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HomeMy WebLinkAboutCC AG PKT 2004-01-12 #T City of Seal Beach Agenda Report Date: January 12, 2004 To: Honorable Mayor and City Council From: John B. Bahors City Manager ` Subject: Authorize City Manager to Execute a Contract with Organizational Effectiveness Consulting to conduct a Police Operations Study SUMMARY OF REQUEST: Staff is requesting outside consulting support to prepare an Operations Study that will address three main issues: what police services should be provided, what staffing level and mix are necessary to deliver these services and what is the most appropriate organization structure. Staff is requesting professional assistance to answer these important questions and provide City Council with a factual, realistic and financial viable plan to staff the Seal Beach Police Department. This contract will allow the staff to move forward with a staffing plan. BACKGROUND: Since June 2002, the City of Seal Beach has been subject to a city wide hiring freeze due to the economic conditions within the City and at the State level. The Seal Beach Police Department, with the implementation of a new retirement program (3% @ 50), has lost four officers to retirement. In addition, three officers have left the department to pursue careers in other police agencies. Currently, there are 21 officers that are field eligible to work patrol and traffic duties, the remaining nine officers are assigned to either non- patrol functions or are on workers' compensation restriction. Staff has worked diligently on gathering information on staffing and operational issues, however, it became clear that professional assistance is needed to complete the analysis. Due to a variety of tasks facing the Police Department, the work on this project is slow and the organizational /data analysis required to complete a study are labor intensive, making it necessary to seek the assistance of an outside consultant. Staff wants to provide City Council with a thoughtful analysis on police operations /staffing that is based on hard data and is fiscally sound. This type of analysis can best be done with the assistance of an outside consultant. Item T eiy. a /ilia te0 ft a c &ffe. C a e & eilit STRATEGIC PLANNING • ORGANIZATION ANALYSIS • TEAM BUILDING • MANAGEMENT DEVELOPMENT TOM ESENSTEN PRINCIPAL November 28, 2003 Mr. John Bahorski City Manager City of Seal Beach 211 Eighth Street Seal Beach, CA 90740 Dear Mr. Bahorski: Thank you for your interest in Organizational Effectiveness Consulting (OEC) and the consulting services we provide. This letter proposal is based upon my recent meeting with you and Chief Sellers, review of various reports and documents provided, and extensive experience assisting other law enforcement agencies with similar assignments. Once you have reviewed this proposal, I would be pleased to discuss any suggested modifications you and Chief Sellers may have to the work plan. Organizational Effectiveness Consulting OEC was established in 1993 to provide responsive and personal services to the public sector in the areas of strategic planning, organizational analysis, change facilitation, leadership development and team building. With specific expertise in public safety, we have assisted a wide range of municipal police departments in California. A small sample includes Anaheim Police Department, Cypress Police Department, San Bernardino Police Department, Dixon Police Department, Ceres Police Department, Ontario Police Department, Whittier Police Department, Pasadena Police Department, Los Alamitos Police Department, Redlands Police Department and Azusa Police Department. Attached is a Qualifications Statement describing services, a broader list of clients, and a list of relevant references. The consulting team for this project possesses over sixty years of consulting and law enforcement operational experience. Collectively, the team members have assisted over 300 agencies in the last thirty years. 11342 SULPHUR MOUNTAIN ROAD • OJAI, CA 93023 (805) 933 -9723 • FAX (805) 933 -9753 Mr. John Bahorski November 28, 2003 City of Seal Beach page 2 Tom Esensten, founder of OEC, has provided consulting services to•the public sector for almost thirty years. He is nationally recognized for his expertise in strategic planning for law enforcement, having assisted over thirty agencies in this area. He routinely consults with police departments implementing significant organizational changes driven by both crises and purposeful realignment of vision and service delivery strategies. Tom serves as course manager for the Command College, an executive development program for law enforcement managers focusing on the future. He is certified by the Commission on Peace Officer Standards and Training to facilitate team building workshops. He is much sought after as a trainer and conference speaker in the areas of leadership, strategic change and repositioning.organi7ations for the future. Tom will serve as project manager for this assignment. • Richard Thomas has thirty years of experience in law enforcement. He was with the Ventura Police Department for twenty -nine years, the last eleven as Chief of Police. He has also served as Interim Chief of Police for both the Cal Poly San Luis Obispo University Police Department and the Pismo Beach Police Department. Rich