February 24, 2004

SUBJECT: Proposed Structures for the Public Safety Department's Fire Services, Police Services, Community Safety Services, Personnel and Training Services, Technical Services, and DPS Administration Programs

REPORT IN BRIEF

This report presents six new structures for programs managed by the Department of Public Safety.  These programs include Fire Services, Police Services, Community Safety Services, Personnel and Training Services, Technical Services, and Public Safety Department (DPS) Administration. For each program, the City Council is asked to consider and approve:

• A program outcome statement, which describes the program's overall purpose;
• Several program outcome measures, which describe the most important results that City staff will produce through the program; and
• A weighting for each program outcome measure, which prioritizes these measures.

Each program structure establishes the City services that will be delivered to the community. In addition, the structures describe the work that will be completed to deliver these services, and create measurable goals to evaluate the program's actual performance as compared to the program's performance goals. (Council previously approved the new program structure for the Special Operations Program.) Council will set the level of funding allocated to each program when it approves the FY 2004/2005 budget and long-term financial plan in June 2004.

The report contains additional information for each program to help Council better understand the program's structure and services.  Service delivery plans (SDPs) are defined for each program.  Specific activities or work tasks are listed for each SDP.  In addition, the customer groups that receive the program's services, and customers' requirements, are listed for each program.  This allows staff to match the proposed program outcome measures with customer requirements to insure that all key requirements will be addressed.

These proposed program structures maintain the current public safety services, service levels, and the overall funding level for public safety programs.  Council will approve changes to DPS services, levels of service, or funding levels as it considers next year's annual budget and long-term financial plan.

BACKGROUND

The City has been creating new programs or moving existing programs to the outcome management budget system since 1997.  The outcome management system provides the City Council with a detailed approach for determining what services are provided to residents, businesses, and other customer groups.  Through this system, Council sets the level of service or "quality" level for City services.  Council also determines the performance goals for each program, and sets funding levels for programs by approving the annual budget and long-term financial plan.

City staff also uses the outcome management system.  Staff reviews how services are provided to the program's customer groups, and determines how efficiently and effectively that services are being delivered.  This review and assessment can result in changes to processes and practices that are used to deliver City services.

In restructuring an existing program or developing a new program, department staff works with the Office of the City Manager (OCM) and the Finance Department to develop the proposed program.  This work involves creating the program's service delivery plans (SDPs) and activities.  SDPs and activities form the program's structure.  In addition, the OCM, Finance, and department project team develops a recommended overall purpose for the program (the program outcome statement), and prepares recommended program outcome measures and measure weightings.  Council considers the new program or restructured program at a regular meeting, makes revisions as required, and approves the new or restructured program.

City staff uses the new program structure in developing the recommended annual budget and long-term financial plan.  Recommended program costs are established by assigning personnel expenses (work hours), costs for purchased goods and services, and allocated costs to individual activities included in the program.  An estimated number of products is also assigned to each activity in the program.  Any revenues generated through the program are identified.   Council reviews these costs and revenues as it considers the recommended annual budget and long-term financial plan.  Council sets the final funding level for the program when it approves the annual budget and long-term financial plan.

This year, Council will also review and prioritize the services provided through all programs, including the services provided through these proposed public safety programs.  The program structures approved by Council will be used by staff in preparing the recommended FY 2004/2005 budget and long-term financial plan.  

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.

Legislative Policy Manual, Policy 7.1B.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

Currently, the Public Safety Department (DPS) manages five programs.  These programs were some of the first to migrate to the outcome management system.  Numerous changes and refinements have been made to the outcome management system since these five programs were first structured.  It makes more sense to restructure all five programs at one time, rather than spread this work effort over two or more fiscal years. 

