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2. Report on Chanhassen Public Safety Police CostsL� r u CITY OF � CHANHASSEN 690 COULTER DRIVE 0 P.O. BOX 147 • CHANHASSEN, MINNESOTA 55317 (612) 937 -1900 • FAX (612) 937 -5739 MEMORANDUM TO: Mayor Don Chmiel & City Council City Manager Don Ashworth FROM: Scott Harr, Public Safety Director DATE: August 18, 1994 SUBJ: Report on Chanhassen Public Safety Police Costs I have been asked to provide a report to, the City Council o n Chanhassen in order to review how the system is working and provided me with an opportunity to research and document Chanhassen Public Safety Department. police costs & services in what it costs. This project some of the history of the I hope that you will have an opportunity to review the attached report before Monday night's Council meeting. I will then plan on providing a very brief "state of public safety services" report, and Carver County Sheriff Al Wallin may wish to comment as well. In anticipation of this report being given to the Council, the Public Safety Commission did make their recommendation for the 1995 Police Contract so that it could also be placed on the August 22 City Council agenda. Representatives of the Public Safety Commission will be on hand for the presentation of my formal report to the Council, should you have any questions of them. I look forward to Monday night's Council questions prior to then, please feel free to c you may have on the night of the Council g:\safetyNsh\pocosts.m em g, and if you have any to answer any questions n CHANHASSEN PUBLIC SAFETY POLICE COSTS and an overview of the Chanhassen Public 'Safety Department AV ..g. :. .....b _ - CONTENTS Public Safety Department Mission Statement Organizational Chart Purpose of Report & History of the Public Safety Department Public Safety Commission Costs of Police Services Local Identity & Control Inspections Maintaining Service Levels Review of the Chanhassen Model Acknowledgments P. i P. ii Pgs. 1 & 2 Pgs. 2 & 3 Pgs. 3, 4 & 5 P. 5 P. 5 P. 6 Pgs. 6,7 &8 Pgs. 8, 9, 10 & 11 CHANHASSEN PUBLIC SAFETY DEPARTMENT MISSION STATEMENT To foster Public Safety by efficiently providing... Safety Related Community Services Education to Staff and the Community Fair Enforcement of Statutes and Codes Professional and Personal Staff Development ...for the benefit of those visiting, working and living in the City of Chanhassen * Developed by the Public Safety Staff P. i ORGANIZATIONAL CHART DEPARTMENT OF PUBLIC SAFETY Public Safety Director ( 3) Fire Fire Support Marshal Chief Staff (43) Fire Department Personnel s t I I I I I I I I I I I Building Official 1 (2) E Building Inspectors (1) Part -Time (2) Mechancial Inspectors (1) Part -Tim( Public Safety Officer (3) Community Service Officers L Liaison With: 'o r r 1) Carver County Sheriff's Department 2) Southwest Metro Drug Task Force 3) Department of Natural Resources CITY OF CHANHASSEN 690 COULTER DRIVE • P.O. BOX 147 • CHANHASSEN, MINNESOTA 55317 (612) 937 -1900 • FAX (612) 937 -5739 PURPOSE OF REPORT This report is to provide a review of law enforcement costs and an update on the status of law enforcement services provided to the City of Chanhassen. This report will include an overview of the history of the Public Safety Department and a cost comparison with neighboring communities. HISTORY Considering that the City of Chanhassen as we know it was established in 1967 (the Township was established in the 1850's, the Village established in the 1890's, with the merger occurring in 1967), the Chanhassen Department of Public Safety was only recently developed. The -,City of Chanhassen has always received base level law enforcement services from the Carver County Sheriff's Department. Base level service refers to the basic and necessary law enforcement services that a sheriff's department is required to provide to municipalities (which can include dispatching, jail.services and at least enough patrol and investigation service to take care of calls), and does not include the purchase of additional patrol hours per day. Cities generally purchase additional patrol hours in order to meet their specific needs Because of growth that was starting' to outpace the service level that base level provided (while calls are responded to with base level service, it may take more time for police calls to be answered than is acceptable to a community), the City of Chanhassen eventually ,began contracting with the Carver County Sheriff's Department to purchase additional dedicated police patrol hours to supplement the basic service. As the population has increased in Chanhassen, so have the number of police contract hours the City has purchased. Following is a comparison of Chanhassen population and contract hours: Report on Public Safety Police Costs August 1994 Page 2 