provides consulting service in the areas of planning, team building, organizational analysis, background investigations and sensitive personnel inquiries. Rich has served as a subcontractor for OEC on projects related to public safety organizational design, service delivery systems and impact assessments of economic development. Project Background and Objectives The City of Seal Beach is located on the coast at the northern edge of Orange County. With 24,100 residents, it is a quaint, stable community with a Council-City Manager form of government. Two principal features of the City are Leisure World, a large self - contained retirement community, and the Naval Weapons Station which comprises approximately two- thirds of the City's land mass. Like all cities in California, Seal Beach is facing some fiscal uncertainty. The volatile economy coupled with the State's fiscal crisis leave cities unable to accurately project future revenues. This has been exacerbated in Seal Beach by extremely limited opportunities for residential and commercial growth. The Police Department is a full- service agency providing patrol, traffic, investigative and animal control services. It runs a jail, staffed by a contractor, that generates revenue through contracts and booking fees from other agencies. The Police Department is part of a communications JPA in partnership with Los Alamitos and Cypress. The JPA is located on -site at the Seal Beach Police Department. At present, the Cities of Westminster and possibly La Palma are assessing the fiscal and operational benefits of joining the JPA. In 2002, the Department handled 25,847 calls- for - service, wrote 2,838 reports, made 377 arrests and wrote 4,757 citations. The Department's total budget for fiscal year 2003 -2004 is approximately $6,000,000. Mr. John Bahorski November 28, 2003 City of Seal Beach page 3 Staffing levels in the Department have varied significantly over the last twenty -five years. At present there are thirty -three officers, down from thirty-seven last year due to retirements and a hiring freeze. Peak sworn staffing for the Department was forty-six in 1977 through 1981. Information related to population, workload and civilian staffing for the twenty -five year period is not presently available. According to the Police Department, the reduction in sworn staffing has resulted in: loss of management and supervisory positions; no participation in county -wide narcotics and auto theft task forces; and loss of operational functions in the areas of SWAT, K -9, vice /intelligence, night time traffic investigation and beach patrol. The Police Chief and City Manager have been engaged in ongoing discussions regarding police services for the City of Seal Beach. In light of the current hiring freeze and the City's uncertain revenue stream, these discussions focused on three issues: what police services should be provided; what staffing level and mix are necessary to deliver these services; and what is the most appropriate organization structure? Based upon these discussions, it was determined that the City could benefit from the services of a consultant specializing in organizational analysis and planning for law enforcement agencies. It is OEC's understanding that this independent study should answer the following questions: 1. What are the minimum core services the Seal Beach Police Department must provide the community? 2. What is the minimum staffing necessary to deliver these services, and what will be the impact on employee safety and community satisfaction? 3. What additional services should the Seal Beach Police Department provide the community, and what are the associated benefits and costs? 4. What is the appropriate mix of sworn, civilian and contract employees to deliver the services? 5. . What is the most appropriate organization structure for the Police Department that ensures the delivery of services and provides adequate supervision and accountability? 6. What positions currently vacant should be filled immediately, and what positions should be removed from the Table of Organization? 7. What measures should be used to assess the effectiveness of police services in the City of Seal Beach? Based upon a thorough and professional review, the consultant's findings and recommendations will be detailed in a professional report and presented to the City for review and discussion. • Mr. John Bahorski November 28, 2003 City of Seal Beach page 4 Proposed Work Plan in order to achieve the objectives outlined above, Organizational Effectiveness Consulting proposes implementing the following work plan. This work plan can be modified based upon input from the Cypress Police Department. Step 1: Convene Project Kick - Off Meeting — An initial meeting to formally kick-off the project will be held with the Police Chief, City Manager and others, as appropriate. The project objectives and work plan will be reviewed and finalized. Reporting relationships and reporting schedules will be established. Input will be sought from the City as to whom OEC should interview and what other police departments should be used for comparative purposes. If available, a dedicated onsite workspace for the consulting team would be identified. Step 2: Gather and Review Relevant Documents — A variety of documents relevant to the project's objectives will