Staff recommends that the five current programs be restructured into seven new programs.  A seven-program structure will help to accomplish three key results.  First, total department funding will be more evenly spread among programs.  Current, budgets for DPS programs range from $22.6 million (Police Services) to $529,000 (Animal Control Services).  Second, the seven-program structure will require more collaboration among the Department's command staff, management team, and employees.  This will be accomplished by incorporating the same program outcome measures in two or more programs.  Program managers and department staff will need to work together more consistently, rather than solely on their unique program assignments, in order to accomplish planned performance goals for these measures.  Third, the seven-program structure matches the department's new organizational structure.  DPS captains and the technical services manager will be assigned to specific programs, responsible for one or more SDPs.  The assistant directors will be assigned as program managers.  The department director (chief) will have overall responsibility for all programs managed by DPS.  A copy of the department organizational structure is included as Attachment A.

The City Council has reviewed the seven proposed programs several times this fiscal year.  Study sessions were held on September 30, October 7, and October 14, 2003 where program structures, outcome statements, and outcome measures and weightings were presented.  Council approved the restructured program for Special Operation Services on December 18, 2003.  At the same time, Council provided preliminary policy direction regarding staffing and service levels for vice and narcotic investigation services.  The following are the proposed six programs. 

FIRE SERVICES PROGRAM

Through this program, public safety officers assigned to fire stations deliver various fire related services.  Other services such as fire prevention and hazardous materials inspections/permits are located in other proposed programs, and are provided by non-station based personnel.  The fire services program only includes fire services that are provided by station based personnel.  Examples of services included in this program include fire response to fires, emergency medical service (EMS) and hazardous materials events, community safety events, station/equipment maintenance, and emergency call availability.

The service delivery plan (SDP) and activity structure for this program are shown in Attachment B.

Proposed Program Outcome Statement

Provide critical fire services to ensure a safe community environment that protects the lives, properties, and rights of all people who live in, work in, or are visiting Sunnyvale.

Proposed Program Outcome Measures and Weights

1.      The response time to an emergency event will be within 7 minutes 20 seconds or less from time of call to on-scene arrival by fire apparatus for 90% of emergency events.  Weight: 5

2.      Fires are confined to the structure of origin after fire apparatus arrival 95% of the time. Weight: 4

3.      Ten percent of all working structure fires, and all fires involving a fatality, shall be reviewed by a representative of a Santa Clara fire agency (excluding Sunnyvale) within 45 days of the event to examine on-scene fire fighting tactics and strategies as well as fire fighter safety practices.  Weight: 4

4.      A resident satisfaction rating of 90% for fire services is achieved.  Weight: 2

5.      The City’s Insurance Services Office (ISO) rating of 2 will be maintained.  Weight: 1

6.      The budget/cost ratio is at 1.0. Weight: 4

Customer Groups and Customer Requirements

The following are the customer groups and requirements for services provided through this program.  The customer groups share the requirements listed below.  This format will be used for each proposed program.

Customer Groups

• Residents/ Visitors
• Businesses
• Other City Departments
• Other Fire Departments 

Customer Requirements

• Efficient and effective service delivery
• Prompt response to service calls
• Courteous response
• Provide expertise or specialized knowledge 

POLICE SERVICES PROGRAM

Public safety officers assigned to this program provide emergency and non-emergency response to calls for service for police, fire, emergency medical service (EMS), and traffic related events.  Other services included in this program are court-related activities and non-directed traffic patrol.  Additional police related services such as investigations, specialized traffic enforcement, and crime prevention are provided through other proposed programs.

The service delivery plan (SDP) and activity structure for this program is shown in Attachment B.

Proposed Program Outcome Statement

Provide critical police services to ensure a safe community environment that protects the lives, property, and rights of all people who live in, work in, or are visiting Sunnyvale.

Proposed Program Outcome Measures and Weights

1.      Police emergency events are responded to within 5 minutes 30 seconds or less from time of call to first officer on-scene arrival for 90% of emergency events.  Weight: 5

2.      Police urgent events are responded to within 12 minutes 30 seconds or less from time of call to first officer on-scene arrival for 90% of urgent calls.     Weight: 4

3.      Sunnyvale's crime rate for "California index" crimes will be maintained at a rolling three-year average. Weight: 4

4.      A traffic collision ratio per million miles traveled by motorized vehicles on roadways under Sunnyvale's jurisdiction is maintained on a rolling three-year average. Weight: 3

5.      A community perception of safety rating of 90% is achieved. Weight: 3

6.      A resident satisfaction rating of 90% for police services is achieved.   Weight: 3

7.      The budget/cost ratio is at 1.0. Weight: 4

Customer Groups

• Residents/visitors
• Businesses
• Other City departments
• Other law enforcement or judicial systems

Customer Requirements

• Efficient and effective service delivery
• Feeling of safety/security
• Prompt response to service calls
• Courteous response
• Fair, balanced, and unbiased delivery of police services.

