HomeMy WebLinkAbout2014-06-04 Packet - Workshop
CITY OF UKIAH
CITY COUNCIL AGENDA
Work Session
CIVIC CENTER COUNCIL CHAMBERS
300 Seminary Avenue
Ukiah, CA 95482
June 4, 2014
4:30 p.m.
WORKSHOP
1. ROLL CALL
2. STRATEGIC PLANNING
a. Police Department Strategic Planning Workshop; Presentation of Strategic Review 2013-14
3. PUBLIC COMMENT
4. ADJOURNMENT
Please be advised that the City needs to be notified 72 hours in advance of a meeting if any specific accommodations or
interpreter services are needed in order for you to attend. The City complies with ADA requirements and will attempt to
reasonably accommodate individuals with disabilities upon request.
Materials related to an item on this Agenda submitted to the City Council after distribution of the agenda packet are available for
public inspection at the front counter at the Ukiah Civic Center, 300 Seminary Avenue, Ukiah, CA 95482, during normal business
hours, Monday through Friday, 8:00 am to 5:00 pm
I hereby certify under penalty of perjury under the laws of the State of California that the foregoing agenda was posted on the
bulletin board at the main entrance of the City of Ukiah City Hall, located at 300 Seminary Avenue, Ukiah, California, not less than
24 hours prior to the meeting set forth on this agenda.
Dated this 30th day of May, 2014
Kristine Lawler, City Clerk
-1
Ukiah Police Department
Strategic Review
2013-14
May 28, 2014
2-
This report was prepared by:
Julie Fetherston of Strategic Communications
709 W. Clay St. Ukiah, Ca 95482
Phone: (707) 272-5092
E-Mail: julief@pacific.net
Julie Fetherston blends a scientific approach to research with an intuitive awareness of what motivates
and influences people to help organizations and individuals gain clarity about their goals and the steps
they should take to achieve them. She majored in Psychology, working in business management for many
years before returning to attain her Masters of Science degree in Range Management from UC Berkeley.
For ten years she worked for UC Cooperative Extension collaborating on research; creating strategic and
management plans; and developing research-informed, science-based education programs for youth
and adults. After using her experience and education as a Program Director and Research Assistant for
UC Cooperative Extension, she decided to follow her heart and pursue her own company. Her business
experience, thorough approach, and fluid communication style make her easy to work with while she leads
to clients to the results they seek.
-3
Ukiah Police Department
Core Values:
Safety, Professionalism, and Community Service
Vision:
Police and citizens working together to create a safe community
in which to live, work, raise a family and visit.
Mission:
In partnership with the community, the Ukiah Police Department shall use its resources
to provide quality public safety services, to enforce the law, to prevent crime,
and to protect the safety and security of all.
Introduction
Why do people live in a community like Ukiah? What factors contribute to quality of life and a sense of
community? What is the role of police officers in creating and maintaining this quality of life? Where are
we as a community and where do we want to be in ten years? How do the City Council and the Ukiah
Police Department (UPD) know if they are meeting the expectations of their community? These are some
of the questions that prompted the creation of this report.
The goal of this report is threefold: to provide a snapshot of UPD’s performance for 2013-14; to develop a
consistent format for annual report cards, and to recommend priorities that will set a course for the next
five to ten years. The Ukiah Police Department’s Strategic Plan for 2010-2015 serves as a foundation for
this review.
In compiling this report, I gathered qualitative data from interviews with key community leaders,
comparative data from third party sources, and statistical information from UPD. I used these sources to
measure UPD’s performance this year and to develop measures for an annual report card with consistent,
cost-effective comparisons, and to illustrate trends over time. Ten years of historical data, plus the key
leader interviews, created a clear picture of how staffing levels affect everything from the number of
crimes in Ukiah to the ability to develop a comprehensive recruitment and retention program. It is also
clear that a substantial shift has occurred in the demographics of the department, from more seasoned
veterans to dedicated, yet inexperienced officers. These facts informed the recommendations made
throughout the report. This report will:
• Outline the process used
• Report key findings from community interviews
• Assess UPD’s performance for 2013-14 as compared to strategic goals
• Make recommendations for future priorities
• Suggest standardized measures for each of the five goal areas
• Create a context for discussion and input from the City Council
Introduction
4-
Community Leader Interviews
Interviews provided information regarding community attitudes and expectations about local public
safety. The qualitative data was collected for use in developing quantitative measures in each of UPD’s
five strategic goal areas:
The interviews were conducted with 32 key community partners and leaders who represent the major
segments of our community (see appendix A for list of interviewees).
Key Community Leader
Interviews
Each interview was approximately
one hour long. Eight interview
questions were designed with three
goals in mind: to assess self-reported
quality of life, to identify factors that
affect quality of life, and to clarify
expectations about UPD’s role in
support of these factors. To meet local
expectations, we must first understand
them. If, due to limited resources
or other legitimate reasons, UPD
cannot meet community expectations,
the City of Ukiah should clearly
communicate their challenges and
priorities so community members can
adjust their expectations.
COMMUNITY SEGMENTS REPRESENTED
Media 3%
Education
7%
Faith
6%
Police
19%
Fire
7%
MSCO
3%
City Government
19%
County
Government
3%
Business
13%
Health Services
7%
Non-Profits
13%
Introduction
-5
Below is the list of interview questions:
1. On a scale of 1-5 (with 5 as highest), how would you rate your quality of life in Ukiah?
2. What are the top three things that affect your quality of life?
3. What do you think the UPD’s role is in addressing these issues?
4. What are the most pressing problems facing the City of Ukiah?
5. Do you have any ideas on how to address these problems?
6. Currently, what do you see as UPD’s most important strengths?
7. How can UPD improve?
8. What do you want from UPD?
Statistical Information
After assessing the survey data, several clear focus areas emerged; I used these focus areas to collect
statistical information on crime, and requested additional information from UPD, including number
of calls for service, crime clearance rates, staffing levels, and overtime hours. I used this information to
create metrics for each of the five goal areas.
To be useful and practical, metrics must accurately reflect the efforts and function of the department
without becoming a burden to collect when resources are limited. To develop measurements, both
quantitative and qualitative data are essential.
Quantitative measures are precise and concise ways to quickly assess information; they can easily be
presented in visual formats that can be used for statistical analysis.
Qualitative data create a narrative and context that allow for a well-rounded understanding of the
complexities of an issue. In a small community like Ukiah, where so much depends on an intricate
web of relationships and information, this deeper understanding helps us interpret quantitative data
appropriately.
Ideally, a range of metrics will highlight areas of achievement, while illustrating challenges, emerging
issues, and opportunities for improvement. They should be flexible enough to be used annually to track
trends over time.
This report recommends a combination of qualitative and quantitative measurements for goal area.
This will create a full picture of how UPD is meeting strategic goals and can be included in an annual
report card that will summarize performance and achievements, as well as make suggestions for future
priorities.
Introduction
6-
Executive Summary and Key Findings
Assessing the Department
In June of 2005, the City of Ukiah recognized the need for additional public safety resources – including
additional police officers – when the community voted to support a half-cent general sales tax increase
and accompanying public safety advisory measure, Measure S. Since the adoption of Measure S funding
in 2006, UPD has continued to struggle with increased crime and workload issues.
In 2008, to reduce crime and the impacts of crime on the Ukiah community, UPD began developing a
strategic plan titled, Measuring What Matters Most, and formally adopted the plan as a guide for the years
2010 to 2015. The plan focused on reducing crime within Ukiah, as well as developing and implementing
alternative staffing solutions and other programs to reduce officer workload. These efforts included
increasing prevention methods and community partnerships, redefining what service calls activate
criminal reports, implementing an Internet crime reporting system, increasing the use of community
service officers, and dispatching calls for service based on a priority system.
But, while implementing these plans, UPD experienced significant reductions in both budget and
number of sworn officers, which increased response times and limited services to the community.
Measure S funding increased UPD’s authorized staffing level from 28 sworn officers to 32 sworn officers
from 2006 to 2009, but because of budget reductions, that number was reduced to only 26 sworn officers
from 2009 to 2013.
Recruitment challenges, personnel seeking employment in other departments, on-the-job medical
injuries, and retirements have significantly reduced UPD’s actual staffing numbers to less-than-budgeted
numbers. In 2007, UPD reached its highest staffing level with 27 available officers, and in 2013 it reached
its lowest level of only 20 available officers.
In 2013, UPD officers responded to an average of 68 calls for service per day, investigated 10 criminal
reports per day, arrested more than 5 people per day and wrote 3 traffic tickets per day, while staffing
levels dropped to a 10-year low. Officer workloads also included more violent crime when comparing
Ukiah to similar cities, our state, and the national crime rates.
