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24- Crime Fighting Strategic Plan
SAP 7.r .. T - , ERNARDINO 300 NORTH"D"STREET, SAN BERNARDINO, CALIFORNIA 92418 v C01ply June 21, 1996 The Honorable Mayor and Common Council City of San Bernardino 300 North "D" Street San Bernardino, CA 92418 Dear Mayor Minor and members of the Common Council: As the members of the Steering Committee we are pleased to forward San Bernardino's Crime Fighting Strategic Plan. This plan represents what we believe to be San Bernardino's first ever effort to identify community-wide concerns related to crime and to engage the community in addressing those issues. More than 500 people participated in the development of crime fighting strategies through focus groups and community forums open to all city residents. Over the past eleven months, the Steering Committee devoted hundreds of hours to this task. In addition to presenting strategies for fighting crime itself, this document addresses four critical issues that are integral to San Bernardino's crime problem: blight, image, employment, and education. Strategies contained herein were developed by the community at large as well as Steering Committee members. It was the goal of the committee to focus on strategies that could be accomplished locally and within a few years. Resources, timelines and persons responsible for implementation are not identified here. Those will be incorporated into an implementation plan that the Steering Committee will initiate as phase two of this process. We encourage your support of this document in its entirety. We are absolutely certain that the solution to San Bernardino's crime problem lies in community involvement. Each and every strategy was formulated with our mission statement in mind: "Enlist the participation of the total community to steadily and significantly reduce crime in San Bernardino" . We were pleased with the willingness of those attending community meetings to step forward and become part of the solution. Our hope is to keep that momentum going. PRIDE 4Q IN PROGR SS Ltr. to Mayor and Council Crime Fighting Strategic Plan Page 2 It is recognized that the Crime Fighting Strategic Plan may be on the same agenda as the proposed ballot measure creating a parcel tax to pay for adequate staffing to achieve 33% proactive patrol time. We are taking this opportunity to convey our endorsement of the ballot measure and to pledge our support toward obtaining voter approval. Thank you for your patience in awaiting the completion of the Crime Fighting Strategic Plan. We are available to answer any questions. Sincerely, o cil n Jerry Devlin Rabbi Hillel Cohn r � djr ' on Fite a pi Ifam Citizen SE nYied School District Catherine Meister rry Q iel Reyes "Rocket" Rios Ed Switzer Citizen ICUC C � ;4& M D-4 S Calvin M. White Carl Clemons Principal, Martin Luther Police Commissioner King School �,... Ltr. to the Mayor and Council Crime-Fighting Strategic Plan Page 3 im Hackelman Lee 6ean District Attorney's Office Chief of Police W e Ha Lieut nt Steve arvis Assistant Chief of Police SBPD I-IN Lieutenant Frank Mankin Lieutenant Dave Snell SBPD SBPD 2?11/AA�2 hauna Clark Botr Botts City Administrator Economic Development Agency City of San Bernardino Crime-Fighting Strategic Plan July 1, 1996 Introduction Situational Analysis In many areas, the community has begun to effectively address San Bernardino's According to FBI crime statistics, violent challenges. Recent statistics show that crime in San Bernardino has increased to violent crime is declining. Jobs have be- six times the level it was 25 years ago. gun to return to the area, and property val- The number of murders and aggravated ues have stabilized. assaults is nine times what it was in 1975. Among California's largest cities, including Still, the future is unclear. Sociologists are Los Angeles and San Francisco, San predicting a new rise in violent crime in Bernardino has the most violent crime per the coming years, as the largest number of capita. children since the Baby Boom reaches its teenage years. As with all criminal activi- Besides these increases in crime, the city ty, our community will only be able to has also had to face some significant eco- reduce its crime rate through a comprehen- nomic struggles. The city was hit by the sive and cohesive effort of all the citizens recession that all of California has suffered of San Bernardino. The purpose of this through. San Bernardino has also had to strategic plan is to provide a mechanism to face the closure of Norton Air Force Base accomplish that goal. and the subsequent loss of 10,000 jobs. MethodoloU California's real estate boom of the 1980's never quite reached San Bernardino. In- The direction to develop the Crime Fight- stead, those who bought property hoping to ing Strategic Plan was given in the spring make a return on their investment were left of 1995. Soon after, the Steering Commit- holding properties worth less than they tee was assembled to undertake this task. paid. With no economic incentives for The Steering Committee consists of civic owners to make improvements, the city's and business leaders, City officials, police aging housing stock and commercial build- officers, and representatives from other ings began to deteriorate. More than half local agencies. of all homes became rentals; many proper- ties were simply abandoned. Commercial In July of 1995, Dr. Brian Watts and Dr. areas also suffered from neglect as busi- Guenther Kress, both of Cal State San nesses moved out to more prosperous re- Bernardino, conducted an all-day training gions. session designed to familiarize the commit- tee members with the strategic planning These serious problems have combined to process. The committee then formulated produce a negative perception of San its vision and mission statements, which Bernardino. The perception is not only became the guiding principles in the for- held by those living in neighboring com- mulation of the plan. munities, but also by city residents them- selves. This poor image has only wors- With vision and mission statements to ened the city's problems. drive the process, task forces were created by the Steering Committee. These task Crime-Fighting Strategic Plan Page 2 forces met with groups of residents, service Findings clubs, and businesses throughout the city to gather input regarding the most critical As discussed previously, the Steering Com- crime issues in the eyes of the community. mittee created three Task Forces that were Participants completed surveys designed to responsible for the research phase of the gauge their opinions about various issues. Strategic Plan. These groups consisted of In addition to these task force meetings, the three police area commanders, numer- two community forums were held to give ous police officers from different divisions the entire community an opportunity to of the Police Department, and a communi- provide input. ty member. Over a three month period, the Task Forces met with numerous groups Once the survey and data gathering pro- representing a cross-section of the city cesses were completed, the survey results (Appendix A). These groups included citi- were shared with the entire Steering Com- zens from specific geographical neighbor- mittee. The committee then selected the hood groups, business organizations (both five most critical issues related to crime, localized and city-wide), groups of parents and developed strategies for managing and from specific schools, senior citizen alleviating them. These issue identification groups, ethnic organizations, youth organi- and strategy development processes took zations, and service clubs. almost six months. The Task Forces used a technique called The final result of this process is this SWOT analysis to gather information from Crime-Fighting Strategic Plan. Measure- these groups. The residents present shared ment of performance is essential to all what "Strengths", "Weaknesses", "Opportu- strategies; implementation of measurements nities", and "Threats" they thought were is essential. In all areas, there must be relevant to the community. After analyz- cooperative efforts between the City, ing these categories, the groups would then courts, schools, families, businesses, and state specific strategies that could be used others. The Steering Committee is confi- to address the weakness and threats identi- dent that if implemented, this plan will fied, and also bolster and enhance the city's reduce crime in the City of San strengths and opportunities. Bernardino. A number of issues emerged from these The next step of the Steering Committee meetings; many were mentioned over and will be to develop an implementation plan. over again. The main issues that the citi- The implementation plan will detail who is zens identified as critical to fighting crime responsible for carrying out each strategy, were: when the strategy will be started and com- pleted, and how performance will be mea- 1. Drugs, gangs, and crime in general sured. 