YEAR POPULATION CONTRACT HOURS 1970 5,054 12 1980 6,351 17 1990 11,732 24 1991 12,124 28 1992 12,728 28 1993 13,414 32 1994 14,000 32 The purpose of purchasing additional hours of police coverage is to insure that the City receives the level of law enforcement services it deems necessary. As stated earlier, base level service provides the basic services, but particularly as a community grows, additional needs determined by a community may require more than base level service can provide. The City of Chaska is the only community within Carver County that has its own traditional 'police department'. Their department was established in 1888, and has continued to this day. The present population of Chaska is approximately 14,000, and their police department is comprised of 13 sworn personnel and 3 civilian personnel, with a 1994 budget of $853,416.31. PUBLIC SAFETY COMMISSION In response to the increasing population and development in Chanhassen, a Police Advisory Committee was established under Mayor Tom Hamilton in 1980. This group set out to research the issue of whether Chanhassen should consider establishing its own police department. This group was made up of: Richard Wing, Chairperson Brian Erickson, Minnesota State Trooper Candy Takkunen Roger Schmidt Mike Snyder, Edina Police Officer Report on Public Safety Police Costs August 1994 Page 3 This group determined that the contract approach of purchasing additional hours was the most effective way of meeting law enforcement needs for the time being. The Police Advisory Committee did recommend to the City Council that a position be created to coordinate these services to insure that the increasingly unique needs of the City were addressed, and that a specific liaison person (a public safety director) be responsible to maintain the relationship with Carver County. In 1982, the "Police" Advisory Committee became the Public Safety Commission, with the responsibilities being broadened to include becoming an advisory committee for the City Council on matters of public safety. The Commission was originally required to have five members, with the Council later increasing the size of the Commission to seven members (which includes one representative from the City Council). Membership on the Public Safety Commission as of January 1994 was: Don Chmiel, Mayor Dave Johnson, Creative Director, NW Teleproductions Brian Beniek, Plymouth Police Officer Dave Dummer, Chief Financial Officer, Powermation, Inc. Greg Weber, Eden Prairie Police Officer Bill Bernhielm, Edina Police Chief Eldon Berkland, St. Francis Paramedic Jim Castleberry, who had been hired in 1984 as the first full -time Fire Marshal for the City of Chanhassen, was appointed the first Public Safety Director of Chanhassen in 1985, until he resigned in 1987 to accept the position of Chief Deputy when Al Wallin was elected Sheriff. This is a position that Jim Castleberry holds to this date under Sheriff Wallin. Jim Chaffee, who had been a police officer with the City of Minnetonka, was hired to replace Jim Castleberry, until Jim Chaffee left in September of 1990 to accept an administrative position with the Security Division of the Walt Disney Corporation in California. Scott Harr, who had been serving as Assistant Public Safety Director under Jim Chaffee since 1987, was then appointed to the position of Director. COSTS OF POLICE SERVICES Cost has been an issue that has been of paramount importance in considering the desirability of the police contract system. Contractual hours are purchased by the hour, and following is the listing of hourly costs charged by Carver County: Report on Public Safety Police Costs August 1994 Page 4 YEAR $ PER HOUR ANNUAL COST 1987 $ 29.55 $ 226,500.00 1988 $ 30.54 $ 241,907.00 1989 $ 32.32 $ 283,123.20 1990 $ 32.35 $ 283,386.00 1991 $ 34.33 $ 350,852.60 1992 $ 35.10 $ 358,722.00 1993 $ 35.33 $ 412,654.40 1994 $ 35.86 $ 418,844.80 CURRENT COMPARISON TO OTHER CITIES Attached are the results of a survey of neighboring communities to provide a current comparison of law enforcement costs. An obvious benefit to us of the contract system is the inclusive benefits of such an arrangement. At $35.86 per hour in 1994, we not only have the law enforcement officer, but the vehicle & maintenance, support equipment (radar units, firearms, oxygen & first aid equipment, etc.), training, record keeping and supervision. We do not have to factor in costs for replacing that officer with additional personnel because of sick time, vacation time or training time. Nor do we have to provide supplemental equipment should the primary patrol vehicles have to be taken off the road for service or repairs. We buy the hours, and it is the responsibility of the Sheriff to make sure vehicles and personnel are available to fill these hours. For comparison, the