From both the qualitative and quantitative information collected during this strategic review, it is clear
that without adequate officer staffing, UPD will continue to struggle to provide adequate service to the
Ukiah community.
Introduction
-7
Key Findings Overview
These key findings are not meant to imply a statistically valid sample, but rather a representative
collection of data obtained through the key leader surveys and statistical information.
• Community partners expect UPD to do more than respond to calls for assistance; they want
police officers to be engaged in the community, especially with young people. Community
partners want officers to keep the peace in local schools, at community events, in neighborhoods,
and in local business districts.
• Community partners trust and respect UPD. They have a high level of confidence in department
leadership and think UPD does a good job with the resources it has. They also want UPD to do
more, but realize UPD cannot do more with the resources it currently has.
• Crime in Ukiah is disproportionately high compared to cities of similar size and geographic
location. Fear of crime is still relatively low.
• Key leader surveys suggest that UPD is doing an excellent job. Officers maintain a community
policing network, collaborate with allied agencies, and monitor essential indicators to make sure
their performance is, at the very least, acceptable, while striving for excellent, especially given
current staffing levels.
• The data suggest that UPD is understaffed. Budgeted staff does not accurately reflect the actual
staff available to provide service. Actual staffing levels have an inverse relationship with crime (see
tables on page 18). This increases the likelihood of injury, attrition, and decline in service.
• More staff equals better service. To prevent a decline in service, more officers are needed.
Innovative programs like the Community Service Officer (CSO) program assist officers, but CSOs
cannot replace them.
• Recruitment is challenging for multiple reasons. UPD needs a long-term strategic recruitment
and retention program to address these challenges and maintain adequate staff.
• Diversity must be a continued priority in recruitment and hiring.
• Leadership makes a difference. Opportunities for advancement and succession planning need to
be addressed proactively.
• Continued development of innovative programs will help bridge the gap between community
partner expectations and staffing levels.
Introduction
8-
Responding to a Call
Goal 1: Crime and the Fear of Crime
-9
Strategic Goal #1: Reduce Crime and Fear of Crime
Background
Crime is different than the fear of crime, and each must be addressed appropriately. In Ukiah, the fear
of crime is generally low, while actual crime is high (as compared to similar cities). While many of the
factors that influence crime are societal issues that UPD cannot affect, continued code enforcement,
targeted policing, and clearing cases can influence some of these trends.
Statistically, Ukiah has more violent and non-violent crime than the majority of comparable cities of its
size, demographics, and geographic location. In fact, of 465 California cities (including Oakland, San
Francisco, and Los Angeles), Ukiah ranked 384th – only 81 cities had a higher crime index rate.
While the underlying factors that influence crime are difficult for UPD to influence, UPD can and does
have a major impact on the fear of crime. UPD’s partnerships with local organizations, presence in the
community, quick response times, and high clearance rates make people feel safe.
In assessing whether crime and the fear of crime affect people’s quality of life, consider this: a report
titled Reducing Fear of Crime Strategies for Police states, “Fear leads to withdrawal from public life, and it
undermines informal and organized efforts by the community to control crime and delinquency.”
For most of us, our experience of living in Ukiah does not reflect actual crime statistics. Nonetheless,
when discussing the allocation and prioritization of resources for public safety, it is critical to understand
the numbers.
UCR Crime Index
Published by the Federal Bureau of Investigation (FBI), the Uniform Crime Reports (UCRs) provide
the official data on crime in the United States. UCR data collection is a nationwide, cooperative effort
of nearly 18,000 city, university and college, county, state, tribal, and federal law enforcement agencies
voluntarily reporting crime data. Each year, the FBI compiles and publishes UCR crime statistics in the
Crime in the United States reports.
UCR reports crime in two categories: violent and property crimes. Violent crimes include aggravated
assault, forcible rape, murder, and robbery, while property crimes include arson, burglary, larceny-theft,
and motor vehicle theft.
In Ukiah, UCR-reported crimes dropped 37 percent, from a high in 2008 to a low in 2011; however,
from 2011-13 Ukiah’s UCR-reportable crime rates took a concerning turn and rose 20 percent.
Goal 1: Crime and the Fear of Crime
10-
Overall Workload
UCR does not track all crimes, such as felony drug violations or DUIs, and it is important to understand
UCR statistics compared to overall arrests, crime investigated, and calls for police services. While serious
felony crime has risen in the Ukiah community, adhering to the strategic plan has reduced daily calls for
police services and overall quality of life crimes in the community.
Measurements
To evaluate Ukiah crime rates, the Ukiah’s UCR statistics were compared to five similar cities in our
region: Healdsburg, Sebastopol, Sonoma, Petaluma, and Arcata. I reviewed statistics for violent and
property crimes, the annual crime index, and overall crime. While none of these cities match Ukiah
exactly, each has similar demographics and is close to Ukiah’s geographic location.
Although Petaluma is twice as large as Ukiah, its inclusion provided a useful context when examining
crime indices. In the table below, the crime index statistic normalizes the data per 100,000, so relative
comparisons can be made regardless of the size of the city. It also weighs violent crimes differently than
non-violent property crimes because, based on experience, research data, and interview responses,
violent crime disproportionately increases fear of crime and reduces perceptions of safety and self-
reported quality of life.
Goal 1: Crime and the Fear of Crime
-11
Goal 1: Crime and the Fear of Crime
12-
These tables show the violent and property crime comparisons for 2010-2012. As expected, due to
population differences, Petaluma has by far the highest occurrence of crime in every category except
burglaries (Ukiah had more than Petaluma all three years).
Ukiah’s high burglary rates are most often associated with high levels of transient populations, those
utilizing County Social Services, and Ukiah’s marijuana and methamphetamine drug cultures. Since the
implementation of State Prisoner Realignment (AB109), Ukiah has also begun to see impacts of a new
population of parolees and those on probation who report to the County and State facilities located in
Ukiah.
Healdsburg, Sebastopol and Sonoma have much lower occurrences of crime, particularly violent crime.
Because the reported per capita income is higher in those three cities, Arcata was added, which has a
similar reported per capita income to Ukiah and wrestles with similar challenges with transients and the
cultivation of marijuana. Arcata’s crime statistics are similar to Ukiah, although Arcata has more property
crimes and Ukiah has more violent crimes.
UCR CRIME INDEX COMPARISONS FOR 2010-2012
The Crime Index Comparison shows crime in Ukiah compared to regional, state, and national indexes.
Ukiah has a higher crime index than any of the five comparison cities, including Petaluma. In fact,
Ukiah’s overall crime index is double that of Petaluma (52 percent), 20 percent higher than the State of
California, and 21 percent higher than the national crime index rate.
This higher-than-normal crime index (and high violent crime compared to other local communities)
occurred while sworn officer staffing dropped to a 10-year low.
Goal 1: Crime and the Fear of Crime
-13
As stated earlier, Measure S funding increased UPD’s authorized staffing level from 28 sworn officers to
32 sworn officers from 2006 to 2009, but because of budget reductions, that number was reduced to only
26 sworn officers from 2009 to 2013.
Despite an increase in the number of approved officer positions, difficulties in hiring and training
personnel, personnel seeking opportunities in other departments, on-the-job medical injuries, and
retirements have reduced the department’s actual staffing numbers to an available staff much less than
budgeted amounts.
In 2007 the department reached its highest level of available personnel (27 officers); and just recently,
in October of 2013, reached its lowest level of available personnel (20 officers). These reductions have
increased overtime expenditures, work-related injuries, and have impacted the department’s ability to
address crime and quality of life concerns within the Ukiah community.
So, why do so many Ukiahans feel as safe as they do? According to interview data, UPD’s professionalism,
quick response times, exceptionally high crime clearance rates, and community engagement have kept
fear of crime lower than the statistics would suggest, and this directly affects community quality of life.
Goal 1: Crime and the Fear of Crime
14-
CRIME CLEARANCE RATES FOR UKIAH AND THE STATE OF CALIFORNIA
Crimes Cleared 2010-11 2011-12 2012-13 2013-14
Ukiah Violent Crimes 87%89%89%84%
California Violent Crimes 43%44%44%Not yet published
Ukiah Property Crimes 58%52%50%55%
California Property Crimes 14%13%13%Not yet published
UPD’s crime clearance rate is significantly higher than the state average, with the violent crime clearance
rate an average of 49 percent higher and the property crime clearance rate an average of 76 percent
higher. It seems likely that this marked difference is partly responsible for the low fear of crime in Ukiah,
given the research highlighted in the U.S. Department of Justice report, Reducing Fear of Crime: Strategies
for Police.