2. Blight control and eradication 3. Economic development and job Crime-Fighting Strategic Plan Page 3 4. Civic pride; community unity through better communication 5. Educational opportunities In addition to the SWOT analysis, focus group participants also completed a survey. A copy of the survey and the results are included as Appendix B. Vision Statement The committee's vision sees the San Bernardino of the future as: "A safe, vibrant, economically sound and unified community where re e eo l proud to live and work. " p p Mission Statement The mission of the Strategic Plan is to: "Enlist the participation of the total community to steadily and significantly reduce crime in San Bernardino. " a 9 a Crime-Fighting Strategic Plan Page 4 Critical Issue: Blight Those who participated in the focus groups 2. Leverage community volunteerism indicated that as a critical issue, blight is through continued support and funding of second only to crime itself, and is often the Voluntary Code Education Program viewed as a root cause of crime. It is an accepted principle of law enforcement that 3. Improve code enforcement respon- criminal activity is less likely to occur in siveness and effectiveness through consoli- well-maintained neighborhoods and com- dation and designation as an essential city mercial areas. service with funding priority Owner occupants, who have a vested inter- 4. Support the use of CDBG block grant est and a sense of community, are most funds to increase code enforcement levels likely to maintain properties and reinvest in their neighborhoods. This too has a posi- 5. Use CDBG and HOME funds to in- tive impact on property values, as well as crease the number of police officers own- helping small businesses that serve neigh- ing homes in the city borhoods. In San Bernardino, over 50% of housing units are rentals. Many of the 6. Continue funding free dump days following strategies are designed to pro- mote home ownership, which will reduce 7. Establish neighborhood pride programs the number of rental properties. 8. Work with the U.S. Department of Generally, participants placed blight into Housing and Urban Development (HUD) two broad categories. Blighted housing to encourage faster rehabilitation or abate- was considered the first priority, followed ment of houses which have been foreclosed by blighted commercial areas. Within the upon by HUD category of blighted housing, participants also named as concerns the excessive sup- 9. Develop a program aimed at young i ply of rental housing and the loss of neigh- children to educate them on the impacts of borhood identity. blight in the community. The program will help children understand the impor- tance of having pride in the way their 1. Goal: Stabilize neighborhoods to im- neighborhood looks prove safety, appearance, and property val- ues 10. Continue funding of the Graffiti Abatement Program, which uses gang Strategies: members to remove graffiti 1. Continue the use of 20% set-aside mon- ey to fund the Rental Housing Inspection 11. Encourage the start-up of business and Program at the current or higher staffing neighborhood associations where none ex- level ist Crime-Fighting Strategic Plan Page 5 2. Goal: Reduce the supply of rental hous- commercial properties ing 2. Continue funding the Voluntary Code r t : Education program to assist business asso- l. Discontinue use of EDA funds for de- ciations velopment and (in some cases) rehabilita- tion of multi-family units 3. Promote stricter enforcement of sign codes, recognizing that signs in particular 2. Limit EDA mortgage assistance loans can contribute to positive appearance or to owner-occupants blight 3. Offer EDA grants (80% funds/bond 4. Study ways to mitigate the negative proceeds) to encourage demolition of dete- impacts of thrift stores, check cashing busi- riorated multi-family units nesses, 99 cent stores, used furniture stores, and the outdoor display of merchan- 4. Support EDA housing revitalization dise funding but limit it to owner-occupants 5. Develop strategies with HUD regard- ing foreclosures so that HUD home pur- chase loan eligibility is limited to owner-occupants 6. Continue the Landlord Training and Certification program, which has success- fully reduced calls for service in rental units 7. Provide incentives for well-managed properties, as well as disincentives for poorly-managed properties, such as addi- tional service fees, increased business reg- istration tax and fees for repeated calls for police services, fire services, and code en- forcement inspections 3. Goal: Improve the appearance and eco- nomic stability of commercial areas. Strategies: 1. Increase the amount of funding allocat- ed annually to board up and to demolish Crime-Fighting Strategic Plan Page 6 Critical Issue: Employment In the last several years, the City of San 1. Goal: Rebuild the city's manufacturing Bernardino has suffered through the loss of and industrial job base the Kaiser Steel Mill, Santa Fe Railroad repair facilities, and reductions in defense Strategies: spending. The most devastating blow was 1. Support and work on the implementa- the closure of Norton Air Force Base and tion of the new Economic Strategic Plan the resulting loss of 10,000 military and that was adopted by the City Coun- civilian jobs. Because of these and other cil/Community Development Commission factors, unemployment in San Bernardino in November of 1995 (Appendix C) is high, and 36% of City residents receive some form of public assistance. 2. Support the expansion of the Economic Development Agency's business retention, Historically, San Bernardino has not had a industrial recruitment, and international large manufacturing or industrial base. trade programs and activities With the closure of Norton, the city's ma- jor economic engine was shut down. Until 3. Support and expand the Early Alert roughly 11,000 manufacturing Retention Support (EARS) program. This or industrial jobs are replaced, unemploy- program helps to retain existing businesses ment will continue to be a major problem. in the city Unemployment has been linked to econom- 4. Support and expand the Route 66 Ren- ic crimes such as burglary and robbery by dezvous as one of the city's premier tourist many researchers. When individuals have events no other means, some turn to crime to sup- port themselves. By providing employ- 5. Continue participation in the Inland ment opportunities and training for citi- Empire Marketing Project. This partner- zens, the community is actually eliminating ship with 26 other area cities is now work- one of the causes of crime. ing to attract industry into the region The community shares this belief that the 6. Continue the EDA's marketing and ad- lack of jobs is an important contributing vertising programs designed to bring in factor to crime. This belief was reflected new industrial and manufacturing compa- in both the verbal comments received and nies the survey data. These goals and strategies are designed to bring good jobs back into 7. Expand the Small Business Develop- the community, which the Committee be- ment Center. The center provides counsel- lieves will help to reduce crime. ing to small businesses on such topics as starting a business, developing a business plan, and marketing Crime-Fighting Strategic Plan Page 7 8. Support and consider the expansion of the business