cost of an entry level police officer in the Twin Cities area is approximately $28,000.00 per year, and with benefits, this entry level person would cost approximately $18.00 x 2080 hours. Squad cars, training and other support equipment would be extra. NUMBER OF PERSONNEL The question of "how many" law enforcement personnel are necessary in Chanhassen has been one that the advisory committees have examined over the years. Each year, the FBI provides detailed information in the 'OLICF MFR CITY '94 BUDGET POP. PER CAPITA SERVICES COSTS INCLUDED SHAKOPEE $1,332,050.00 13,100 $101.68 Animal Control Law Enforcement PRIOR LAKE 1,238,680.00 12,700 97.55 Community Service Officers, Law Enforce. EDINA 4,028,487.00 47,000 85.71 Animal Control, Law Enforcement, Community Service Officers SOUTH LAKE MTKA PUB. SAFETY EXCELSIOR 300,694.49 2,395 87.52 Law Enforcement GREENWOOD 80,374.31 612 SHOREWOOD 408,490.63 6,322 TONKA BAY 156,020.73 1,474 TOTAL 945,580.16 10,803 EDEN PRAIRIE 3,300,000.00 46,000 71.74 Animal Control Law Enforcement CHASKA 853,416.31 13,000 65.65 Law Enforcement Community Service Officers CHANHASSEN 550,851.67 13,500 40.80 Law Enforcement, Animal Control, Community Service Officers g:\s a (e t y es h \oc o s ts. t b I Report on Public Safety Police Costs August 1994 Page 5 Uniform Crime Reports for the United States on many law enforcement related issues. In the most recent compilation of data, the FBI reports that in the United States, communities employ an average of 2.3 full -time officers for every 1,000 residents. Based on this, a city with a population similar to Chanhassen (approximately 14,000), we might have 32 police officers employed. The midwest average is closer to 1 officer per 1,000 population, which would have a local department staffed with approximately 14 officers. In fact, the number of hours that we contract for provides us with the equivalent of 6.5 deputies, together with Bob Zydowsky and myself. LOCAL IDENTITY & CONTROL Local control and identity are benefits frequently associated with a community having its own traditional police department. I place little importance on the issue of identity. Regarding control, I believe the greater consideration should be how well a city that chooses to contract for law enforcement can get along with the agency that it is contracting from, and vice versa. Like any vendor /vendee relationship, many problems can cause the situation to not work. It does take a commitment from everyone involved to make the system work, and to effectively address the issues that challenge the system. I believe this cooperation does exist, and will comment on it further in the upcoming review of the Chanhassen model. INSPECTIONS It is also unique that fire & building inspections and code enforcement are a part of our Public Safety Department. While other cities may have these duties assigned to other departments, our experience has proven that, because such inspections are mandated for the public safety of the community, it works well to have those providing these safety- related services within the Public Safety Department, particularly when enforcement action becomes necessary. It is also interesting to recognize that our Inspections Division generated $558,762.00 in permit revenue in 1993, and $437,568.00 through June, 1994, which represents a 71% increase over the same 6 month period one year ago. Report on Public Safety Police Costs August 1994 Page 6 MAINTAINING SERVICE LEVELS My goal is to purchase the least number of police contract hours necessary to maintain acceptable service levels ... and the budget. While there are instances that require a sworn police officer, we are able to limit the number of contract hours needed by supporting the system with less costly means. For example, an accident would require a police officer to investigate and prepare a report. However, we are able to provide the necessary additional help for traffic control with non -sworn Community Service Officers, for much less money. Similarly, we are able to have Community Service Officers handle other necessary details that don't require police officers, such as animal control, code enforcement and vacation home checks. Similarly, we also receive the benefits of organized narcotics enforcement by being a charter member of the group of counties and cities that make up the Southwest Metro Drug Task Force. For a contribution of $10,000.00, we receive the benefits of this group for, obviously, far less than it would cost to have our own division, or even one officer. This approach is also used to maintain the level of traffic enforcement we deem necessary. Rather than continue to purchase more and more police contract time with the hope that some additional traffic enforcement will occur, we have isolated this specific