Another important way to reduce the fear of crime
is to build citizen confidence in police through
citizen-police contact, patrol visibility, good
communication (public information), and rapid
response times. Based on local interviews and
statistical information, UPD enjoys excellent public
confidence. A majority of respondents reported
feeling safe, and indicated that feeling safe walking
in their neighborhoods positively contributed to
their quality of life. Most respondents were aware
of UPD’s limited resources, and cited the police
chief’s weekly newspaper article as a source of
information.
All but one of our respondents (whose office was
recently burglarized by a man who was sleeping
in the building while using drugs) felt safe in their
neighborhoods. Most felt comfortable walking in
their neighborhoods alone, going to their cars at
night, and engaging in similar activities. However,
the vast majority of people interviewed talked
about the increase in transients and the negative
impact transients have on their feelings of safety.
To be clear, respondents made a distinction
between the homeless and transients, which will be
outlined in the next section on Quality of Life in
Neighborhoods.
According to the U.S. Department of Justice
report Reducing Fear of Crime: Strategies for
Police, the following strategies (not ranked)
may reduce the fear of crime:
1. Reducing crime
2. Motorized patrol
3. Police visibility
4. Rapid response
5. Solving crimes
6. Target hardening
7. Street lighting
8. Police-citizen contact
9. Public confidence in police
10. Public information
11. Reducing disorder
12. Targeted responses
Goal 1: Crime and the Fear of Crime
-15
Challenges and Priorities
UPD’s primary challenge is to continue to respond to the increasing calls for service with current staffing
levels. It is clear from the rise in violent crimes, as well as the responses from interviews, that more
resources are needed to reduce crime rates, maintain high crime clearance rates, and keep fear of crime
low.
Successful strategies should be maintained: communicating with community members and clearing
crimes. The department’s newspaper column, regular briefs, and weekly reports provide consistent
updates to the media and people in the community. The expanded UPD website allows another point
of contact and answers local citizens’ questions: What’s happening in my neighborhood? How do I file a
report? Who’s the most wanted in Northern California? And, community policing allows police officers
and citizens to interact and build trust.
Until additional officers and resources are secured, innovative programs like the CSO program (see
sections 3 & 4) and Volunteers in Police Program (see section 4) should be used to increase visibility and
police–citizen contact, and provide services such as the business liaison program.
Goal #1 Reduce Crime and Fear of Crime – Report Card Recommendations
To track and report crime and the fear of crime within the Ukiah community, UPD should use the
following metrics:
Crime
1. Overall 10-Year Statistical Arrests, Crime Reports, and Calls for Police Services Chart
2. Officers Budgeted – Staffing Allocation Chart
3. Officers Available Chart
Fear of Crime
1. UPD 10-Year FBI Index UCR Chart of Crimes
2. 3-Year Crime Comparison UCR Charts
3. 3-Year UCR Crime Indexing Chart
4. UPD Crime Clearance Rates
Goal 1: Crime and the Fear of Crime
16-
Strategic Goal #2: Improve Quality of Life in Our Neighborhoods
Background
For the purpose of this report, quality of life is defined as the general well-being of individuals and
societies. Research materials and local interviews indicate that the perceived level of safety has
a big impact on quality of life. People want to feel safe in schools, at work, in parks, and in their
neighborhoods. They want to feel a police presence and know that police officers care about the
community they serve. A valid way to measure quality of life is to ask people how satisfied they are with
the factors that contribute to a high quality of life.
Measurements
Self-reported quality of life was measured through 32 interviews with key community leaders,
representing 11 segments of the community. The interviews helped identify important indicators
that were then used to create flexible annual measurements for all five strategic goal areas. While not
statistically representative of the entire community, the interviews were a cost-effective way to gather
information not possible in a mail survey.
The eight interview questions were:
1. On a scale of 1-5 (with 5 as highest), how would you rate your quality of life in Ukiah?
2. What are the top three things that affect your quality of life?
3. What do you think the UPD’s role is in addressing these issues?
4. What are the most pressing problems facing the City of Ukiah?
5. Do you have any ideas on how to address these problems?
6. Currently, what do you see as UPD’s most important strengths?
7. How can UPD improve?
8. What do you want from UPD?
Reporting
When asked to rate personal quality of life in Ukiah on a scale of 1-5, the average respondent rating was
3.75. Scores were slightly lower for people who grew up in Ukiah (3.5) and for police officers (3.25).
Long time residents remarked at the changes in the community, often mentioning the increased cost of
living, loss of jobs, and rise in crime and traffic (both public safety issues). Police officers cited spending
most of their time dealing with the worst elements of our community, the growing acceptance of illegally
cultivating marijuana, and the current workload.
In general, according to respondents, quality of life mirrors the reasons most people choose life in a
small, rural town: natural beauty, connections to family and friends, friendly atmosphere, less traffic
and noise, a sense of community and a feeling of safety. Often, respondents rated their personal quality
of life (relationship with family and work) higher than their quality of life in the general community.
When asked about the difference, respondents identified public safety issues (drugs, transients, traffic
congestion) as reasons.
Goal 2: Quality of Life in Our Neighborhoods
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The majority of respondents feel safe in their neighborhoods and walking around town, and were
satisfied with their current level of safety. All respondents said they felt UPD was doing a good job
upholding the law with current resources.
When asked what factors negatively impacted their quality of life, respondents were remarkably
consistent. Overwhelmingly, the top three factors for Ukiah residents were:
1) The illegal cultivation and sale of marijuana and its effect on local culture
2) Transients drawn here by marijuana and the crime associated with both
3) Jobs and economic development
While these issues are broader than public safety and are only partially within UPD’s sphere of influence,
they must be considered in decision-making when allocating scarce police resources. Most respondents
understood that much of UPD’s time, energy, and financial resources are spent addressing crime related
to the transient drug culture, leaving less for community engagement and community policing.
Transient: (n) a person who is staying or working in a place for only a short time.
Homeless: (adj) (of a person) without a home, and therefore typically living on the
streets.
Both in the definition and in the minds of respondents, there exists a distinction between transients and
the homeless. Transients refer to people who are not long-term members of our community, who have
chosen a nomadic lifestyle, who often have drug or alcohol issues, and who have come to Ukiah to buy,
sell, or work in marijuana-related activities. Homeless people are considered community members whose
financial situation forces them onto the street, and are often actively trying to change their circumstances.
These differences are evident in the police interactions with both populations. According to respondents,
the transient population has increased during the past five years and is partially responsible for a rise in
both violent and property crimes, including assaults on officers.
Goal 2: Quality of Life in Our Neighborhoods
18-
VIOLENT CRIME TRENDS AND ACTUAL NUMBER OF OFFICERS 2014-2013
NON- VIOLENT CRIME TRENDS AND ACTUAL NUMBER OF OFFICERS 2014-2013
Goal 2: Quality of Life in Our Neighborhoods
-19
While our community is generous and compassionate toward the homeless, the community is frustrated
by the influx of transients and the associated rise in crime (assaults and burglaries) and reduced feelings
of safety in parks and public places.
Without exception, respondents wished that UPD had more resources to increase proactive community
policing and regular patrols. If additional resources become available, the top public safety priorities, in
no particular order, are as follows:
1. Transients
2. Continued and increased presence in schools
3. Increased traffic patrol for bike and car code violations
4. Presence in parks and pubic spaces/business districts
5. Volunteer or cadet program to engage with public
6. Community events
7. Youth engagement activities
This list reflects the community’s expectation that UPD be engaged in crime prevention, not just crime
response. Currently, UPD does not have enough resources to meet these expectations; however, through
innovative programs they address many of them.
Schools
According to three interviewees who represented the education
sector, Ukiah Unified School District board members,
administrators, and teachers recognize and deeply appreciate
UPD’s continued commitment to local schools and youth in our
community. UPD responded to a total of 580 calls for service
at school campuses in 2013-14 (see the following pie chart and
table). UPD also funded and helped deliver the Gang Resistance Is
Paramount (GRIP) program to approximately 400 fifth graders. All
three interviewees talked at length about the benefits of having the
School Resource Officer (SRO) in the schools, and their satisfaction
with the UPD for creating a safe learning environment, as well as
reducing crime, drugs, and the fear of crime at Ukiah High School.
CALLS FOR SERVICE AT
UKIAH UNIFIED SCHOOL DISTRICT
“The School Resource
Officer is an incredible asset
to our school programs. He
plays many roles within the
district. Certainly there is
the law enforcement piece,
but even better than that is
the relationship he builds
with staff and students.”