incubator project underway at the SBIAA 10. Develop and implement programs that promote international trade and exporting 2. Goal: Enhance employment training oppoitunities rt i 1. Continue EDA's partnership with the San Bernardino Employment and Training Agency (SBETA) to assist in training and retraining workers for potential employ- ment 2. Continue EDA's Employment Linkage Program with SBETA and use it as part of the agency's assistance package for indus- trial development. Under this program, if a company fits the Economic Strategic Plan, it receives a cash bonus for every new employee it hires through the program if the company retains the employee for at least one year 3. Encourage partnerships with other sources of training, including local colleg- es, universities, ROP programs, and the Private Industry Council Crime-Fighting Strategic Plan Page 8 Critical Issue: Criminal Activity The community is most concerned about with the state Parole Board and legislative drug use, gangs, youth violence, and do- officials to monitor and track the place- mestic violence. For the purposes of strat- ment of parolees in San Bernardino egy development, these activities have been combined into the single critical issue 5. Reduce juvenile drug use as part of an of crime. Because these problems are so at-risk youth program by using prevention inter-related, many of the following goals and diversion techniques and strategies also overlap one another. 6. Explore the possibility of starting a Please note that some of these strategies drug court for juveniles much like the ex- support the use of a process called an "ini- isting County drug court tiative". In this process, employees from throughout the Police Department are brought together to form a steering com- 2. Goal: Reduce the amount of youth vio- mittee which examines certain operational lence and gang activity issues and/or crime problems. The com- mittee then develops innovative solutions Strategies: and makes recommendations to the Chief 1. Continue the Police Department's nine of Police. member Anti-Gang unit 1. Goal: Reduce the use and sale of illegal 2. Expand the current program of drugs through enforcement and prevention anti-gang education, which is being con- techniques ducted in the San Bernardino City Unified School District Strategies: 1. Use the methods developed through 3. Enhance the enforcement of curfew the Violent Crime/Gangs/Narcotics Initia- laws during the summer months tive to reduce crimes designated by the FBI as Part 1 offenses. These include 4. Begin a training and implementation murder, robbery, rape, and aggravated as- program with the school police to coordi- sault nate the enforcement of the city's daytime truancy ordinance 2. Target efforts towards enforcing laws regarding street and residential drug sales 5. Use the initiative process within the Police Department to develop an at-risk 3. Use a "zero tolerance" approach to youth program employing the following enforce the laws against under the influ- tasks: ence offenses Task l: Explore the potential of 4. Develop an ongoing cooperative effort using conflict resolution curricu- Crime-Fighting Strategic Plan Page 9 lum in the schools that will help and use successful ideas to improve San prevent and deter youth violence Bernardino's program Task 2: Identify and address risk factors for both individuals and 4. Goal: Make better use of police re- families sources by taking steps to reduce or elimi- nate the causes of continued drain on po- Task 3: Develop the cooperation lice services between families, schools, govern- ment, social, and community re- Strategies: sources that is needed to make the 1. Encourage more property owners and program successful managers to become involved in the Crime-Free Rental Housing Program Task 4: Work with County proba- tion and juvenile courts to develop 2. Designate officers from each area com- progressive sentencing/treatment mand to assist with the Crime-Free Rental that becomes more serious with Housing Program each additional crime committed by an individual 3. Implement a "Safe Streets Now" pro- gram. This program equips residents to file for small claims judgements against 3. Goal: Reduce the amount of domestic people in their neighborhood who sell violence drugs or engage in other crimes. Strategies: 4. Use the initiative process within the 1. Develop a training bulletin for officers Police Department to develop additional that covers laws, department policies, ways to reduce chronic drains on police intervention, local victims' assistance, etc., services and distribute the bulletin at Police Depart- ment in-service training sessions 5. Goal: Create a more involved, responsi- 2. Use community-based resources to as- ble community by strengthening communi- sist the victims of domestic violence, and ty partnerships and delivering pmgrams provide training for prevention that create involvement in pmblem solving and crime prevention 3. Make the department's Violent Crime Initiative responsible for the development Strategies: of a domestic violence reduction program 1. Use the Police Department's Problem Solving Initiative Committee to develop 4. Study other cities with effective do- ways to enhance and strengthen community mestic violence enforcement and preven- involvement tion programs, Crime-Fighting Strategic Plan Page 10 2. Examine the possibility of decentraliz- 4. Develop performance measurement ing the Neighborhood Watch program so systems that can measure the effectiveness that it is operated by each area command and efficiency of individual programs on reducing calls for service, crime rates, etc. 3. Increase citizens' awareness of com- munity crime prevention information and 5. Continue the new leadership develop- programs ment programs established by the Chief of Police 4. Develop methods for tracking citizen involvement in neighborhood problem 6. Ensure that training for management solving efforts and supervisors is consistent with commu- nity policing goals, and that personnel are 5. Use annual community surveys to de- clear on their roles and skilled at applying termi.ne community needs. This informa- community policing techniques tion can then be used to remain responsive to community priorities 7. Implement strategies to shift from a process-based management structure to an 6. Strengthen the Citizens' Patrol program outcomes-based management structure 8. Where practical, integrate the problem NWAPII 6. Goal: Develop a clear, well-defined solving approach to regular patrol work on process that will allow the Police Depart- all shifts went: to address the challenges to public safety, now and in the future 1. Endorse the community policing model and "initiative management" structure set forth in the Police Department's Organiza- tional Prospectus of June 1996 (Appendix D) 2. Use the "initiative" concept set forth in the Police Department's Organizational Prospectus 3. Develop a comprehensive evaluation system that includes the use of community-based performance measures. This system will allow the city to track and report the results of community policing efforts. Crime-Fighting Strategic Plan Page 11 Critical Issue: Education Education was identified as one of the top for high school students. The Plan will critical issues by participants in the com- give each student the chance to select an munity forums, as well as by the Steering employment area that is "in demand" for Committee members themselves. By pro- the purposes of learning skills and planning viding better educational opportunities for for a career children, youth, and adults, our community can hopefully help to prevent future crimi- 2. Provide on- and off-campus work nal activity and attract businesses, thus experience for high school students in the providing jobs. area of their selected career Education does this by making people 3. Sponsor employer/student shadowing more prepared for employment. By provid- opportunities to introduce students to suc- ing a strong academic background, voca- cessful mentors in the community tional training, and work experience, schools can prepare their students for jobs in the future. In the long run, this