need and decided what we wish to pay for it. (This is a perfect example of local control.) The traffic enforcement program we designed and implemented this year is uniquely Chanhassen's, receiving exceptional reviews because it has been tailored to meet the needs of our city. The results are that people feel good about the program that was designed to meet a specific need, and it is funded in a very responsible and documented manner (please see the attached traffic enforcement report). We are presently operating two 6 -hour shifts each week dedicated to traffic enforcement, and the officers working the details are assigned patrol areas by the Chanhassen Public Safety Director. REVIEW OF THE CHANHASSEN MODEL I believe the "Chanhassen Model" of providing public safety services to our community is unique, and it is one that has drawn attention by other cities and counties around the country. As financial constraints cause counties and municipalities to become more creative in providing government services, the cooperative efforts of the City of Chanhassen and the County of Carver have continued to make our system work effectively. OFFICER CHANHASSEN CRASH REDUCTION ENFORCEMENT EFFORT AGENCY DAILY ACTIVITY REPORT BADGE COUNTY Page of DATE START TIME END TIME TIME CODES (Number of Hours) TOTAL HOURS STARTING MILEAGE ENDING MILEAGE TOTAL MILES TRAVELLED 501 502 503 521 588 599 8 -1 -94 Total of 76 tickets written I 1 an 2 156 1613 �r DATE TIME NAME DRIVER'S LICENSE NUMBER VEHICLE PLATE # LOCATION TYPE CONT, NATURE OF CONTACT OJ 0 Total of 76 tickets written I 1 an 2 Total of 192 warnings �r J 0� O • G TIME CODES: 501 - PATROLLING 502 - BREAK 503 - PARKING 521 - ACCIDENT RELATED ACTIVITY 588 - ASSIGNED OFFICE TIME 599 - OTHER (EXPLAIN) TYPE OF CONTACT: 0 - ARREST 1 - VERBAL WARNING 2 - WRITTEN WARNING 4 - AID/ASSIST NATURE OF CONTACT: SPEED D.W.I. ILLEGAL PASSING OTHER g:\safctyVo=\cras1 rcd.tbl Report on Public Safety Police Costs August 1994 Page 7 As previously stated, I believe it takes a commitment from everyone involved to see to it that the system works. If the Sheriff's Office was not committed to being a true service provider, and if the deputies working the road were not committed to working in such a relationship, the necessary relationship would not exist, and the system would not be workable. Similarly, the City must be committed to wanting to purchase these resources. People often ask me "when is Chanhassen going to start its own police department ?" My answer remains simply that the system will continue to exist as long as those involved make it exist. As long as the costs remain low, and the service levels high, the contract system serves us well. The elements required to make the system work in Chanhassen do exist. As the Public Safety Director, my philosophy on local 'identity and control' helps to make our system work. As far as local identity, we have marked Chanhassen vehicles and officers in Chanhassen uniforms. Personally, I think that having multiple agencies working together provides a stronger relationship between organizations with a better outcome for the community than having territorialism to the point of not wanting other organizations involved in our city, or their not wanting to be here. I have no doubt that the Sheriff would put "serving Chanhassen" or some other Chanhassen identifier on the County squads if we requested it, but I don't see that this is necessary or desirable. As an example of our working together for the betterment of the City, we developed Bob Zydowsky's position as a joint effort (see attached newspaper articles) to benefit both organizations. As far as local control, I have never had a request refused by this Sheriff's administration. In 1992, the Sheriff's Department began assigning a Sergeant to be a liaison with the City of Chanhassen. This has worked well, with daily meetings occurring with me, not unlike a traditional police department. I meet frequently with the Sheriff, Chief Deputy and Patrol Captain as well, and several times a year the City Manager and I meet with the Sheriff to review the status of the contract. An additional element that Chanhassen incorporates into the system to make it work is to actively encourage the cooperation of other law enforcement agencies in Chanhassen. Not only do we have an office for the Sheriff's Department at Chanhassen City Hall, but we also have an office for the Minnesota State Patrol. When a trooper is working out of this station office (which ours is for the troopers serving Carver and Scott Counties), we have additional officers for no cost. They respond to any calls at which they are needed. We have also continued our involvement as a charter member of the Southwest Metro Drug Task Force, and appreciate that A in a v W Xe bead Chan Public safety