~Deb Kubin,
UUSD Superintendent
Yokayo
Nokomis
Oak
Manor
Frank
Zeek
Pomolita
Middle
Ukiah
High
South
Valley
High
River
Oak
St
Marys
of
the
Angles
Yokayo
Nokomis
Oak
Manor
Frank
Zeek
Pomolita
Middle
Ukiah
High
South
Valley
High
River
Oak
St
Marys
of
the
Angles
Yokayo
Nokomis
Oak
Manor
Frank
Zeek
Pomolita
Middle
Ukiah
High
South
Valley
High
River
Oak
St
Marys
of
the
Angles
Yokayo
Nokomis
Oak Manor
Frank Zeek
Pomolita Middle
Ukiah High
South Valley High
River Oak
St. Mary of the Angeles
Goal 2: Quality of Life in Our Neighborhoods
20-
Traffic Patrol
UPD officers wrote 891 traffic citations this year, and investigated 29 injury accidents and 119 non-injury
accidents.
Because of staffing shortages, patrol officers only enforce traffic violations when they have time between
calls (and they respond to an average of 68 calls per day).
Regularly, citizens report concerns about drivers and cyclists using the roads in unsafe ways, which
affects people’s quality of life. When fully staffed, the department can assign specific traffic enforcement
duties to personnel.
TRAFFIC CITATIONS
TRAFFIC ACCIDENTS
Fatal
Injury
Property Damage
Total
Goal 2: Quality of Life in Our Neighborhoods
-21
Volunteer Program
UPD employee, Nancy Sawyer, is the new Community Service Officer (CSO) and business liaison in
charge of developing, implementing, and managing the new UPD Volunteers in Police Service Program
(VIPS).
Since November of 2013, Sawyer has researched best practices for volunteer programs in police
departments across the country. She has developed policies and procedures for recruiting, screening,
hiring, training, and managing police department volunteers.
As a result of her work, the volunteer program has been started. The process includes completing a
City of Ukiah application and meeting the following requirements: GED or high school diploma, a
clear driving record, proof of insurance, and background check. Applicants then go through a medical
screening and command staff interview. Once approved, volunteers enter into training. This screening
and training process takes several months, so once volunteers participate in department activities, they
are truly ready to contribute.
Currently, UPD is recruiting volunteers through community partners such as Mendocino College and the
Ukiah Senior Center, and hopes to recruit 6 to 10 volunteers during the next 12 months. Volunteers’ skills
and interests will be matched to one of several areas where UPD needs additional support, including
evidence, records, community events and the business liaison program.
Youth Activities
Late afternoon to early evening (3:00 – 6:00 p.m.) is when children are at the highest risk of committing
crimes or becoming the victims of crime, as children are out of school and working parents are not yet
home. To keep kids out of trouble after school, the Ukiah Boys and Girls Club prides itself on being a safe
place to learn and grow, all while having fun.
The Boys and Girls Club staff works hard to ensure that every kid is on a track to finish their homework
each day, and to graduate from high school with a plan for the future. The club also encourages the
children to demonstrate good character and citizenship, and live a healthy lifestyle. Today, more than 150
kids per day utilize the afterschool program.
While it only costs $30 dollars for the whole year to become a member of the Boys and Girls Club of
Ukiah, getting kids to the program after school can be a challenge.
To help, UPD uses funds from its asset forfeiture drug and gang prevention funds to provide free bussing
to transport children to the Boys and Girls Club location. The program, housed at Grace Hudson
Elementary School, provides supervised afterschool care until 6:30 p.m.
Goal 2: Quality of Life in Our Neighborhoods
22-
Goal #2 Improve the Quality of Life in Our Neighborhoods – Report Card Recommendations
Year-to-year comparisons can be made with the following measurements:
1. Annual reporting on existing efforts and programs
a. VIPS Program Participation and Activities
b. Business Liaison Participation and Activities
c. Boys and Girls Club Participation and Activities
d. Gang Prevention Is Paramount Participation and Activities
2. Calls on School Campus
3. Traffic Accidents
4. Traffic Collisions
Controlling Traffic in a Downtown Neighborhood
Goal 2: Quality of Life in Our Neighborhoods
-23
Strategic Goal #3: Enhance Community and Police Partnerships
Background
“Community policing is a philosophy that promotes…the systematic use of partnerships and problem-
solving techniques to proactively address the immediate conditions that give rise to public safety issues
such as crime, social disorder, and fear of crime” - U.S. Department of Justice, Community Policing
Defined
Community/police partnerships strengthen the fabric of communities while helping police departments
be more effective. According to the U.S. Department of Justice, these partnerships provide police
departments with a direct source of information about what is happening in the community, a window
into emerging issues and trends, and a source of information for solving crimes.
Measurements
Currently UPD benefits from partnerships in three key areas: crime prevention and response, schools,
and community organizations. All are key components to community policing and each has a slightly
different function, defined below:
1. Allied Agencies Partnerships (crime prevention and response)
This partnership cultivates collaborative relationships with law enforcement and organizations that
commonly deal with people who require police services. Agencies share information and resources
through call support, briefings, weekly meetings, shared trainings, and information exchange. Partners
include:
• Mendocino County Sheriff’s Office
• Mendocino County District Attorney
• Ukiah Valley Medical Center
• Mendocino County Mental Health
2. School Communities Partnerships (schools)
As outlined in the previous section, UPD considers area schools important partners. The School
Resource Officer (SRO) is the key link in this school/police partnership. Financial responsibility for the
position is shared by UPD and UUSD. The SRO position has helped decrease crime and the fear of crime
(particularly gang-related crime), reduced drugs and drug-related suspensions, contributed to a safe
learning environment, and improved the relations between youth and the police department.
Goal 3: Community and Police Partnerships
24-
3. Community Policing Network (key community partnerships)
UPD collaborates with key community partners to create a proactive crime prevention network. This
network includes mental health service providers, youth organizations and groups working to reduce
domestic violence. These strategic partnerships provide critical information to help prevent and solve
crimes, and track emerging issues. Partners include:
• Gang Resistance Is Paramount (GRIP)
• Council on Domestic Violence
• Ukiah Community Center
• Ukiah Food Bank
• Homeless Services Work Group
• Health & Human Services Agency Advisory Board
• Project Sanctuary
• Boys and Girls Club
• Homeland Security Funding Committee
• Sexual Assault Response Team
• Mental Health Services Act Committee
• Nuestra Casa Board of Directors
• Ukiah Main Street
• Mental Health NAMI Committee
• UVMC Health and Emergency Workshops
Reporting
Through my interviews with key community leaders, it became clear that Ukiah residents don’t just want
community policing; they expect it. Current UPD leadership has done an excellent job developing a
network that improves:
1. The ability of UPD and allied agencies to provide service to the community;
2. The efficacy of UPD to proactively address crime (e.g., gang violence, drugs in schools);
3. The ability of community partners to serve the community; and
4. Relationships between UPD and the community.
Allied Agencies
UPD and the Mendocino County Sheriff’s Office (MCSO) work together to promote collaboration
among allied agencies. They also encourage cooperation between their two agencies at all levels, from
leadership to patrol officers. According to several interviewees, this is a welcome change from past
administrations. Officers and leaders who I interviewed reported an open, cooperative atmosphere of
trust, mutual support, and collaboration. These relationships extend beyond work hours, and several
Goal 3: Community and Police Partnerships
-25
officers reported the importance of these relationships in their ability to do their job. In Ukiah, the city
limits do not reflect the day-to-day reality of the citizens. Many residents consider themselves Ukiah
citizens, when in fact they live beyond the city limits. UPD supports MCSO in providing services to these
areas to ensure public safety and to maintain the confidence of the community.
UPD and MCSO share:
• Resources
• Coverage of incidents
• High call volume support
• Special events coverage
• Training
This year, the State of California Public Safety 911 Office chose Mendocino County Law Enforcement
(Fort Bragg, Willits, Ukiah and Mendocino County Sheriff) to pilot a combined, virtual 911 system
for the cities and county. Each agency has signed an agreement that outlines the development,
implementation, and testing of the system. The system is designed to increase efficiencies, cost-
effectiveness, and collaborative service. If proven effective, the 911 Office will be implementing this type
program in other areas throughout California.
Coordinated Response in a Crisis
In January of 2014, a middle school teacher at St. Mary’s School was conducting a Physical
Education class in the schoolyard, when he saw a man in the creek bed adjacent to the school
grounds with what appeared to be a rifle. He ushered the students inside and initiated the
emergency lockdown procedure.