COMMUNITY SAFETY SERVICES PROGRAM

This program provides specialized police services that help to maintain residents' and businesses' sense of safety, and contribute to the City's overall quality of life.  Examples of services included are animal control, emergency preparedness, specialized traffic enforcement, neighborhood based crime prevention, crossing guards, and nuisance vehicle abatement.  Public safety officers who provide these services are assigned to specialized positions within the department.

Proposed Program Outcome Statement

Provide specialized services, which promote a safe environment for neighborhoods, businesses, and schools through specialized traffic enforcement, emergency preparedness, animal services, and crime prevention.

Proposed Program Outcome Measures and Weights

1.      Sunnyvale's crime rate for "California index" crimes will be maintained at a rolling three-year average. Weight: 5

2.      A traffic collision ratio per million miles traveled by motorized vehicles on roadways under Sunnyvale's jurisdiction is maintained at a rolling three-year average. Weight: 3

3.      All animal service calls are responded to in 24 hours or less for 90% of animal service calls. Weight: 3

4.      Residents' perception of safety in their neighborhoods, in downtown, and in parks during daylight hours will be maintained at 95%. Weight: 2

5.      Residents' perception of safety in their neighborhoods, in downtown, and in parks during nighttime hours will be maintained at 80%. Weight: 2

6.      Multiple false alarm violators will not exceed 5% of all businesses in Sunnyvale. Weight: 1 

7.      Through the outreach efforts of the Office of Emergency Services, Sunnyvale will provide training to achieve and maintain at least 300 volunteers that would be ready to respond in the event of an emergency.  Weight: 3

8.      The budget/cost ratio is at 1.0. Weight: 4

Customer Groups

• Residents/visitors
• Businesses
• Neighborhood groups
• Schools
• Other City departments

Customer Requirements

• Efficient and effective service delivery
• Feeling of safety/security
• Prompt response to service requests
• Courteous service delivery
• Expertise or specialized knowledge

PERSONNEL AND TRAINING SERVICES PROGRAM

Through this program, new public safety officers are recruited to the department, and go through the various phases of the selection process.  New officers complete fire academy training, police academy training, emergency medical service initial training, and police field training.  Other program services include monitoring and evaluating the delivery of emergency medical services (EMS), and providing public education on EMS. Finally, this program provides continuing professional training to all sworn personnel in all aspects and specialties in police, fire, and emergency medical services.

Proposed Program Outcome Statement

Ensure that a qualified and appropriately trained public safety work force is available and maintained, and is responsive to the changing needs of the department and the community.

Proposed Program Outcome Measures and Weights

1.      Vacancies in the Public Safety Department's sworn ranks are filled with qualified and trained new officers so that a vacancy rate of 6% is not exceeded. Weight: 5

2.      All responses for emergency medical services (EMS) that are identified for quality improvement will result in a review and recommended action within 45 days.  Weight: 3

3.      An annual customer satisfaction rating of 85% is achieved from Public Safety Department employees who participated in continued professional training.  Weight: 2

4.      The budget/cost ratio is at 1.0. Weight: 4

Customers Groups

• Public safety officer candidates
• Potential new public safety officers
• Public Safety Department employees

Customer Requirements

• Fair and unbiased recruitment and selection processes
• Efficient and effective service delivery
• Timely service delivery
• Provide expertise or specialized knowledge

TECHNICAL SERVICES PROGRAM

Four support services are provided to department personnel and other public safety officers or representatives of judicial agencies, and the public through this program.  Examples of these services include radio and telephone communications, record and information management, data and statistical reporting, and property and evidence maintenance.  Civilian professional personnel deliver these services.