helps to 2. Goal: Provide a variety of after-school lower unemployment and programs designed to meet the needs and raise personal income levels in the commu- interests of the city's diverse population nity. Strategies: Many of these strategies will require the 1. Find new ways to transport students cooperation of law enforcement, city offi- from school to home so that students can cials, the District Attorney's Office, reli- participate in after-school programs gious organizations, business community, and other members of 2. Engage community agencies to provide the community. Parents are particularly on-campus after-school programs important in helping to achieve these goals. It is the belief of the Steering Committee that with the support of all these groups, 3. Goal: Sponsor educational programs, these strategies will be effective in prevent- campaigns, and events aimed at improving ing and reducing crime in San Bernardino. the self-esteem of students and promoting effective woddsocial relationships, healthy 1. Goal: Increase opportunities for stu- lifestyles, and drug- and alcohol-free envi- dents to receive vocational training and ronments work experience, and to become acquainted with mentors who have highly marketable Strategy: sldlls 1. Coordinate district- and city-wide com- mittee and organizational efforts dedicated Strategies: to promoting healthy lifestyles for students 1. Encourage a Career Development Plan Crime-Fighting Strategic Plan Page 12 4. Goal: Enhance school safety plans through city police, school, police, com- munity, and school staff partneiships Strategies: 1. Review school safety plans to deter- mine the level of effectiveness and coordi- nation, target areas where additional sup- port is needed, and project roles for school and city law enforcement 2. Improve city police and school district coordination by providing liaisons from the school district to the police department, and fi-om the police department to the school district 5. Goal: Involve parents in implementing the Strategic Plan strategies 1. Provide training, neighborhood meet- ings, and ongoing educational certificate programs for parents 2. Use school-based parent organizations to host/sponsor neighborhood and commu- nity efforts dedicated to the five critical issues Crime-Fighting Strategic Plan Page 13 Cfi ical Issue: Image Making national headlines, San Bernardino 1. Goal: Communicate a positive image to has been in the media for high crime, high city residents, the rest of southern Califor- welfare rates, blight problems, and other nia, and the nation issues. Many residents have a negative perception of their city. Strategies: 1. Support the use of public relations A negative image can and does have a professionals to assist in the development significant influence in other areas. A new and implementation of a comprehensive business considering moving to San campaign to improve the image of San Bernardino might think twice after reading Bernardino an article in the Los Angeles Times about high crime, welfare, and blight. If the city 2. Support the use of public relations is unable to attract and retain businesses, professionals to improve day to day media then employment will suffer and crime will relations increase. Property values are also hurt when individuals and businesses choose to 3. Use research to identify target audienc- buy property in surrounding areas because es, and market the city's assets to those of the city's negative image. audiences There is also a "perception versus reality" 4. Continue the Economic Development problem in San Bernardino, which adds to Communications Council (EDCC). Use the negative image. For example, there is the EDCC as unified force to promote the a perception that crime is increasing, when city in fact crime decreased in 1995. Informing residents and outside communities about realities such as this will help to build a more positive image. The more informed people are, the more their perceptions will coincide with reality. Research conducted for this Strategic Plan showed that the community is very con- cerned about San Bernardino's negative image, and wants to see action taken to promote a more positive image of the city. Appendix A Crime-Fighting Strategic Plan Community Meetings Date Group/Location Attendance 11/'9 Waterman Gardens residents 25 11/8 Del Rosa Neighborhood 16 Improvement Assoc. 11/8 Arden/Guthrie - Emmerton 35 11/14 Project 11/14 Citizens' Patrol/ 37 Neighborhood Watch 11/15 Mt. Vernon Elementary parents 17 and teachers 11/16 Del Rosa Neighborhood 12 Action Group 11/16 Burbank School parents 9 11/20 Westside Action Group 13 11/20 San Bernardino Board 11 of Realtors 11/28 Highland Ave. Area 34 Business Association 11/28 Chamber of Commerce/SCAT 27 11/28 Lincoln Elementary 15 11/29 Alessandro Elementary parents 23 12/6 Perris Hill Sr. Center 33 12/6 Greater San Bernardino 9 Kiwanis 12/7 Baseline Area Business 19 Association 1/11 Pacific High Auditorium - 18 Strategic Plan Public Forum 1/16 SB Community Against Drugs 31 Crime-Fighting Strategic Plan Community Meetings Page 2 2/8 North End Neighborhood Assoc. 6 2/12 Victoria School neighborhood 11 Feb. Temple Emanu E1 Public Forum ** Feb. Public Enterprise Center Public ** Forum Feb. Sr. Companion program ** TOTAL ATTENDANCE: 401 TOTAL SURVEYS: 384 **Attendance figures for these forums are not available. 17 1 Appendix B SURVEY - SAN BERNARDINO COMMUNITY STRATEGIC PLAN FOR FIGHTING CRIME By completing this survey you will assist city leaders in making decisions on allocating services. Your survey will be kept confidential.When complete, please fold in thirds and deposit in survey box provided. Date: Meeting place: 1. Please check all that apply. San Bernardino: a. homeowner b.business owner c.renter d.rental property owner e.rental property manager 2. Please indicate nearest cross streets to home and/or business 3. a. Are you a San Bernardino resident? yes no b. Do you own property in the City? yes no 4. Please rate your level of concern regarding each of the following crimes in your neighborhood or near your business. (Circle one for each) 1. Not concerned 2. Somewhat concerned 3. Very concerned a. Burglary 1 2 3 i. Panhandling 1 2 3 b. Vandalism 1 2 3 j . Graffiti 1 2 3 c. Auto theft 1 2 3 k. Robbery 1 2 3 d. Auto break ins 1 2 3 1. Drug sales/use 1 2 3 e. Carjacking 1 2 3 m. Homicide/murder 1 2 3 f. Gang activity 1 2 3 n. Family violence 1 2 3 g. Rape/sex crimes 1 2 3 o. Public urination/ h. Prostitution 1 2 3 defecation 1 2 3 p. Other 1 2 3 5. From the list above, please rank your three highest concerns (fill in the appropriate letter) : 1. 2. 3. 6. Please rate the following in terms of factors that you feel contribute to crime in San Bernardino. (Circle one for each) 1. No effect 2. Contributing factor 3. Major cause of crime a. Blight/property decay 1 2 3 k. Age of residents 1 2 3 b. Lack of jobs 1 2 3 1. Gangs 1 2 3 c. Lack of job training 1 2 3 m. Truancy 1 2 3 d. Not enough police 1 2 3 n. Drop out rate 1 2 3 e. Court system policies 1 2 3 o. Drug sales/use 1 2 3 f. School system quality 1 2 3 p. Too many guns 1 2 3 g. Cultural differences 1 2 3 q. Rental housing 1 2 3 h. Violence in media 1 2 3 r. Homelessness 1 2 3 i. Parolees released into s. Others the community 1 2 3 j. Breakdown of family unit/values 1 2 3 7. From the list above, please rank the three factors you think are the most important causes of crime (fill in the appropriate letter) : 1. 2. 3. S. It is generally acknowledged that San Bernardino has a negative image. How much, if at all, do any of the following contribute to this image? 1. Not a factor 2. Contributing factor 3. Major factor a. Local press coverage 1 2 3 b. City Hall political controversy 1 2 3 C. Vacant commercial lots/buildings 1 2 3 d. Blighted neighborhoods 1 2 3 e. Appearance of Downtown area 1 2 3 f. Transients/loitering/homeless 1 2 3 g. Cleanliness/condition of streets 1 2 3 h. Lack of community pride/spirit 1 2 3 i. Graffiti 1 2 3 j. Crime 1 2 3 k. Others: 1 2 3 (Please turn over...) 9. From the list above, please rank the three factors you think contribute the most to the City's negative image (fill in the appropriate letter) : 1. 2. 