be gathered and reviewed. These documents may include, but are not necessarily limited to: budget, position and job descriptions, MOUs, employee roster with hiring and promotional dates, employee training records, staffing charts, overtime records, City's recruitment and hiring procedures, departmental policies and procedures, results of any community surveys, workload statistics related to patrol and investigations, crime statistics, and any standard reports generated by a computer -aided dispatch system These documents will provide the consulting team background information and will serve as the basis for describing current practices. Step 3: Conduct Interviews — The consulting team will conduct interviews with individuals who can provide relevant information. These interviews will assist in identifying expectations, current practices, problems or concerns, opportunities for improvement, obstacles to implementation, and suggested recommendations. At a minimum the consulting team would interview the City Manager, Chief of Police, members of command staff; all supervisors and a sample of front -line employees. In addition, we will conduct one -on -one interviews with each City Council member. Step 4: Gather and Analyze Comparative Agency Information — Comparative police departments will be contacted for relevant information. A variety of data will be requested, including staffing plans, workload information, budgets, calls for service, and organization charts to assess span of control. This information will be analyzed and formatted for presentation to the City for comparative purposes. . Step 5: Define Core and Enhanced Services — Based upon the information gathered above, OEC will detail minimum core services the Seal Beach Police Department should be providing the community. In addition, enhanced service levels and the associated benefits will also be outlined for presentation to the City. This analysis will be in the context of employee safety, community expectations and fiscal resource availability. Mr. John Bahorski November 28, 2003 City of Seal Beach page 5 Step 6: Assess Staffing Requirements — Based upon staffing and workload information provided, OEC will assess staffing requirements of the Seal Beach Police Department. Specific staffing level and staffing allocation recommendations will be developed incorporating a number of criteria including officer safety, comparative agency information, policy guidance from the City regarding expected service levels, overtime costs, fiscal constraints and operational priorities as determined by the Chief of Police. The recommended staffing will be for both sworn and civilian employees. Staffing recommendations for both minimum core services and enhanced levels will be provided. Step 7: Develop Measures of Effectiveness — OEC will develop a set of effectiveness measures that the City can employ in the ongoing evaluation of police services. These will be presented to the City in draft for discussion before being finalized. In addition, a staffing formula for future use will be presented for the City's consideration. This formula will outline when additional staffing may be required based on actual workload and recommended guidelines for proactive directed patrol. Step 8: Propose Organization Structure — An organization structure for the Police Department will be proposed. Based upon minimum core services and enhanced services, different models may be presented for the City's consideration. A critical element for the model(s) will supervisory and management resources necessary to ensure service delivery, accountability and meet the performance expectations as defined by the measures of effectiveness. Step 9: Develop Draft Report - Consistent with feedback provided the City on an ongoing basis, a draft report will be presented for review and discussion. This report will summarize findings, provide detailed recommendations, and identify budgetary implications where appropriate. In addition, an implementation plan outlining tasks, responsibilities and schedule will be provided. This draft report is intended as a discussion piece with the City to ensure all relevant issues have been addressed and adequate supporting data supplied. Step 10: Prepare Final Report - A final report incorporating feedback from the review of the draft will be prepared and presented to the City. This final report will reflect agreed upon changes to the draft report and will be formatted consistent with the City's expectations. Step 11: Present Recommendations to City Council - OEC will make a formal presentation of its findings and recommendations to City Council at a conveniently scheduled time. This presentation will summarize the results of the findings and provide opportunity for questions. It is strongly recommended that the City consider providing opportunities for direct input from community representatives. This input is essential to ensure that any modifications in the Police Department's service and staffing levels are consistent with community standards of public safety. This input can be gathered in one of two ways: individual Mr. John Bahorski November 28, 2003 City of Seal Beach page 6 interviews with ten to fifteen recognized community leaders; or four to five community focus groups targeted at specific populations. The cost for these