At 2:02:57 p.m., the call came in to UPD Dispatch saying there was a man with a gun on school
grounds. At 2:03:11 pm, the call was relayed to officers, and the first officer was on the scene at
2:04:00—one minute and three seconds after the call. After making sure students were secure,
UPD initiated a search for the man. Within minutes, back-up officers from multiple agencies
(including the multi-agency SWAT team) were on the scene. Officers were also dispatched to Yokayo
Elementary School, a block away, to initiate emergency lockdown procedures there, in case the
man traveled west along the creek bed to the nearby campus. Yokayo Elementary was on lockdown
by 2:07 pm and Nokomis Elementary, which is half a mile from the St. Mary’s campus, was locked
down at 2:21 p.m.
As it turns out, the man was not found and it is unclear whether the teacher saw a rifle or a garden
tool that may have looked like a rifle. However, the event did give UPD a chance to practice its
emergency school shooter response under live circumstances. The schools were pleased with the
swift, decisive, and professional response to this occurrence. I happen to be a parent of St. Mary’s
students and I was on campus this day and witnessed the entire event. The coordinated response
confirmed the importance of the ongoing collaborative relationship with allied agencies.
Goal 3: Community and Police Partnerships
26-
UPD and MCSO are also working to develop a combined SWAT team. They currently provide support
for incidents that require a high officer response (see sidebar: Coordinated Response in a Crisis).
The SWAT team is a resource-intensive, but critical component of emergency response. Creating a
combined SWAT team will improve efficiencies in response, training, equipment, and delivery of services.
UPD works with MCSO and other Mendocino County law enforcement, probation and jail officers to
provide a multi-agency gang team: “MAGSU.” This team is coordinated and supervised by a UPD captain,
and provides a unified response to gang enforcement and investigative functions within Mendocino
County.
UPD, MCSO and other law enforcement agencies regularly collaborate to ensure effective policing
for special events and other community functions. As an example, the March 25, 2014 funeral of
MCSO Deputy Ricky Del Fiorentino drew more than 2,000 people, including an estimated 1,500 law
enforcement officers from the cities of Fort Bragg, Willits, and Ukiah, as well as the MCSO. UPD
provided law enforcement services to the City of Fort Bragg and all of inland Mendocino County so that
representatives form their allied agencies could attend the funeral.
Most recently, FBPD, WPD, UPD and MCSO began work on a county-wide video communications and
briefing project. Through video conferencing, law enforcement agencies within Mendocino County plan
to establish regular video meetings, training and other communications to improve coordination and
activities with partner law enforcement. This project is funded through Homeland Security.
School Partnerships
The UPD School Resource Officer (SRO) program has been in existence since the 1990’s, with the
addition of a drug-detecting canine companion in 2009, reducing drug-related suspensions by 50
percent. As previously mentioned, the superintendent and other representatives from education
shared their opinions regarding the crucial role the SRO plays in school safety and have backed up that
commitment with financial resources. When asked what she wanted from UPD, Superintendent Kubin
said, “they are already giving it.”
Goal 3: Community and Police Partnerships
-27
UUSD demonstrated their commitment in March of 2014 when the UUSD Board of Education signed
a new Memorandum of Understanding between UUSD and UPD, approving $90,000 in annual funding
toward the School Resource Officer (an annual increase of $70,000 from previous years). The full
program costs a little more than $150,000.
UPD continues to be instrumental in delivering the Gang Resistance is Paramount (GRIP) curriculum;
the SRO is actively involved in presenting and coordinating the program. This evidence-based program is
delivered through a collaboration of schools, county government, and non-profit agencies.
In the Ukiah area, the program is paid for by UPD, MCSO, and the Mendocino County District
Attorney’s Office. The 12-lesson program reaches all of the estimated 400 fifth grade students in the
UUSD. The program costs $10,435 to deliver, or $26 dollars per student. Lessons help students recognize
the dangers of gang membership and resist the pressure to become involved in gangs. The program also
helps parents recognize signs of gang involvement. Each lesson costs about $2 per student per class.
Program Coordinator Kristin Firth at Redwood Children’s Services says, “that’s less than a drink at
Starbucks.”
Community Policing Network
Community partnerships are the heart of community policing. These relationships between UPD and
local individuals and organizations serve to create a proactive crime prevention network. The benefit of
these collaborative relationships goes both ways. UPD representatives participate on governing boards of
local organizations, which allows them to help shape the management and policy of these organizations.
UPD also benefits from access to the expertise and experience of people who work with issues that
influence the quality of life for individuals and our community.
For example, the Youth Project Director talked about the challenges of Ukiah’s high domestic violence
rates that involve children either remaining in or being removed from domestic violence households;
collaborative relationships improve the outcome of these high-tension and complex situations. For the
partners, UPD’s engagement and support makes a difference in their ability to provide services to our
community. During interviews, several community partners told me that UPD support made them feel
safe and better able to do their jobs.
“I couldn’t do my job without the support of the Ukiah Police Department”
– Tim Rohan, RN, Director of Emergency Medical Services, UVMC
Key Leader Suggestions
Community policing through collaborative relationships is effective in preventing and reducing crime
and the fear of crime. Community policing also meets a clear expectation of local citizens. As such,
I recommend upholding the current commitment to these partnerships, as outlined in the strategic
plan. This will require adequate staffing and consideration in recruiting efforts (e.g., the importance of
bilingual officers/staff for partnerships with organizations such as Nuestra Casa.) It should also include
institutionalization of policies and procedures to maintain these partnerships after the current leadership
retires. Partnerships should be reviewed annually for emerging opportunities such as cost-sharing for
training and equipment, innovative cross agency collaborations, and expanded SRO partnership with
UUSD.
Goal 3: Community and Police Partnerships
28-
Regarding the UPD/UUSD partnership, UPD may be able to expand the relationship with a bilingual
CSO. Local educators and administrators recommended considering a bilingual CSO position dedicated
(at least in part) to the schools. Under the direction of the SRO, this CSO could explore the following
ideas.
• An Introduction to Law Enforcement class or modified cadet program at Ukiah High School,
modeled after the SCRUBS program. (The SCRUBS program is an innovative career track class
for students interested in careers in the health profession.) In a law enforcement skills class,
students could acquire basic skills and learn about various law enforcement professions, creating
a recruitment pipeline for future officers, CSOs, dispatchers, clerks, and other law enforcement
personnel. A bilingual CSO might be especially effective at recruiting Latinos. This program could
also be presented in collaboration with the MCSO, the District Attorney’s Office, and UUSD.
• A harm reduction program. As with anti-gang and anti-bullying education, preventing drug use
is easier when taught early. The CSO could work in conjunction with UUSD, Redwood Children’s
Services, and the county’s AODP staff to develop a coordinated drug and alcohol prevention
program.
• A truancy reduction program. Chronic attendance issues are linked to poor academic
achievement and increased high-risk behaviors. The CSO could work with the School Attendance
Review Board to blend existing anti-gang education with strategies to reduce truancy.
The Community Policing Network should be reviewed to make sure emerging issues are addressed, and
the network may need to be expanded for that purpose. For example, this year, transients were listed
in the top three challenges facing Ukiah. The Ukiah Community Center, Ukiah Food Bank, and the
Homeless Services Work Group all work on issues related to or involving transients. If UPD did not have
existing relationships with these organizations, it would need to address that deficit.
Goal #3: Enhance Community and Police Partnerships – Report Card Recommendations
Report activities in each of the three areas:
1. Allied agency partnership
2. School community
3. Community policing network
Goal 3: Community and Police Partnerships
-29
Strategic Goal #4: Develop Personnel
Background
During the peak of summer, the department can respond to more than 90 service calls a day. Each call,
even calls that initially appear routine, have the potential to quickly escalate into dangerous situations.
Teaching people to make good, instantaneous decisions is at the heart of developing UPD personnel.
To help guide both department dispatchers and officers, UPD utilizes a strong, values-based system. The
core values of Safety, Professionalism, and Community Service are designed to guide UPD personnel as
they make those time-sensitive decisions.
Department personnel are trained to apply these values by asking:
1. Is it safe?
2. Is it professional?
3. What service does it provide the community?
Every day, UPD personnel must make decisions that test their ethics, integrity and personal safety. The
department’s training and its emphasis on core values provide clear instruction for officers to make good
decisions, and good decisions build community trust (and reduce UPD’s and the City of Ukiah’s exposure
to civil and criminal lawsuits).
Using good judgement is especially important in light of the fact that officers often work alone, and being
alone makes them more vulnerable to injury and death. Once an officer arrives on a scene, they quickly
assess the situation to determine whether the level of danger warrants backup. This assessment period
puts even well-trained officers in vulnerable, sometimes life-threatening positions.