3. 10. A tax of $65 for each parcel of land in San Bernardino is in effect. Funds derived from this tax have created civilian and sworn positions to increase police presence by approximately 65 positions, the equivalent of 11 officers per shift. a. Do you support the existing tax? Yes No b. Would you pay an additional annual tax to further increase police staffing levels? Yes No C. If yes, what is the most you would pay (choose one) : $150 (30 officers) $125 (25 officers) $100 (20 officers) $ 75 (15 officers) $ 50 (10 officers) $ 25 (5 officers) 11. Code officers enforce property maintenance standards, and are funded through taxes and charges to property owners. The amounts recovered from property owners do not, by law, cover all costs of code enforcement. a. Would you pay additional taxes for code enforcement? Yes No b. If yes, what is the most you would be willing to pay annually for additional code enforcement? Example: $150 annually per parcel would add approx. 75 code officers on a 40 hour week, which would increase code enforcement strength from 10 officers to 85. $150 (75 officers) $125 (62 officers) $100 (50 officers) $75 (37 officers) $ 50 (25 officers) $25 (12 officers) 12. Which, if any, of the following would you be willing to do to help reduce crime in San Bernardino? a. Support crime prevention even if it means a slower response to non-emergency calls for service b. Volunteer for citizen's patrol c. Join neighborhood watch d. Volunteer for community clean-up/graffiti removal e. Become a reserve police officer f. Become a volunteer code enforcement officer g. Serve on a youth accountability board h. Other: 13. Please use the following space to provide comments and suggestions (attach additional sheets if necessary) . Any feedback on today's meeting would greatly assist us in the planning of future community meetings. OPTIONAL INFORMATION 14. The remainder of this survey is optional. Filling out all or any part of the following will assist the city in profiling you as a survey participant and in allocating services to your particular area and needs. Age: _ Gender: Occupation: Name: Phone: Address: Sector in which you live or work (circle one from map) 1 2 3 4 5 6 Encuesta - Plan Estrategico Para la Lucha Contra el Crimen de la Comunidad de San Bernardino Al completar esta encuesta usted asistira a los lideres de la ciudad a decidir como distribuir servicios. Su encuesta sera confidential. Cuando este completa, por favor doblela en tercias y depositela en la caja de encuesta. Fecha: Lugar de reunion : 1. Marque todo to que aplique. San Bernardino: a.dueno de Casa b.dueno de negocio c.inquilino d.dueno de propiedad Para renta e.Gerente de propiedad de renta 2. Indique las calles mas cerca que cruzan su casa y/o su negocio 3. a. Es usted residente de San Bernardino? si no b. Es dueno de propiedad en la ciudad? si' no 4. Por favor evalue su nivel de preocupacion con respecto a cads uno de los siguientes crimenes en su vecindario o cerca de su negocio. (Circule cads uno) 1. No me preocupa 2. Me preocupa algo 3. Me preocupa mucho a. Robo de casa 1 2 3 i. Pordioseros 1 2 3 b. Vandalismo 1 2 3 j. Grafito 1 2 3 C. Robo de auto 1 2 3 k. Robo 1 2 3 d. Rompimiento de auto 1 2 3 1. Uso/yenta de drogas 1 2 3 e. Asalto de carros 1 2 3 m. Homicidio/asesinato 1 2 3 f. Actividad pandillera 1 2 3 n. Violencia familiar 1 2 3 g. Violation/ o. Urination/defecation 1 2 3 crimen sexual 1 2 3 en publico 1 2 3 h. Prostitution 1 2 3 p. Otro 1 2 3 5. De la lista de arriba, por favor clasifique sus tres mas altas preocupaciones (marque la letra apropiada) : 1. 2. 3. 6. Por favor evalue los siguientes, en terminos de factores que usted cree contribuyen al crimen en San Bernardino. (Circule uno por cads uno) 1. No tiene efecto 2. Factor contribuyente 3. Causa mayor de crimen a. Plaga/deterioro j . Quiebre de unidad de propiedad 1 2 3 familiar/valores 1 2 3 b. Falta de trabajos 1 2 3 k. Edad de residentes 1 2 3 C. Falta de entrenamiento 1. Pandillas 1 2 3 para trabajos 1 2 3 m. Briba 1 2 3 d. Falta de policia 1 2 3 n. No termino de escuela 1 2 3 e. Sistema judicial 1 2 3 o. Venta/uso de drogas 1 2 3 f. Calidad sistema escolar 1 2 3 p. Demasiadas pistolas 1 2 3 g. Diferencias culturales 1 2 3 q. Casas de renta 1 2 3 h. Violencia en la media 1 2 3 r. Gente sin casas 1 2 3 i. Convictos sueltos en la s. Otros comunidad 1 2 3 7. De la lista de arriba, por favor clasifique los tres factores que usted cree son los mas importantes causando crimen (marque la letra apropiada) : 1. 2. 3. 8. Generalmente, es reconocido que San Bernardino tiene una imagen negativa. Cuanta, si es asi, cuales de los siguientes contribuyen a esa imagen? 1. No es factor 2. Factor contribuyente 3. Factor mayor a. Periodismo local 1 2 3 b. Politica contraversial en el Ayuntamiento 1 2 3 C. Lotes/edificios comerciales vacantes 1 2 3 d. Vecindarios en desgracia 1 2 3 e. Apariencia del centro de la ciudad 1 2 3 f. Transientes/vagos/gente sin casa 1 2 3 g. Limpieza/condition de calles 1 2 3 h. Falta de orgullo/espiritu en la comunidad 1 2 3 i. Grafito 1 2 3 j. crimen 1 2 3 k. Otros: 1 2 3 (Por favor vea reverso...) 9. De la lista de arriba, por favor clasifique los tres factores que usted cree mas contribuyen a la imagen negativa de la ciudad (marque la letra apropiada) 1. 2. 3. 10. Un impuesto de $65 por cada lote de terreno en San Bernardino esta en efecto. Fondos derivados de este impuesto han creado posiciones civiles y juradas para aumentar presencia de la policia con aproximadamente 65 posiciones, el equivalente de 11 oficiales por turno. a. Usted apoya el presente impuesto? Si No b. Pagaria usted impuestos adicionales anuales para aumentar niveles de policia? Si No C. Si acuerda, cual seria to mas que pagaria usted (escoga una) : $150 (30 oficiales) $125 (25 oficiales) $100 (20 oficiales) $ 75 (15 oficiales) $ 50 (10 oficiales) $ 25 (5 oficiales) 11. Oficiales de Codigo imponen las normas Para el mantenimiento de propiedad y se les paga con los impuestos y cargos a los duenos de propiedad. Las cantidades recuperadas de los duenos de propiedad, por ley, no cubren todos los costos para imponer el codigo. a. Pagaria usted impuestos adicionales para imponer el codigo? Si No b. Si acuerda, cual seria to mas que pagaria usted anualmente para aumentar el cumplimiento del codigo? Ejemplo: $150 anualmente por cada lote de terreno anadaria aprox. 75 oficiales de codigo a 40 horas por semana, to cual aumentaria la fuerza para imponer el codigo de 10 oficiales a 85. $150 (75 oficiales) $125 (62 oficiales) $100 (50 oficiales) $75 (37 oficiales) $ 50 (25 oficiales) $25 (12 oficiales) 12. Cual, si alguno, de los siguientes estaria usted dispuesto a hacer para ayudar a reducir el crimen en San Bernardino? a. Apoyar prevencion de crimen aunque signifique reaccion mas lenta Para llamadas de servicio sin emergencia b. Voluntario para patrulla de ciudadanos c. Unirme a vigilancia de vecindario d. Voluntario para limpieza de grafito en la comunidad e. Hacerme oficial de reserva de la policia f. Harcerme voluntario como oficial de codigo g. servir en un consejo de responsabilidad juvenil h. Otro: 13. Por favor use el siguiente aspacio para proporcionar comentarios y sugerencias (agregue paginas adicionales si es necesario) . Cualquier reaccion de la junta de hoy nos ayudaria para planear futuras juntas en la comunidad. i INFORMACION OPCIONAL 14. E1 resto de esta encuesta es opcional. Indicando todo o cualquier parte de to siguiente asistira a la ciudad a darle un perfil de usted como participante en la encuesta y para distribuir servicios y necesidades a su area en particular. Edad: Sexo: Ocupacion: Nombre: Telefono: Direccion: Sector en donde vive o trabaja (circule uno en el mapa) : 1 2 3 4 5 6 San Bernardino Community Strategic Plan for Fighting Crime Preliminary Report 1 2,d JUN 19 9,6 . aer of ;surveys 384 Renters 75 19. 5313 Homeowners 212 55. 2083 % SB property owners 215 55.9896 Support additional police tax 238 61. 9792 Amount willing to pay $25 32 8 . 3333 $50 41 10. 6771 $75 25 6. 5104 % $100 35 9 . 1146 % $125 14 3 . 6458 % $150 89 23 . 1771 % Support code enforcement tax 211 54 . 9479 % Respondents under 25 27 7 . 