alternatives is outlined in the budget section of this proposal. Throughout the project, OEC will remain in close contact with the City. OEC will hold monthly meetings with the City to summarize findings to -date and preliminary recommendations. In light of the required time on -site to conduct this study, OEC expects ongoing routine contact with the City Manager and Chief of Police. Cost Proposal and Schedule It is OECs practice to bill for the actual hours necessary to complete an assignment in a thorough and professional manner. Based upon the work plan outlined above, it is estimated that 250 hours of consulting time will be required. Accordingly, professional fees will not exceed $31,250. In addition, OEC is reimbursed for all expenses related to mileage, lodging, meals, document production and postage. For this assignment, expenses will be capped at $3,125 or ten percent of the actual professional fees charged. Should the City desire to add an additional task of gathering direct input from the community, there will be an additional consulting fee of $2,000 regardless of which of the two methodologies is employed. There will be no additional charges for expenses associated with this task. It is estimated that significant findings and recommendations will be available in draft for discussion with the City ninety days after the project commences. A draft report for review and comment should be available with 110 days and a final product delivered to the City 120 to 130 days after start of the project. A formal presentation to City Council can be scheduled at a mutually agreeable time. • Benefits to the City of Seal Beach The City of Seal Beach will receive significant benefit as a result of selecting Organizational Effectiveness Consulting for this important project. Some of these benefits include: ➢ The City will possess all the relevant information necessary to make appropriate changes in the Police Department's structure, staffing levels and mix of employee classifications. ➢ Minimum core services to meet the community's expectations will be defined and the benefits of enhanced service levels outlined. ➢ A formula for future staffing needs will be provided that accounts for actual workload, employee safety and proactive directed patrol policies Mr. John Bahorski November 28, 2003 City of Seal Beach page 7 > The City will benefit from the OEC project team's unique qualifications based on sixty years of consulting and law enforcement operational experience. > The City will benefit from OEC s commitment to personal and responsive - service with a guarantee that only the highest quality consultants identified in this proposal will provide services. In summary, as a result of selecting Organizational Effectiveness Consulting the critical questions will be answered, the City will possess all the information necessary to chart the future course for its police department, and the recommendations will be based on quality consulting practices and the professional expertise of the consulting team. * * * * * Again, thank you for considering Organizational Effectiveness Consulting to assist the City of Seal Beach in this most important assignment. If you have any questions or require further information, please contact me at (805) 933 -9723. I trust OEC will have the opportunity to be of service to you in the near future. Sincerely, Tom Esensten Attachments QUALIFICATIONS STATEMENT ORGANIZATIONAL EFFECTIVENESS CONSULTING Tom Esensten 11342 Sulphur Mountain Road Ojai, California 93023 (805) 933 -9723 DogRanr ii 3 @aoL com TOM ESENSTEN Tom Esensten has provided management consulting and training services to government and industry for over twenty -five years. He has assisted over 300 clients improve organizational and managerial performance through strategic planning, organization analysis, team building and executive training. He formed Organizational Effectiveness Consulting to provide highly responsive consulting services to the public sector. Tom is nationally recognized for his expertise in strategic planning in the public sector. He serves as an instructor and Course Manager for the California Commission on Peace Officer Standards and Training in Command College, an eighteen -month program for law enforcement executives focusing on futures, leadership, organization change and strategic planning. He provides similar training for the Florida Department of Law Enforcement. Tom has assisted a number of agencies to develop strategic plans, including the Ontario Police Department, Corona Police Department, Monterey Park Police Department, Los Angeles Police Department, Anaheim Police Department and the San Bernardino Sheriff's Department. Tom has assisted many clients in the area of team building, both through design and facilitation of retreats as well as ongoing consultation and support. These efforts have supported strategic planning, annual goal setting, rightsizing, reorganization and new executives from outside the agency. Clients include the City of Corona, American Red Cross, Fremont Police Department, California Department of Justice, California Department of Motor Vehicles, Hughes Aircraft Company, Alameda Police Department and the Los Angeles Sheriffs Department. Tom is certified by the California Commission on Peace Officer Standards and Training as a team building workshop