Deputy Del Fiorentino’s recent death provided a stark and tragic reminder of this. When a single officer
responds to a call, they show up with whatever information dispatch could provide; sometimes this
information is not enough to keep officers from harm.
According to one officer, about 90 percent of calls involve substance use or abuse, which increases the
unpredictability of situations. The officer emphasized the fact that every call involves stress. The higher
the call volume, the more intense the pressure becomes on the officers. This is particularly true in Ukiah
because of the high violent crime ratio.
UPD officers respond to a higher number of calls than officers in adjacent communities and deal with
a higher proportion of violent crimes. Several officers who left UPD for similar jobs at agencies further
south cited this as contributing to their decision to leave.
Developing a diverse and capable police workforce is important not only for the safety of each individual
officer, but for the safety of Ukiah citizens.
Goal 4: Personnel
30-
Recruiting and Developing Personnel
Developing personnel means providing officers with sufficient resources to do their job safely and
effectively, including:
• adequate staffing to avoid prolonged overtime hours,
• ongoing professional training to meet State of California mandates,
• opportunities for growth and advancement, and
• mental health support for officers and their families.
It also means creating a workforce that is reflective of and responsive to the community.
Recruiting a diverse workforce can be a challenge. Less than one percent of applicants make it through
the screening and training process. High workloads and high housing prices make recruitment more
difficult.
In addition, most people choose a small community because of its interconnectedness; seeing people you
know on a regular basis increases feelings of security and happiness. For police officers, however, it can
have the opposite effect: seeing people you have arrested or put in jail can increase feelings of stress and
exposure for officers and their families.
Measurements
Based on the key leader interviews and statistical data, four focus areas emerged: recruitment, training,
support and workload. Metrics to track the first two will also address items 3 and 4. The following are the
specific recommendations gleaned from the interviews:
1. Recruitment, training, and hiring: continue to create a more diverse workforce, while filling open
positions. Keep track of how many officers are available throughout the year, and what causes
attrition.
2. Training and mentoring: provide legally mandated training (driver training, arrest and control,
communications, firearms, CPR, domestic violence, racial profiling, and human trafficking) Con-
tinue to provide core values training to all new officers and support peer mentoring. Develop a
succession plan.
3. Support: maintain manageable levels of job stress to reduce injuries and burnout. Provide mental
health and emotional support to officers, spouses, and other family members.
4. Workload: maintain a reasonable workloads for the safety of officers.
Goal 4: Personnel
-31
Recruitment Reporting
Recruitment is the first step in the long hiring process. Typically only 10 percent of applicants make
it through, and those who complete this process must be screened and trained before being hired.
Less than one percent of applicants make it all the way from recruitment to hiring. This increases the
challenges of diversifying the department’s workforce.
Recruiting for a more diverse workforce has been a high priority for the department under the current
leadership. UPD continues to look for ways to create diversity in gender, experience, and ethnicity. More
than half the community members interviewed want a police department that better reflects the diversity
of the community. Latino and bilingual officers are a specific priority.
DIVERSITY HIRING 2004-2014
REASONS FOR SEPARATION
In reviewing the separation data, only three officers (10 percent) left the deparment because they reached
retirement age. Of the 29 officers who left the organization, nine officers (39 percent) left after not passing
the academy or completing probation, and seven officers (24 percent) left to work in other communities.
In many cases, difficulties performing as an officer, a heavy workload, job-related stress, and low pay (for
veteran officers) were significant contributing factors in the decision to leave UPD.
Goal 4: Personnel
32-
This brings up the question of return on investment. UPD must invest $60,000 developing a new officer
in the academy and FTO program, and significantly more to become experienced officers. Creating
effective retention and development programs for officers will save the City time and funding in the
future.
In addition to the rigorous screening and training process, UPD officers have a high workload and are
often paid less than law enforcement officers in nearby cities. The second most common reason UPD
officers left the department was to move to a different agency – most often for workload and pay reasons.
Key Innovative Program: Community Service Officers
In 2008, UPD had two Community Service Officers (CSOs), one assigned to animal control duties
and the other assigned to parking enforcement. With the transition of Officers Maldonado and
Phillips from CSO to police officer, leadership realized the program could be an effective way to
recruit youth who are connected and committed to the community.
In 2013, UPD and the Ukiah City Council decided to add more CSO positions to the department.
In June of that year the program grew from two to four CSOs, and in November, two more were
added (one full time and one 32-hour CSO position). These additional four positions represent a
cost savings of approximately $40,000 per year per position or a total of $120,000 annually when
compared to sworn officer staffing.
Currently, the six CSOs provide critical support to the department working in code enforcement,
evidence, records, community service and volunteer development. This innovative program is a cost
effective way of increasing UPD’s:
• connection to the community
• community policing capacity
• support of existing officers
• ability to develop new officers committed and connected to the community
Most importantly, the CSO program serves the department as a recruitment, development and
mentorship program. The CSO program allows he department to recruit and develop future sworn
officers and prepare them for success as officers.
Training
Each new officer must complete the Core Values Training program, which was implemented as part of
UPD’s strategic plan (2010-2015). This training is delivered by the Field Training Officer (FTO), as part
of the evaluation program, and during the daily decision making strategies discussions. The training
is designed to increase the safety of the officers, instill a culture of respect and integrity, and provide
professional and responsive service to the community.
This training continues to have a positive and profound impact on officer morale and community
perception. One hundred percent of respondents, when asked about UPD’s current strengths answered:
integrity, professionalism, leadership, or dedication/commitment to the community. This included the
Goal 4: Personnel
-33
officers interviewed, many of whom also mentioned the supportive environment of the department,
and the respectful and approachable style of its leadership. This overwhelming response speaks to the
effectiveness of this training. The implementation of Core Values Training has helped build a community
of trust and confidence, and has resulted in higher satisfaction with interactions between police officers
and community members. This is an essential element of community policing. One respondent stated
that they appreciated the department’s “consistent, respectful, and concerned response to a range of
problems and situations.”
In addition to the Core Values Training, officers receive a range of ongoing trainings to keep their
skills current. Interview respondents say UPD officers are well trained and display a high level of skill
and expertise. Several respondents who work with mentally ill clients talked about the high level of
professionalism and training UPD officers display when working with these difficult clients – clients with
drug and alcohol addiction, mental illness, or both. This is essential for the safety and efficiency of the
force, as the majority of calls involve substance use and/or mental illness.
Interview Highlight: Jacque Williams, Director Ford Street Project
Jacque Williams is no stranger to tense situations. As Director of the Ford Street Project, Buddy
Eller Center, and Ukiah Food Bank, she and her staff frequently deal with people who struggle with
mental health issues and/or drugs and/or alcohol. She says her clients frequently feel out of control
and sometimes desperate. Trying to offer clients assistance, while keeping her staff safe can be tricky.
When a client gets belligerent or threatening, the client is asked to leave and the police are called.
Williams said, “I have been particularly impressed with and appreciative of our local police
department. I feel like the officers do everything they can to de-escalate those situations...my team at
Ford Street would tell you, we have really come to rely on the police to help us with those situations,
and we respect the skills and the care they bring to the job everyday.”
Goal 4: Personnel
Making an Arrest
34-
The State of California requires “perishable skills” training for every officer; however, with the
department’s high officer vacancy rate and limited staffing, completing the training has become difficult.
The next table illustrates the number of personnel who did not complete required mandatory training
during the last two reporting cycles.
PERISHABLE SKILLS TRAINING 2011-2014
In addition to questions about ongoing officer training, a quarter of respondents asked about succession
planning. As veterans retire or leave UPD, and young officers are hired, are current leaders preparing
emerging leaders to maintain success in a complex environment? In future years, information on
succession planning and preparing officers for advancement should be a regular item in the department’s
annual report.
Support
At least 30 percent of interview respondents indicated concern about officer injury or low morale,
specifically related to UPD’s high number of work hours and high call volumes. To reduce injury and
burnout and maintain a healthy workforce, UPD provides opportunities for stress management and
reduction. These should be part of ongoing support for officers and their families.
Goal 4: Personnel
-35
While officers appreciate the stress release workout and training sessions offered with Maldonado Martial
Arts, they and their leaders know that the most important factor contributing to job stress (including
stress-related injuries and burnout) is workload. One officer said that stress management training is fine,
but if you have to put in overtime hours so you can go to a stress management training, it just creates
more stress.
When asked how UPD might improve, respondents said they had confidence in UPD leadership to
determine the training needs of UPD personnel as illustrated by the department’s high level of skill and
professionalism. Several respondents did express curiosity about specific trainings, including domestic
violence, school shooter, diversity/cultural sensitivity, and situational training to deal with events like the
Andy Lopez case, in which a Sonoma County boy was shot and killed by a law enforcement officer who
mistook his toy gun for a real weapon.
