positions

Activity: Vice and Narcotics Investigations

Required Funding:

Positions 1 lieutenant position and 3 PSO positions
Products 400 investigations
Work Hours 7,642 hours (7200 ST and 442 OT)
Costs $652,404 – check with Finance

SDP Outcome Measure:

"The ratio between proactive/reactive vice and narcotics investigations will be maintained at 75%proactive/25% reactive investigations."

This funding level restores the work unit to the FY02/03 authorized level. The work unit will be able to provide significant attention to all complaints and will initiate the majority of all investigations. There will be an increase in the amount of staff time used for each product (investigation) and the number of products will return to the FY02/03 level.

It is important to note that the cost of a product in Option 4 will be about the same as the cost of a product in Option 1 but there is a significant difference is the quality of a product. This is because of the time that will be spent on each product in Option 4 will be significantly more as it will be an actual case investigation rather that a referral to patrol. It is a significantly higher quality “product” but at nearly the same cost per product because of the economy of scale in funding an independent narcotics/vice work unit.

As described above, the City's overall crime rate and clearance rates (and the four program outcome measures associated with these rates) will not be affected solely by size of the vice and narcotics investigations unit or the number of vice and narcotic investigations completed. However, we do believe that long term crime rate patterns and resident satisfaction may be impacted.

Special Operations Program Structure

As stated earlier in this report, vice and narcotics investigative services is an activity included in the proposed Special Operations Program. Staff is recommending that Council consider and approve the new Special Operations Program in order to provide policy direction regarding the outcome measures that vice and narcotics investigations directly (e.g. proactive/reactive investigations) and indirectly (e.g. crime rate) affect. As an alternative, Council could approve only those outcome measures that are vice and narcotics investigations directly or indirectly affect. The balance of the outcome measures for the Special Operations Program could then be considered at a later date.

The following is the recommended program outcome statement, and the recommended program outcome measures, and the recommended weightings for measures for the special operations program:

Proposed Program Outcome Statement:

"Provide specialized services that effectively lead to the prosecution of criminals, and the safety of the community through the prevention of fire and hazardous materials incidents."

Proposed Program Outcome Measures:	Weighting
1. Sunnyvale's clearance rate for “California” crimes will be maintained at the current three-year average.	4
2. Sunnyvale's clearance rate for “California” crimes will be 3% above the averaged clearance rate for Santa Clara County law enforcement agencies.	4
3. The Santa Clara County District Attorney's Office will issue a complaint on “in custody” cases 95% of the time.	3
4. No more than 1% of hazmat permitted facilities will have a hazmat release to the environment annually.	4
5. Hazmat inspected facilities found to have violations shall be brought into compliance within 60 days 90% of the time.	3
6. No more than 1% of the fire prevention permitted facilities will have a fire event annually.	4
7. Fire inspected facilities found to have violations shall be brought into compliance within 60 days 90% of the time.	3
8. The budget/cost ratio is 1.0.	4

Program services are organized into three service delivery plans (SDP). The activities and product descriptions included in each SDP have been listed earlier.

At the September and October Council Study Sessions for the DPS Programs restructure Council had indicated interest in reviewing possible outcome measures for automobile burglaries and domestic violence.

The average auto burglary crime rate (crimes per 100,000 population) for the last 3 fiscal years (FY00/01 – FY02/03) was 476 auto burglaries. A possible outcome measure could be “the clearance rate for auto burglaries shall be maintained at a rolling average of 2.5%”. There is not a specific “domestic violence” crime rate. A possible outcome measure could be “domestic violence cases will be reviewed by a detective within 5 business days 90% of the time”.

Staff does not recommend a specific crime rate measures for auto burglary or domestic violence for several reasons: 1) the most significant violent crimes and property crimes (homicide, robbery, rape, aggravated assault, burglary and auto theft) are included in the overall crime rate for Sunnyvale, 2) other individual crimes such as arson, identity theft, petty theft and drunk driving do not have individual outcome measures; having measures for each individual type of crime would not provide a valuable comparison with other cities, may dilute the value of an overall crime rate measure and would take additional staff hours to obtain and calculate, 3) the need for management flexibility in responding to a significant series of crimes. For example: if there was an active serial rapist the Department would most likely divert resources normally used for property crime investigations to the serial rapist investigation because the rapist poses a significant risk to the safety of the public. If there were individual outcome measures for auto burglary or drunk driving there would be a disincentive to divert those resources to deal with the more significant risk of the serial rapist.

The Special Operations Program provides services to four main customer groups: residents, local business owners, county, state, and federal agencies that comprise the justice system, and regulatory agencies. There are three key requirements for these customer groups: quality services, responsiveness, and regulatory compliance.

Key program services include:

Persons related criminal investigations
Property related criminal investigations
Vice and narcotics investigations
Crime Analysis
Building plan review and site inspections for fire prevention engineering
Fire prevention facility inspections and fire cause investigations
Hazardous materials plan review and site inspections
Hazardous materials facility inspections and release investigations

Final, detailed worksheets will be prepared for each outcome measure after Council approves the program structure. These worksheets describe how the outcome measure results will be determined, how and where data will be collected, and the job classification responsible for collecting data and reporting performance results.

FISCAL IMPACT

If approved, the proposed new program restructure will be included in the recommended FY 2004/2005 City budget. Council will provide final policy direction regarding funding for vice and narcotics investigative services, and the entire Special Operations Program, through the process of adopting the FY 04/05 City budget. The recommended program outcome statement and outcome measures for the new Special Operations Program will maintain existing service levels. The new program will not increase required expenses for the Special Operations Program other than future increases that result from the standard inflationary assumptions.

Program funding may increase or decrease based on future policy direction provided by Council regarding vice and narcotics investigative services.

PUBLIC CONTACT

Public contact was made through posting of the Council agenda in public places, on the City's web page, and the publication of the general business/public hearing items in the San Jose Mercury News.

ALTERNATIVES

1. Provide preliminary policy direction regarding the ratio between proactive and reactive vice and narcotics investigations. Final approval and funding will be provided through the process of adopting the City's budget for FY 04/05.

2. Approve the proposed program outcome statement, program outcome measures, and weightings for the Special Operations Program as described in this report.

3. Take the following actions:

A. Approve only the following SDP outcome measures that are directly or indirectly affected by vice and narcotics investigations:

"The ratio between proactive/reactive vice and narcotics investigations will be maintained at xx%proactive/xx% reactive investigations."
"Sunnyvale's clearance rate for “California” crimes will be maintained at a rolling three-year average."
"Sunnyvale's clearance rate for “California” crimes will be 3% above the averaged clearance rate for all Santa Clara County law enforcement agencies."

B. Approve the following Program outcome measures regarding the City's crime rate as part of the adoption of the proposed Police Services program.

"Sunnyvale's crime rate for “California” crimes will be maintained at a rolling three-year average."
"Sunnyvale's crime rate for “California” crimes will be 48% below the averaged crime rates for all Santa Clara County law enforcement agencies."

4. Amend either the proposed outcome statement, program outcome measures, or weighting for specific program outcome measures, and approve the Special Operations program as presented.

5. Direct staff to further examine the proposed outcome statement, program outcome measures, and weighting, and present for consideration at a future City Council meeting.

RECOMMENDATION

City staff recommends Alternative #1 and #2 as described above.

Prepared by:

Charles J. Schwabe
Deputy City Manager

Byron Pipkin
Captain Public Safety Department

Reviewed by:

Michael R. Maehler
Acting Director, Public Safety Department

Approved by:

Robert S. LaSala

City Manager