facilitator. Tom has conducted a variety of organization studies directed at issues such as policy and procedure review, organization climate, customer satisfaction, organization structure and span of control, efficient use of resources and managerial performance. Types of agencies that have benefited from his assistance include law enforcement agencies, housing authorities, state health departments, cities, water districts and nonprofit organizations. • Tom has personally trained over 15,000 supervisors, managers and executives in a variety of skill areas. Programs ranging from four hours to five days address critical areas such as leadership, managing and implementing successful change, conflict resolution and communications skills, managing employee performance and strategic planning. Program participants represent a broad mix of industries including aerospace, health care, elected officials, county and city government, law enforcement, retailing, manufacturing, public works and information system service providers. Prior to the formation of Organizational Effectiveness Consulting, Tom held several key positions in organizations. He was a Director with The Warner Group, a firm specializing in information and communication systems for the public sector. He was with the corporate offices of Hughes Aircraft Company where he was responsible for company -wide training for 12,000 technical and business managers and executives. He was with the University of Southern California as Program Manager of the Criminal Justice Training Center and Project Director of the Criminal Justice Technical Assistance Resource Center. Tom holds Bachelors and Masters degrees in Public Administration from the University of Southern California, and an MBA from the University of California at Los Angeles. STRATEGIC PLANNING Organizational Effectiveness Consulting (OEC) is one of the leading consulting firms in strategic planning for government. We assistg clients make the right decisions today in prepa- ration for tomorrow. OECs strategic planning process moves the client through a sequence of analysis and decision making. This approach provides opportunity for input from staff, management, elected officials and customers, resulting in broad -based commitment to long term direction and priorities. OECs strategic planning services are responsive to the clients needs. OEC can: > Tailor a strategic planning process to the unique needs of the organization > Facilitate planning retreats and meetings that bring key decision makers together to build commitment > Train managers and planning staff as to purpose, process, tasks, and roles and responsibilities for strategic planning > Provide technical support on individual planning tasks D. Conduct independent analysis of the organization's performance, including customer satisfaction > Monitor the planning process for quality and schedule ➢ Review and critique interim and final products OECs role throughout the process is to provide assistance and facilitation that promotes the client's ownership of the outcomes and results in quality decisions. • TEAM BUILDING High performance management teams are essential for organizations to successfully address complex issues. Purposeful intervention is required at key times for a team, including: when a major organization change in direction or structure is going to occur; when there has been a turnover in team membership, particularly if there is a new executive; or when interpersonal relationships among team members are adversely impacting performance. Organizational Effectiveness Consulting (OEC) has the background and experience to design and facilitate successful team intervention strategies. A variety of team building services are available. OEC can: ➢ Conduct confidential interviews with team members to clearly define issues and concerns > Design and facilitate off -site retreats and provide summary reports of decisions and outcomes ➢ Provide individual team members with counseling and feedback on development issues ➢ Support ongoing team development through monitoring of team performance Team building activities are directed at achieving clearly defined objectives developed in concert with the client. OEC is certified by the California Commission on Peace Officer Standards and Training to provide team building workshops for law enforcement agencies. These workshops are covered under the POST cost reimbursement plan. ORGANIZATION ANALYSIS At times organizations can benefit from independent and objective analysis. Organizational Effectiveness Consulting (OEC) conducts independent analysis that results in practical recommendations directed at solving problems and enhancing organizational effectiveness. OECs key to success is a close working relationship with the client and a thorough under- standing of the organization. OEC can conduct a wide range of organization studies to: > Assess employee attitudes and morale and identify key issues that require management" intervention > Evaluate the organization's structure with recommendations to improve efficiency and managerial oversight > Measure customer satisfaction with existing services and identify opportunities to provide new services > Review management performance with recommendations for improvement A variety of analysis approaches are used to ensure quality