Workload
Workload is an important factor in maintaining a safe working environment, reducing job-related illness
and injury, maintaining employee morale, and providing adequate police service to the public. This
year, officer staffing dropped to a 10-year low. While the City Council recently approved two additional
positions (bringing budgeted sworn officers to 32), in actuality the department currently has fewer
available officers for active duty service. This puts tremendous pressure on those officers to meet the
service demands of the community.
The table below, compares the number of budgeted officers to the number of available officers from
2004-present.
This year, although there are 32 FTO positions budgeted; attrition, injury and illness have significantly
impacted the officers available for active duty.
Although available officers have been impacted, the workload expectations have not dissipated. Today,
even with a streamlined system that helps prioritize and minimize paperwork, officers expressed concern
that they have little time to do anything except to respond from call to call.
BUDGETED OFFICERS VS. OFFICERS AVAILABLE
The discrepancy between budgeted officers and available officers is an ongoing issue that creates
confusion for the community about resources available for public safety.
As the number of available officers declines, overtime hours increase (see tables below). This not only
puts additional strain on officers and their families, but also increases department spending. To meet the
rising demand of calls for service, while trying to keep overtime expenses within budget, the department
stopped providing overtime for community events in 2013.
Goal 4: Personnel
36-
OVERTIME HOURS 2007-2014 STAFFING OF OFFICERS 2004-2014
As indicated in the tables above, calls for service have decreased slightly during the past several years;
however, the types of calls include a larger proportion of high priority calls (violent crimes). This puts
additional strain on the department’s ability to respond safely and quickly to high priority calls.
DAILY CALLS FOR SERVICE AND NUMBER OF OFFICERS
Goal #4: Develop Personnel – Report Card Recommendations
1. Recruitment, training, hiring: Recruit more officers to fill open positions, continue with a strategy to
create a more diverse workforce and increase retention.
a. Provide annual measurement of diversity
b. Provide annual measurement of separation
c. Provide annual measurement total officers, available officers, and overtime hours/expenses
2. Training/mentoring: Provide legally-mandated training, including driver training, arrest and control,
communications, firearms, CPR, domestic violence, racial profiling, and human trafficking. Continue
implementation of Core Values Training, peer mentoring, and succession planning.
a. Provide annual measurement of mandatory training completed
b. Provide annual measurement of Core Value Training completed
Budgeted Officers
Officers Available
Average Calls for Service
Goal 4: Personnel
-37
Strategic Goal #5: Continued Accountability
Accountability has two key components: 1) a clear promise, and 2) proof that the promise was kept.
To uphold the law and keep the peace, a police department must have the trust and confidence of its
community. To gain that trust and confidence, the police department must be accountable for its actions.
In some ways, building trust poses a challenge similar to addressing crime and the fear of crime. In
reducing crime, it is important to engage in prevention and to clear cases. In addressing the fear of crime,
it is important to communicate in a way that addresses people’s emotions.
In building trust, it is important that a promise be made and kept, but the communication and
transparency around these promises influence perceptions. Perception becomes reality when dealing
with trust.
According to interviews, for UPD to maintain community trust, it must do three things:
1. Answer when called – show up, address the problem.
2. Be respectful, efficient, and trustworthy. Officers must have integrity and do the right thing.
3. Use resources wisely. Make sure hard-earned, taxpayer dollars are not wasted.
Goal 5: Accountability
Conditioning to Stay in Shape and Learn Self-Defense Tactics
38-
Answer When Called
According to interviews, respondents unanimously agreed that UPD is doing a good job with existing
staffing levels. Respondents appreciate UPD’s commitment and integrity, and they have confidence
that Chief Dewey will make good decisions and train his staff to do the right thing. More than half of
respondents expressed appreciation for the department’s commitment to serving the community, and
their responsiveness to community needs.
Most respondents understood that, with UPD’s limited resources, UPD can respond to calls, but has
little time or resources to put toward proactive community policing. As stated previously, should more
resources become available, citizens clearly expressed their priorities.
RESPONSE TIMES
CITIZEN COMPLAINTS
In part because of the department’s value systems and training, recruitment of personnel, and internal
ethics, citizen complaints and internal affairs investigations have been at a historical low for several years.
Spend Wisely
The next measure of accountability addressed in interviews was fiscal transparency. It is not a surprise
that citizens want a clear, transparent, and thorough accounting of where their tax dollars are spent. At
any time, the public has a right to know how their tax dollars are used, but when a special tax is levied
by the voters’ approval (Measure S), it is essential that taxpayers be able to see and understand where the
money goes. While efforts have been made to clearly communicate this information to the public, not all
respondents felt that they had a clear understanding of how Measure S dollars were spent.
Goal 5: Accountability
-39
Going forward, based on comments from the 32 key community leaders, I recommend providing budget
data in as much detail as possible, including the following categories:
• Personnel • Retirement • Health Care
• Overtime • Training • Operations
• Capital Expenditures
SEE BUDGET WORKSHEET ATTACHMENT
So, to build trust, UPD must share its commitments (what it realistically hopes to achieve), and then
provide regular updates. It must also share budget information and provide fiscal progress reports. Many
of the current communication pathways already developed by UPD can be used to communicate this
information: Chief Dewey’s newspaper column, briefings with local community and law enforcement
partners, and online venues like the website and Facebook page.
As with every organization, UPD has critics. Rather than ignoring those critics, UPD should bring them
in and share information. UPD has reason to be proud of its accomplishments, even as it strives to do
more. In an information void, people tend to invent answers to their questions, making assumptions that
rarely take the most optimistic view. The truth will set you free, as they say.
Goal #5: Continued Accountability – Report Card Recommendations
The following measures should be used to report accountability annually:
1. UPD Response Times and Staffing Levels
2. UPD Citizen Complaints and Internal Affairs Investigations Complete
3. UPD Budget Breakdown
Goal 5: Accountability
SRO Investigates Report of Drugs in a High School Locker
40-
Conclusion
I have been asked to evaluate UPD’s performance, look at trends in the community, develop
measurements and make recommendations. I do this as a consultant, but also as a Ukiah resident, a
mother of school-aged children, a business owner and a third-generation Ukiahan. I, like all of the
community members interviewed, put a high price on the safety of my family and my community. I want
to be able to walk in my neighborhood and enjoy community events without fear of being the victim of
crime. This is a big part of why I returned to Ukiah to raise my children.
I am also a taxpayer who understands that the City of Ukiah has limited resources, and I appreciate the
creative approach the Council and UPD have taken in creating innovative programs to try to bridge the
gap between community expectations and what the City can afford.
Crime in Ukiah is high and on the rise. The Ukiah Police Department does not have adequate resources
to be proactive in its approach. Right now, UPD officers are working too many overtime hours in an
effort to simply cover the calls for service. This increases the risk of injury, mistakes, and burnout for
officers, and reduces their ability to get ahead of crime trends. It is a vicious cycle. Reactive policing rarely
leads to a reduction in crime.
One of our biggest challenges is the marijuana culture. The illegal cultivation of marijuana is Ukiah’s
largest economic engine and influences all major aspects of our community, including public safety. Since
marijuana is not taxable, the resources available to deal with the issues created by this economic driver
aren’t enough.
Our community is at a crossroads and the trends in both violent and non-violent crime will continue to
rise unless we respond appropriately.
While reducing crime rates is difficult because of the complicated nature of the factors that influence
crime (societal pressures outside of public safety’s influence), UPD has proven that it knows how to
make the most of community policing to effectively reduce and prevent crime. Several years ago, UPD
recognized gang violence in Ukiah as a serious threat to local safety. UPD received adequate resources
and used them to work with community partners to develop a comprehensive crime prevention and
reduction program. In reviewing statistics since UPD’s anti-gang program began, the substantial drop in
gang-related crime proves UPD can achieve its goals.
However, the downturn in the economy and the associated drop in UPD staffing have left UPD without
the ability to meet community expectations or their own goals. In recruitment, UPD has no choice but
to offer low pay, long hours, and dangerous work compared to other police departments. The veteran
officers who remain with UPD under these circumstances are truly dedicated and remarkable people. The
new officers who are willing to work under these circumstances are drawn by the department’s excellence
and, often, by personal ties to the community. However, it is clear that maintaining its high standard
without enough money to attract new recruits has led to an unacceptably low staffing rate. A minimum
staffing rate should be established based on criteria such as crime rates, violent crime ratios, call rates,
and response times. With current data, UPD and the City Council have agreed that UPD needs at least 32
active officers.