0313 % Respondents over 50 124 32 .2917 % San Bernardino Community Strategic Plan for Fighting Crime Preliminary Report 2 2A JUN 1996 Jer of surveys 384 Crimes of three highest concern Burglary 107 27 . 8646 Vandalism 63 16. 4063 Auto theft 52 13 . 5417 Auto break ins 30 7 . 8125 % Carjacking 20 5. 2083 % Gang activity 190 49 . 4792 % Rape/sex crimes 33 8. 5938 Prostitution 15 3 . 9063 Panhandling 42 10. 9375 % Graffiti 66 17. 1875 % Robbery 60 15. 625 % Drug sales/use 172 44 .7917 % Homicide/murder 103 26. 8229 % Family violence 37 9 . 6354 Public urination/defecation 5 1. 3021 San Bernardino Community Strategic Plan for Fighting Crime Survey Question 1 Summary 2^ JUN 1996 San Bernardino homeowners 212 San Bernardino business owners 85 San Bernardino renters 75 San Bernardino rental property owners 56 San Bernardino rental property managers 21 Total number of surveys 384 San Bernardino Community Strategic Plan for Fighting Crime Survey Question 3 Summary 2d JUN 1996 Yes No NR San Bernardino residents 301 70 13 owners of property in the City 215 137 32 Total number of surveys 384 San Bernardino Community Strategic Plan for Fighting Crime Survey Question 4 Summary 24 JUN 1996 Level of concern for specific crimes Not Somewhat Very Concerned Concerned Concerned Burglary 26 81 243 Vandalism 33 81 236 Auto theft 31 93 220 Auto break ins 24 102 206 Carjacking 45 105 177 Gang activity 27 47 272 Rape/sex crimes 47 103 177 Prostitution 98 106 125 Panhandling 67 130 139 Graffiti 35 84 236 Robbery 31 65 243 Drug sales/use 31 43 277 Homicide/murder 38 67 232 Family violence 54 110 166 Public urination/defecation 75 112 122 Other 0 0 0 Total number of surveys 384 San Bernardino Community Strategic Plan for Fighting Crime Survey Question 5 Summary 2A JUN 1996 Ranking of crimes of concern in San Bernardino Highest 2nd Highest 3rd Highest Concern Concern Concern Burglary 53 28 26 Vandalism 19 20 25 Auto theft 7 27 18 Auto break ins 4 8 18 Carjacking 8 8 4 Gang activity 94 53 43 Rape/sex crimes 7 18 8 Prostitution 6 3 6 Panhandling 13 8 22 Graffiti 6 32 28 Robbery 10 24 26 Drug sales/use 64 63 45 Homicide/murder 36 28 39 Family violence 7 13 18 Public urination/defecation 1 0 4 Other 5 4 7 Total number of surveys 384 San Bernardino Community Strategic Plan for Fighting Crime Survey Question 7 Summary 2d JUN 1996 Ranking of factors contributing to crime in San Bernardino Most 2nd Most 3rd Most Important Important Important Blight/property decay 36 25 18 Lack of jobs 60 24 30 Lack of fob training 11 17 5 Not enough police 21 13 25 Court system policies 14 20 18 School system quality 0 6 4 Cultural differences 6 9 3 Violence in media 6 6 11 Parolees release into community 20 38 25 Breakdown of family unit/values 37 22 18 Age of residents 1 0 0 Gangs 59 66 61 Truancy 1 3 5 Drop out rate 8 4 5 Drug sales/use 39 64 59 Too many guns 10 15 21 Rental housing 3 6 13 Homelessness 3 2 11 Others 6 2 2 Total number of surveys 384 San Bernardino Community Strategic Plan for Fighting Crime Survey Question 6 Summary 24 JUN 1996 Factors contributing to crime in San Bernardino No Contributing Major Cause Effect Factor of Crime Blight/property decay 24 130 175 Lack of jobs 21 104 219 Lack of job training 39 159 134 Not enough police 28 142 174 Court system policies 30 118 183 School system quality 81 147 91 Cultural differences 65 168 91 Violence in media 40 127 171 Parolees released into community 28 86 223 Breakdown of family unit/values 21 80 234 Age of residents 121 140 53 Gangs 14 37 305 Truancy 32 164 131 Drop out rate 30 153 149 Drug sales/use 16 44 292 Too many guns 40 65 228 Rental housing 55 142 133 Homelessness 46 141 132 Others 0 0 0 rr-.+-.l ^f IPA San Bernardino Community Strategic Plan for Fighting Crime Survey Question 8 Summary 2d JUN 1996 Factors contributing to San Bernardino's negative image Not a Contributing Major Factor Factor Factor Local press coverage 53 120 172 City Hall political controversy 33 107 204 Vacant commercial lots/buildings 38 106 210 Blighted neighborhoods 20 89 235 Appearance of downtown area 59 156 119 Transients/loitering/homeless 24 134 187 Cleanliness/condition of streets 35 157 151 Lack of community pride/spirit 35 122 185 Graffiti 16 124 203 Crime 12 27 308 Others 0 0 2 Total number of surveys 384 San Bernardino Community Strategic Plan for Fighting Crime Survey Question 9 Summary 2d JUN 1996 Ranking of factors contributing to San Bernardino's negative image Most 2nd Most 3rd Most Important Important Important Local press coverage 52 25 23 City Hall political controversy 64 51 31 Vacant commercial lots/buildings 25 32 35 Blighted neighborhoods 31 44 48 Appearance of downtown area 6 9 14 Transients/loitering/homeless 24 30 28 Cleanliness/condition of streets 11 11 12 Lack of community pride/spirit 12 35 31 Graffiti 14 36 25 Crime 70 39 58 Others 10 2 5 Total number of surveys 384 San Bernardino Community Strategic Plan for Fighting Crime Survey Question 10 Summary 24 JUN 1996 Yes No NR Support existing tax 286 48 50 Would pay additional tax to increase police staff 238 85 61 Willing to pay up to: $25 32 $50 41 $75 25 $100 35 $125 14 $150 89 Total number of surveys 384 San Bernardino Community Strategic Plan for Fighting Crime Survey Question 11 Summary 2d JUN 1996 Yes No NR Would pay additional taxes for code enforcement 211 115 58 Willing to pay up to: $25 60 $50 44 $75 17 $100 34 $125 5 $150 45 Total number of surveys 384 San Bernardino Community Strategic Plan for Fighting Crime Survey Question 12 Summary 2A JUN 1996 Ways in which willing to help reduce crime in San Bernardino: Support crime prevention even if it means a slower response to 173 non-emergency calls for service Volunteer for citizen' s patrol 102 Join neighborhood watch 199 Volunteer for community clean-up/graffiti removal 141 Become a reserve police off'cer 47 Become a volunteer code enforcement officer 84 Serve on a youth accountability board 136 Other 13 Total number of surveys 384 Appendix C San Bernardino Economic Development Strategy Final Report John E. Husing, Ph.D. As has often been the case, San Bernardino is at a crossroads. Unless the city's economic direction is fundamentally altered, it risks missing the prosperity headed for the Inland Empire. Is change possible? Yes, given the community's extensive competitive economic advantages. Thus, the future is a matter of strategy, tactics and choices by leaders in and out of city hall. To provide a context for sound decision making, this document begins with an explanation of the differences between the basic and secondary tiers of any city's economy. Next, the basic tiers critical role is highlighted, along with a list of those activities which are, and are not part of it in San Bernardino. The city's recommended policy priorities flow logically from this discussion. Each policy priority is illustrated using issues which have recently been before the City Council. Given the extent to which San Bernardino's basic economic activities underlie the recommended policy priorities, six key basic activities are next discussed in depth. Of these, three are shown to be crucial to the community's future: local resident workers, manufacturers and "export" service firms. It is concluded that they should be given priority in the use of San Bernardino's scarce Economic Development Agency (EDA) investment resources and staff time. The balance of the report enunciates specific strategies for doing so. I. FINAL DRAFT: PROCESS This report represents the result of year long discussions with San Bernardino city economic, political, city staff and community leaders. Underlying its recommendations has been a thorough review of the economic trend data affecting the city. After Draft #1 of this analysis was completed, it was shared with the Mayor, Common Council, City & EDA Administrative and Department Heads, and participants in the Economic Summit, plus individuals and groups who requested copies or meetings about it. Numerous written and oral comments, both critical and supportive, were received. In addition, a cross section of professional, business and real estate leaders were invited to join the Mayor, City & EDA Administrators for a lengthy session designed to critique Draft#1's findings. In this Final Report, the attempt has been made to incorporate the essence of these comments and criticisms in the attempt to achieve a consensus document. Those reviewing this document should be aware of the philosophy underlying it: 1. It adopts the point of view that much of what needs to be accomplished in San Bemardino is a matter of leadership and decision making. It therefore emphasizes goals, priorities and policies. 