results. Some methods used are individual interviews, focus group sessions, telephone surveys, employee surveys, document review, direct observation of processes and service delivery, and comparative assessment of similar organizations. OEC stays in close contact with the client, providing frequent written and informal progress reports and feedback. MANAGEMENT DEVELOPMENT One of the most important investment any organization can make is to ensure that present and future members of management are fully trained in all aspects of their roles and responsibili- ties. Organizational Effectiveness Consulting (OEC) has experience in all aspects of management development and can: > Assess present skill levels of management personnel . > Identify the organization's future management performance requirements ➢ Develop new performance appraisal approaches for management ➢ Design and conduct peer evaluation processes for promotion and development purposes > Deliver a variety of training programs tailored to the client's requirements and the audience's needs Job relevancy and application are the driving force behind training programs offered by OEC. Every effort is made to learn about the organization, its operating environment and culture, and the performance expectations for management. Some programs that have been delivered are: > Leading Successful Organizations D Planning and Implementing Change D Leadership Assessment Survey Program D Supervision: Roles and Responsibilities D Management Performance Workshops: Skills and Applications D Problem Solving and Decision D Strategic Planning These programs range from four hours to five days in length. The delivery format can be adapted to minimize disruption in the organization's operations. AN RXTROR1)INARY TRAINING PROGRAM Surviving Hell: Leadership Lessons for Tough Times On November 22, 1950, U.S. Army Captain Sidney Esensten M.D. was captured by the communistChinese army in the village of Unsan, 50 kilometers north of Pyongyang, the North Korean capital. He walked across the bridge to freedom at Panmunjon on September 3, 1953. Of the 7,900 American soldiers captured throughout the war, 38% died at the hands of their captors. 75% of those captured early in the war, like Captain Esensten, died. Less than 1% of these deaths were a result of wounds received on the battlefield. 3,000 Americans died as a result of the purposeful infliction of disease, malnutrition and torture by the enemy. This is not a story of an individual, but of collective survival. Lessons of vital importance to organizations facing tough times will be gleaned. What can organizations learn from 21 men sharing a 7x7 foot room for sleeping quarters? What can organizations learn from men who gave up their boots so that the metal supports could be fashioned into scalpels to perform amputations? What can organizations learn from men, not yet twenty years old, choosing to die while older men lived? What lessons can be learned about values, practices and expectations that need to be established to ensure that your organization can make it through tough times? Filled with humor and graphic descriptions of POW life, this presentation will make you cry and laugh simultaneously. While this story is full of despair and misery, it is really about hope — the hope of the individual and collective human spirits to survive and triumph in the darkest and toughest of times. Can be delivered between one and a half and four hours, depending on interest Organizational Effectiveness Consulting - Partial Client List ❑ Comm. on Peace Officer ❑ Florida Dept. of Law ❑ Corona Police Department Standards and Training Enforcement ❑ CA Department of ❑ California State Police ❑ El Dorado Sheriff's Justice Department ❑ Ridgecrest Police ❑ Manteca Police ❑ Washington State Police Department Department ❑ Tracy Police Department ❑ Chula Vista Police ❑ Redlands Police Department Department ❑ Larimer CO Sheriffs ❑ Rohnert Park Department ❑ Chicago IL Police Department. of Public Safety Department. ❑ Orange County ❑ Los Angeles Police ❑ Metro -Dade FL Police Marshal's Department Department Department • ❑ San Gabriel Police ❑ La Verne Police ❑ South Pasadena Police Department. Department Department ❑ Port Hueneme Police ❑ Monterey Park Police ❑ Placer Sheriff's Department Department Department ❑ Covina Police ❑- San Bernardino Sheriffs ❑ San Bernardino Marshal's Department Department . Department ❑ Santa Paula Police ❑ Whittier Police ❑ Ontario Police Department Department Department ❑ Fremont Police ❑ Marin Sheriff's ❑ Walnut Creek Police Department Department Department • ❑ Ventura Sheriffs ❑ Florida State Capitol ❑ Oxnard Police Department Department Police ❑ Mariposa Sheriffs ❑ San Bernardino Probation ❑ Riverside Police Department Department - Department ❑ Ceres Police Department ❑ San Mateo Police ❑ Irvine Police Department Department ❑ Police Executive ❑ Alhambra Police ❑ Lakewood CO Police Research Forum Department Department ❑ San Marino Police ❑ Santa Barbara Police. ❑ Fairfield Police Department Department Department ❑ San Fernando Police ❑ Oceanside Police ❑ LA County Police Chiefs' Department Department Association ❑ Buena Park Police ❑ Azusa Police Department ❑ Pasadena Police Department Department ❑ Fontana Police ❑ Anaheim Police ❑ California Police Chiefs' Department Department Association