Proposed Program Outcome Statement

Promote the safety of the community, department personnel, and other fire/law enforcement personnel, and provide services to federal, state, and local judicial agencies, and the public through the delivery of technical and information services and support operations.

Program Outcome Measures and Weights

1.      Justice system databases shall be maintained to meet internal and Department of Justice requirements 95% of the time with corrective action taken within 30 days to resolve any information that is out of compliance. Weight: 5

2.      Statistical data is available for extraction and analysis within three business days of receipt 90% of the time. Weight: 3

3.      Special or mandated statistical reports are provided to requestors within guidelines 90% of the time. Weight: 3

4.      The inventory in the department's property/evidence storage areas will be maintained in accordance with standard operating procedures so that the annual inventory growth in property/storage areas is maintained at 10% or less. Weight: 3

5.      Emergency telephone calls received in the department's 911 center are answered within the national standard of 8 seconds or less 85% of the time. Weight: 5

6.      The budget/cost ratio is at 1.0. Weight: 4

Customer Groups

• Department personnel                  
• Other fire/law enforcement agencies
• Judicial agencies
• Residents and businesses

Customer Requirements

• Efficient and effective service delivery
• Timely service delivery
• Accurate service delivery
• Secured information and evidence 

PUBLIC SAFETY DEPARTMENT ADMINISTRATION PROGRAM

Professional standards, internal investigations, and overall department leadership and management are provided through this program.

Proposed Program Outcome Statement

Ensure that the Department of Public Safety is managed in the most effective manner, while maintaining high standards of the fire, police, and emergency medical service.

Proposed Program Outcome Measures and Weights

1.       Complainants and officers are informed of the status of professional standards cases to comply with department policies 95% of the time. Weight: 4

2.        All City Council requested study issues, action items, and internal special projects are completed by requested due dates 95% of the time. Weight: 4

3.       The budget/cost ratio is 1.0. Weight: 4

Customer Groups

• Department personnel               
• City Manager
• Residents and businesses

Customer Requirements

• Fair and unbiased inquiries into alleged misconduct
• Prompt, accurate service delivery
• Efficient and effective service delivery 

FISCAL IMPACT

The proposed new program structures will be used to prepare the FY 2004/2005 budget and long-term financial plan, if approved by the City Council.  Through these new program structures, DPS staff will deliver the current public safety services at current levels of service, based on policy direction provided by the City Council.  The new programs will not increase required expenses for these services, other than increases that result from standard assumptions used for wages, benefits, and inflation.  The City Council will determine the funding levels for all seven public safety programs when it approves the FY 2004/2005 budget and long-term financial plan.

PUBLIC CONTACT

The public was notified of this item through publication of the Council Agenda (public hearing items) in the San Jose Mercury News and the posting of the Council Agenda and Report on the City of Sunnyvale internet home page.

ALTERNATIVES

There are four alternatives for Council to consider.  They are:

Alternative 1. Consider and approve the proposed program outcome statements, program outcome measures, and weights for six programs that will be managed by the Public Safety Department, as presented in this report:

• Fire Services
• Police Services
• Community Safety Services
• Personnel and Training Services
• Technical Services
• Public Safety Department Administration

Alternative 2. Consider and approve the proposed program outcome statement, program outcome measures, and weights for one or more of the six proposed programs, direct staff to examine specific issue(s) or question(s) regarding the remaining program(s), and reconsider the revised program(s) at a future Council meeting.

Alternative 3. Amend the program outcome statement, program outcome measures, and/or weights for any of the six programs, and approve the amended programs as presented in this report.

Alternative 4. Direct staff to further examine the proposed program outcome statements, program outcome measures, and weights for the six programs as presented in this report, and present revised programs for consideration at a future City Council meeting.

RECOMMENDATION

It is recommended that the City Council approve Alternative 1. 

Prepared by:

Charles J. Schwabe
Deputy City Manager

Reviewed by:

Michael R. Maehler
Acting Director,  Public Safety Department

Approved by:

Amy Chan
Acting City Manager

Attachments

A. Public Safety Department Organizational Structure (pdf format)
B. Service Delivery Plan and Activities by Program