2. It delineates a limited number of strategic thrusts since experience shows that too broad an economic strategy is a recipe for inaction. These are placed in priority order in Appendix A. 1 3. For each strategic thrust, specific actions are recommended in order to highlight the implementation program that flows from them. 11. BASIS FOR SETTING ECONOMIC DEVELOPMENT PRIORITIES A. BASIC & SECONDARY TIERS OF THE ECONOMY In order to create an economic strategy for the City of San Bernardino or any other community, it is necessary to understand three key points about how any local economy functions. These points provide a context for analyzing the city's strengths & weaknesses, as well as programs & policies for dealing with them. 1. Basic Tier Of The Economy Supplies The Money San Bernardino can be thought of like a gold mining town in the Old West. There, miners dug up gold and sold it to the outside world for money. Once the money arrived, they spent it at the local saloon, general store and on local taxes. The gold miners thus both supported themselves as well as local saloon workers, shopkeepers, and the town sheriff. When the gold ran out and the miners left, the economic base evaporated and a ghost town resulted. Point #1.-San Bernardino's economy can be thought of in two tiers: a basic tier of activities which bring money to the city; a secondary tier which is supported by the local spending of those same dollars (e.g. retailers, city halo. 2. Basic Dollars Can Leak Away To Other Towns If a miner chooses to live and spend in another place, the money coming to town from his gold sales will support him, but it will not support the town's saloon workers, shopkeepers or city hall. Point #2.-If a basic employer locates in San Bernardino, but its employees live elsewhere, the outside money brought to the city by the firm will support its own employees, but do nothing to help people employed in the city's secondary tier of retailers, service firms and local government. 3. A Diversified Secondary Tier Can Increase Impact Of Basic Dollars. If the mining town adds a restaurant, a barber shop and a winery, the money brought in by the gold miners changes hands more often, before leaking away to buy supplies or locally unavailable services. If the town's saloon or general store moves away,the opposite occurs. Point #3.-If the secondary tier of San Bernardino's economy becomes more diversified, the same amount of money coming to its basic employers, will change hands locally more often, supporting more people. If its secondary tier shrinks, the reverse will happen. B. CITY ECONOMIC PRIORITIES Since local economic success is governed by these three principles, the economic priorities of San Bemardino or any other city become clear. 2 1. Expand Activities In The Economic Base San Bernardino's top economic priority must be the retention and expansion of activities which bring money to it from the outside world. Without such basic activities, the economy will languish. Six undertakings make up the city's economic base. However, the city should only seek the expansion of the first four. a. Companies which create products and sell them outside of the city. Examples: Cobra Industries, Crown Printers, Anita's Foods, Games For Fun, Restaurant Row. b. Companies & activities which perform services for clients outside of the city. Examples: Health Sciences Data Corporation, GE Capital, Automated Health Systems Laundry (AHSL), Santa Fe Railroad, Hospitality Lane hotels, Route 66 Rendezvous. c. Governmental entities whose funding is not primarily local. Examples: California State University San Bernardino (Cal State University SB), County of San Bernardino, Defense Finance &Accounting Service, US Postal Service. d. Local resident workers who work outside the city and bring home a pay check. Example: a warehousing clerk working in Ontario; a programmer working in Anaheim. The other two groups of activities are part of any city's economic base. However, if they represent a major or growing share of it , that is a likely sign of long term economic decline. e. Retirees who receive pension checks from funding sources outside the city. AF A Example: Social Security recipient, retiree from Shell Oil. f. Aid recipients receiving funds financed by the state or federal government. Example: Person on aid to dependent children; person receiving unemployment compensation. In seeking to expand the economy's basic tier, San Bernardino should be concerned with two other facts: The broader the number of basic activities bringing money to San Bernardino, the more secure its economy will be. Thus, San Bernardino is suffering because in the past too much of its basic economy was in the defense sector. The higher paying the city's basic activities are,the more prosperous its economy will become. Thus, San Bernardino is suffering because too much of its basic income comes from poorly paid aid recipients, at a time when their stipends are stagnant or shrinking. 2. Convince Basic Sector Workers To Live &Spend In The City San Bernardino second economic priority must be to convince the employees of its basic firms to live and spend in the city. Otherwise, the city bears the infrastructure costs of these operations but misses the full benefit which spending by their workers can have on its secondary tier of firms and agencies. San Bernardino's economy was weakened when employees of its basic firms and agencies began living and spending elsewhere. The problem was compounded when well paid employees in its secondary tier also began to do so. The symptoms have been obvious: 1. The loss of retailers, food stores and pressures on the city budget. 3 2. The conversion of much of the city's housing stock to low income rentals. 3. The lack of a growing stock of upscale new homes. 4. The growing percentage of families on public assistance. 5. The rising crime rate. In a similar vein, city economic activity would be enhanced if firms & agencies (e.g., the city itself) bought more from local suppliers. Thus, if Santa Fe Railroad or the Caltrans hires a local engineering firm whose employees live in the city, there is a double benefit. 3. Retain and Expand Second Tier Firms San Bernardino's third & lowest economic development priority should be the retention and expansion of secondary tier organizations such as local retailers, food stores, and cultural outlets. Success in these arenas has the advantage of permitting the dollars that reach the city's economy to change hands more often before they bleed away. This should be the city's lowest priority. If the economic base is shrinking, no amount of propping up will expand the secondary tier. In this light, there are two clear conflicts in the way that most cities, including San Bernardino, act and their long term economic interests: 1. Secondary tier activities are largely owned and/or managed by local residents. Primary tier activities are not. Thus, there is a built in constituency, with powerful influence, pushing any city to prop up the sectors which do the least for its long term economic health. The weaker the city's primary tier, the heavier the pressure to prop up secondary tier activities, and the greater the compulsion to spend money on the wrong projects. 2. Most of a city's retail sector is in its secondary tier (regional malls & restaurant hubs are the exception). However, California cities are driven to give top priority to subsidizing retailers because the sales tax is their principal local revenue source The weaker the primary tier, the more trouble facing retailing, and the greater the argument for inappropriate subsides. In summary, the key to San Bemardino's prosperity is the execution of economic strategies designed to encourage the diversity, expansion and retention of its basic employers and their staffs. With political effort, staff time, and Economic Development Agency (EDA) resources all limited, any other set of priorities flies in the face of fundamental economic reality. 