employs new deputy By Dean Trippler In another move making Chan- hassen famous in the law enforce- ment community, the Chanhassen Public Safety Department has a deputized police officer on its staff. Last week, Community Service Officer Bob Zydowsky became Public Service Officer Bob Zydow- sky. The change in job title means Zydowsky is now a deputized Chanhassen city employee. According to Scott Harr, public safety director for Chanhassen, the move does not mean that Chanhas- sen is steering toward creating its own police department. "The position was created as another unique step in public safety," he said. Zvdowsky has been a CSO with Chanhassen for almost five years. During that time he has completed a law enforcement degree and skills training to become a law enforce- ment officer. With Zydowsky's training, Harr was afraid Zydowsky may leave the city's employ for a full -time police job. Last spring, the idea of creating a new position came about. "We �kanted to keep him, but wC knew we couldn't do that in his immediate position," Harr said. So the city changed Zydow- �v's joh description giving him the majority of the tasks he did before but allowing him to help with emer- gency management planning and assist other agencies as a law enforce- ment officer when needed. For ex- ample, if a call requires two officers and Chanhassen is only staffed with one, Zydowsky may act as a back up for the deputies in town. Zydowsky was trained through the Carver County Sheriff's Office and deputized as a Carver County deputy. "By being deputized by the sher- iff, you deal with the jurisdictional questions and eliminate that move to a police department," Harr said. Chanhassen has three community service officers, Zydowsky and two others who work part -time, as well as one on -call. Carol Dunsmore, who is a support staff member of the public safety department, also doubles as an animal control officer. Carver County supplies contract policing to Chan- hassen at a cost of $35.33 for 32 hours each day. (The cost reflects one dep- uty on duty for a 24 -hour period and another for an eight -hour shift.) Community service officers do not have police powers and do not carry a w capon. "One thing to battle with this approach is people questioning if this is the first phase of a police depart- ment — it's not. It's just the best way to deal with the resources that we have," Harr said. Harr added that Zydowsky has developed a relationship with the deputies and troopers working out of Chanhassen and has assisted them, as much as he could, in the past. But there was always an invis- ible barrier because Zydowsky was not a licensed police officer, he said. Zydowsky, who had Harr as an instructor when he was going to Normandale Community College, said he has had to answer a lot of questions from fellow officers on why he is wearing a new uniform and toting a gun. "Now it's neat to be able to do some of these things," he said of police work. "I'm right in front now, doing the work." Harr said Zydowsky's change of job is experimental for now and he did not expect other CSOs to follow in Zydowsky's footsteps. But the bottom line for Harr is cooperation with the county, State Patrol, Chanhassen Public Safety, Southwest Metro Drug Task Force and other law enforcement agen- cies. "To see four different uniforms working side -by -side together, that's what I'm proud of," Harr said. 13013 ZYDOWSKY is a newly- deputized member of the Chanhassen Public Safety Department. Zydowsky, who has been a community service officer for almost five years, had his job description changed to become a public service officer with police powers. (Staff photo by Dean Trippler) Report on Public Safety Police Costs August 1994 Page 8 the DNR Conservation Officers spend time in Chanhassen as well. Not only do we have officers available when needed, but there is a perception that, as young people in our community tell us, there is "a cop around every corner in Chanhassen ". Visibility deters crime and availability serves the community. Finally, an important component of the system that makes ours work is that of the Community Service Officers. By having non -sworn CSOs, most often law enforcement students utilizing this opportunity to learn while doing, we are able to continue to keep the number of hours we contract for down to a minimum. The CSO's minimize the number of contract hours needed that demand a sworn officer by having lesser -paid Community Service Officers available to help as needed. The CSOs also help provide that personal Chanhassen touch that permits us to provide the type of public safety services that our community desires. KNOWLEDGMENTS A system like ours cannot operate successfully unless everyone who is a part of it helps. Accordingly, I would like to acknowledge those who have