Staffing equals service. UPD leadership has worked hard to create a culture in the department that
reflects its core values of Safety, Professionalism and Community Service. These recommendations are
intended to help facilitate a thoughtful discussion about how to prioritize limited resources.
Conclusion
-41
Summary of Recommended Metrics for Annual Report Card:
Goal #1 Reduce Crime and Fear of Crime
Crime
1. Overall 10-Year Statistical Arrests, Crime Reports, and Calls for Police Services Chart.
2. Officers Budgeted – Staffing Allocation Chart
3. Officers Available Chart
Fear of Crime
1. Ukiah PD 10-Year FBI Index UCR Chart of Crimes.
2. 3-Year Crime Comparison UCR Charts
3. 3-Year UCR Crime Indexing Chart
4. UPD Crime Clearance Rates
Goal #2 Improve the Quality of Life in Our Neighborhoods
1. Annual reporting on existing efforts and programs
a. VIPS Program Participation and Activities
b. Business Liaison Participation and Activities
c. Boys and Girls Club Participation and Activities
d. Gang Prevention Is Paramount Participation and Activities
2. Calls on School Campus
3. Traffic Accidents
4. Traffic Collisions
Goal #3: Enhance Community and Police Partnerships
1. Allied agency partnership
2. School community
3. Community policing network
Recommendations
42-
Goal #4: Develop Personnel
1. Recruitment, training, hiring: Recruit more officers to fill open positions, continue with a strategy to
create a more diverse workforce and increase retention.
a. Provide annual measurement of diversity
b. Provide annual measurement of separation
c. Provide annual measurement total officers – available officers – overtime
2. Training/mentoring: Provide legally mandated training that includes: driver training, arrest and
control, communications, firearms, CPR, domestic violence, racial profiling, and human trafficking.
Continue implementation of Core Values Training, continue peer mentoring, succession planning.
a. Provide annual measurement of mandatory training completed
b. Provide annual measurement of Core Values training completed
Goal #5: Continued Accountability
1. UPD Response Times and Staffing Levels
2. UPD Citizen Complaints and Internal Affairs Investigations Complete
3. UPD Budget Breakdown
Recommendations
-43
Appendix 1: Key Community Leaders
Name Organization Community Sector
1 Trent Taylor UPD Police
2 Justin Wyatt UPD Police
3 David McQueary UPD Police
4 Noble Waidelich UPD Police
5 Fred Keplinger UPD Police
6 Isabel Madrigal UPD Police
7 John Mosna UPD Police
8 Phil Baldwin City of Ukiah City government
9 Benj Thomas City of Ukiah City government
10 Steve Scalmanini City of Ukiah City government
11 Mary Anne Landis City of Ukiah City government
12 Douglas Crane City of Ukiah City government
13 Jane Chambers City of Ukiah City government
14 Rod Vargas AC Delco Business
15 Ross Liberty Factory Pipes Business
16 Dick Selzer Selzer Realty Business
17 Antonio Andrade Andrade Tax Prep Business
18 Luisa Acosta Nuestra Casa Non-Profit
19 Kate Gaston Youth Project Non-Profit
20 Jacque Williams Ford Street Project Non-Profit
21 Liz Elmore Boys & Girls Club Non-Profit
22 Anne Molgaard First 5/UUSD Board Education
23 Jason Iverson Ukiah High/UUSD Education
24 Deb Kubin UUSD Education
25 Father Alvin St. Mary’s Catholic Church Faith
26 Judy Shook Ukiah Methodist Church Faith
27 Rob Ramser Ukiah Valley Fire Dist. Fire
28 Dave Haas Ukiah Valley Fire Dist. Fire
29 Tom Allman Mendocino County Sheriff MCSO
30 John McCowen Board of Supervisors County government
31 Tim Rohan UVMC Medical Services
32 K.C. Meadows Ukiah Daily Journal Media
Appendix
44-
Notes
Notes
FY06-07 to 13-14
POLICE REVENUES ACTUAL ACTUAL ACTUAL ACTUAL ACTUAL ACTUAL ACTUAL UNAUDITED BUDGET Percent Estimates
FY 2005-06 FY 2006-07 FY 2007-08 FY 2008-09 FY 2009-10 FY 2010-11 FY 2011-12 FY 2012-13 FY 2013-14 Increase / Decrease FY 2014-15
Other Police Funding (Offsets to Police Expenses)
AB109 funding 125,000$ 125,000$
Local Law Enforcement Block Grant 20,000$ 10,211$
Supplemental Law Enforcement Fund 104,694$ 106,023$ 104,500$ 106,384$ 103,492$ 114,226$ 101,855$ 101,855$ 101,855$ 101,855$
COPS - Recovery Act - 1 Officer 79,301$ 83,795$ 87,985$
JAG - CSO Funding 46,119$
FBPD Dispatch Contract 293,518$ 276,482$ 296,415$ 318,079$ 341,636$ 309,785$
State Asset Forfeiture 96,681$ 105,535$ 105,013$ 104,185$ 30,686$ 23,586$ 163,493$ 201,615$ 160,737$
Drug / Alcohol Education 10,000$ 3,336$
Drug and Gang Prevention -$ 13,363$ 14,644$ 71,112$ 15,241$ 74,668$ 51,279$ 72,446$ 29,550$
Federal Asset Forfeiture 8,675$ 1,830$ 17,540$ 32,103$ 49,643$
Alternative LE Funding 230,050$ 246,962$ 227,493$ 281,681$ 522,238$ 636,416$ 733,130$ 743,638$ 758,778$ 207%536,640$
General Fund Revenue Deposits - POST, SRO, Evidence 71,554 113,454 106,539 140,832 196,779 198,954 215,920 176,845 $161, 280 New 90k SRO Contract 231,280
FY06-07 to 13-14
POLICE EXPENDITURES ACTUAL ACTUAL ACTUAL ACTUAL ACTUAL ACTUAL ACTUAL UNAUDITED BUDGET Percent Estimates
FY 2005-06 FY 2006-07 FY 2007-08 FY 2008-09 FY 2009-10 FY 2010-11 FY 2011-12 FY 2012-13 FY 2013-14 Increase / Decrease FY 2014-15
POLICE EXPENDITURES
Salaries and Overtime 2,164,285$ 2,427,382$ 2,568,591$ 2,581,665$ 2,658,094$ 2,446,384$ 2,522,392$ 2,734,255$ 2,814,554$ 16%2,814,554$
Retirement 450,112 512,194 645,308 715,856 809,324 772,147 894,768 967,481 1,033,480 102%1,033,480
Health Insurance 187,053 274,393 394,261 426,913 424,036 423,640 444,519 490,779 544,179 98%544,179
Other Insurance 114,602 151,776 168,990 169,489 144,584 156,805 134,143 206,066 247,494 63%247,494
Uniform Allowance 14,921 16,506 25,800 27,582 26,696 27,980 27,353 26,476 27,900 69%27,900
Sub-Total Police Salaries & Benefits 2,930,973 3,382,251 3,802,950 3,921,505 4,062,734 3,826,956 4,023,175 4,425,057 4,667,607 38%4,667,607
Utilities 14,426 16,538 13,811 16,817 19,295 19,295 17,842 - - -
Telephone 32,583 31,709 37,608 38,439 53,637 49,447 49,221 47,376 39,980 26%39,980
General Gov. / Information Technology - - - 37,204 138,706 120,512 130,052 185,405 185,405 185%185,405
Building Maintenance 47,139 67,813 63,432 76,476 92,614 98,018 - 93,939 95,760 41%95,760
Building Replacement Set-aside 23,072 23,072 23,072 23,072 27,723 27,723 - 27,878 27,878 21%27,878
Property Insurance 60,515 68,345 65,754 65,754 66,799 66,770 71,123 72,625 72,625 6%72,625
Sub-Total Other Police Support Costs 177,735 207,477 203,677 257,762 398,774 381,765 268,238 427,223 421,648 103%421,648
Other Police Operating Costs 368,792 377,250 396,408 440,691 314,847 350,135 490,887 492,945 460,554 22%936,638
Dispatch Costs 304,708 312,267 280,457 358,442 468,797 479,057 460,340 499,403 476,084 52%
Capital Purchases 95,662 126,366 22,491 98,962 124,943 82,151 12,668 80,000 80,000 -37%80,000
Total Police Expenses 3,877,870$ 4,405,611$ 4,705,983$ 5,077,362$ 5,370,095$ 5,120,064$ 5,255,308$ 5,924,628$ 6,105,893$ 39%6,105,893$