helped me develop such a uniquely successful program. The Public Safety Commission, each Chanhassen Public Safety Staff person, the Chanhassen Firefighters, Deputy Sheriffs, Minnesota State Troopers, DNR Conservation Officers, and Southwest Metro Drug Task Force agents deserve recognition for the critical part they play in the day -to -day success of our program: Public Safety Commission Don Chmiel, Mayor Dave Johnson Brian Beniek Dave Dummer Greg Weber Bill Bernhielm Eldon Berkland Chanhassen Fire Department Jim McMahon, Fire Chief Bob Moore, First Assistant Chief Dick Wing, Second Assistant Chief Mark Littfin, Operations Officer Report on Public Safety Police Costs August 1994 Page 9 John Wolff, Department Training Officer Todd Alcott, Rescue Training Officer Company l: Ladder Company Dale Gregory, Captain Jim Theis Steve Sauter Steve Scheid Dave Carlson Randy Wahl Mick Wiborg Greg Weber Greg Geske Company 2: Engine Company Brian Beniek, Captain Don Gray Rick Rice Jeff Slater Craig Blechta Scott Franzen John Murphy Greg Hayes Doug Becker Becky Meacham Company 3: Engine Company Duane Auseth, Captain Denny Unze Tom Kelly Mike Kerber Bob Halverson Hamid Hoodeh Shelley Mehl Jack Atkins Brian Smith Joe Brennan Dave Munch Company 4: Engine Company Dick Wing, Captain (Acting) Dave Dressler Report on Public Safety Police Costs August 1994 Page 10 Ron Payne Steve Undis Chic Anding Scott Anding Sherri Anding Jassen Schneider Roger Smith Chanhassen Community Service Officers Greg Hayes Sheila Losby Kerri Nolden Minnesota State Patrol Sergeant. Dave Sutherland Lieutenant Dave Grahm Trooper Paul Andrescik Trooper Michael Connelly Corporal Carl Gantriis Corporal Jeff Gladfelter Lieutenant David Graham Trooper I. Paul Hayes Trooper Richard Johnson Trooper Mary Kessler Corporal Timothy Murphy Department of Natural Resources Steve Walter Southwest Metro Drug Task Force Sergeant John Wolf and the agents with whom he works. Public Safety Support Staff Carol Dunsmore Beth Koenig Elizabeth Burgett The concept of contract policing could not work without the Sheriff's administration being committed to making it work. Certainly Sheriff Al Wallin, Chief Deputy Jim Castleberry, Captains Ron Holt, Bob VanDenBroeke, Report on Public Safety Police Costs August 1994 Page 11 and Ed Hjermstad all deserve credit, as do the patrol sergeants, with Sgt. Larry Wittsack presently being the liaison Sergeant assigned to Chanhassen (and Sgt. Julie Boden holding this position the previous two years), and the Sheriff's investigation unit, supervised by Lieutenant Bob Bergman. With the positive support of the Chanhassen City Council, Mayor Don Chmiel, City Manager Don Ashworth and Assistant City Manager Todd Gerhardt, we have been provided the direction and administrative guidance to make Chanhassen Public Safety a model that above all, provides a responsive and fiscally responsible approach to providing public safety services to our community. To this I remain appreciative and grateful. Respectfully submitted, Scott Harr Public Safety Director g:\safety\sh\report. l Chanhassen Villager — Thursday, January 7, 1993 Doing more for'Chan with less When dealing with municipal governments, the underlying theme is always money — or lack thereof. City officials want to provide what their employ- ers, the residents, request ; and require. Residents demand services, but high taxes are a constant com- plaint and worry.. Unlike most cities our size, Chanhassen has no police department. Instead, the city contracts with Carver County for police coverage. City officials see the price and the quality serve as good. deal. The alternative, of course, is to form a police department and incur, at taxpayer expense, another'financial burden. So ingenuity is often-called for. The Chanhassen Public Safety Department _has again found a way to make 'a limited budget go farther by providing a full-time, deputized police officer at no additional cost to the department.. That means that not only does Chanhassen have.police coverage for 32 shift hours a day by the deputies contracted with, ]Editorial but the city residents benefit from another. eight, hours a day from the community service officcuturned Chanhassen public safety officer. The Chanhassen model of public safety has re- ceived attention across the country and here in the state foe innovation in a time when taxpayers want to see more from their local government with less tax dollars. This is.a good example of how, when pro -' vided with the proper leadership, government can be responsive to the needs of the people while being fiscally responsible. _ And credit should go to Scott Harr, public safety director, Bob Zydowsky, the CSO "tumed PSO, and: the staff in the public safety department and sheriff's office who orotect and serve Chanhassen. Dean Tripplel