4. Illustrations: Basic & Non-Basic Activities These theoretical discussions become more graphic when past decisions are classified as basic or secondary: 1. Subsidies to firms and activities such as AHSL, Santa Fe Railroad, Route 66 Rendezvous, Restaurant Row, Cobra Industries, or the regional malls expand the economic base. 2. Subsidies to housing projects which hold the employees of basic or secondary industries in the city ensure that an expansion of the economic base has its full local impact. 4 3. Subsidies to general city services; strip malls; city culture events; neighborhood malls, restaurants or mini-markets almost never expand the economic base. 4. Subsidies to housing projects which favor rental units populated by aid recipients or, retirees at the expense of workers have an essentially negative impact on the economic base. Decisions to undertake the latter two groups of activities may be justified on other grounds. However, as they do not expand the economic base, they should not dominate the scarce time of policy makers, staff members or the EDA's limited financing capability. The opposite often occurs as proponents of essentially secondary tier activities are nearly always local people. C. SAN BERNARDINO'S ECONOMIC BASE: Prognosis As indicated earlier, San Bernardino's economic base is composed of six types of activities. A review of them shows the problems and potentials for each. 1. Retirees 2. Aid Recipients As an older urban city, one of San Bernardino's growing problems is the increasing importance of retirees and governmental aid recipients to its economic base. This can be inferred from 1990 Census data which showed that 30% of city households earned below $15,000. It can also be seen in the number of detached homes that have been converted to low income rentals. While these two groups are a source of outside funds for San Bernardino, neither will provide a base for economic expansion. Their growing importance in the city's economic base is a sign of a weakening economy and long term problems for its secondary tier of firms & agencies. 1. Local retirees, unlike those in places like Hemet or Palm Springs, tend to have lower incomes that do not grow as fast as inflation. 2. Aid recipients, if anything, will see their incomes fall in the current political climate. 3. Non-Local Government The closure of Norton Air Force Base was a major blow to San Bernardino as its payroll and purchases represented a major share of the funds flowing to the city from the outside world. The migration of some federal functions to Riverside will represent a smaller such problem. On the positive side, the opening of the Defense Finance &Accounting Center and the new U.S. Postal Service Remote Encoding Centers will add to the city's economic base. So also will any increase in net state payrolls from the State Building complex or growth in Cal State University SB's budget. Unfortunately, over the next decade, budgetary problems at the state and federal level will prevent non-local government from becoming a major force in expanding the flow of dollars into San Bernardino's economic base. 4. Commuters & Other Resident Workers While it is disruptive to families, a major source of outside dollars to the Inland Empire has been its commuter work force. According to the 1990 Census, 238,600 of 1,000,000 area workers drove to Los Angeles, Orange and San Diego Counties and brought home pay checks. 5 In San Bernardino, commuters, even those driving to nearby cities, have not provided a major growth impetus to the city's economic base. The problem has been one of housing. Developers have built few new city homes in recent years. And, for a variety of reasons, its existing detached housing stock has increasingly been converted to rentals. Thus, potential buyers have not located in the city. This is unfortunate. In an era when families are desperate for affordable homes, San Bernardino should be attracting a continuous flow of young workers and commuters. After all, it has Southem California's lowest priced housing. In 1994, for instance, the average existing city home sold for $99,258 (including all of 92345). This was 22% below the County average of $128,007, and 58% below Los Angeles County's $233,381. Since 1990, San Bemardino's low priced housing has given it the Inland Empire's highest population growth (20,235). However, low income tenants on public assistance dominated this growth, not owner-occupant workers. As a result, a potential community asset has become a liability, taxing social services and increasing the crime rate. Looking forward, the vast potential for the affordable housing stock to lure young workers and commuters to the San Bernardino remains. What is needed is a comprehensive strategy designed to encourage landlords to sell and owner occupants to buy in the community. 5. Firms Producing and Exporting Products 6. Firms Exporting Services San Bemardino's best chance for expanding its economic base lies with high paying firms that produce goods or service for sale outside the city. This is particularly the case where their employees are city residents. The potential is real as, from Jan-94 to Jul-95, 182 such firms migrated to the Inland Empire. '"Woe The Bernardino has benefited from growth of this type. Older product suppliers like Crown Printers, and newer ones like Cobra Manufacturing have expanded. So have older service suppliers like Santa Fe Railroad and newer ones like Health Sciences Data Corporation. The first manufacturers are now opening at Norton. Companies like Accent Furniture and Boyd Flotation have chosen to move to the city. Looking ahead, San Bernardino has many potential advantages in keeping and pursuing export firms, particularly now that such companies are weighing every city's competitive environment. 1. It has a hard wonting, reasonably priced labor supply which Cal State University SB and San Bernardino Valley College stand ready to train as needed. 2. It has plentiful and reasonably priced industrial and office space. 3. It has an incredible supply of water, a unique geothermal resource, and access to an industrial outfall sewer line. 4. It has investment resources available both through EDA and the Inland Valley Development Agency QVDA). 5. It is surrounded by the 1-215, 1-10, Route 30, Route 330 loop, and is undergoing infrastructure expansion with Santa Fe's intermodal yards, GTE's fiber optic network, and the privatization of Norton Air Force Base. 6. It is a center of state and county offices, and centrally located to the Inland Empire's 3.0 million people and $49 billion economy. 6 7. Hospitality Lane provides the city with a regional restaurant and office complex. However, San Bernardino also has decided weaknesses in recruiting or retaining 'export" firms. 1 It must compete with the Ontario and Corona areas which are nearer to LA & Orange, Counties and have better access to Ontario International Airport with its UPS hub. 2 The crime rate is a central topic in most negotiations involving the community. 3 The aging retail and housing stocks are problems, as is the documented flight of the city's middle class. 4 San Bernardino has an incredibly poor self perception. 5 The diffusion of power inherent in the city's archaic political system, makes the execution of long term economic policies very difficult. Thus, Inland Empire trends give San Bernardino a golden opportunity to broaden its economic base. However, to benefit, the city must convince relevant firms and their employees that their best chance for success lies within its boundaries. This means implementing a strategy which harnesses the city's enormous strengths, and overcomes its formidable weaknesses. III. THE ECONOMIC STRATEGY Given this analysis, and recognizing that San Bernardino like other cities has finite resources, the city's economic strategy must contain several elements: 1. It should seek to overcome the obstacles to community decision making that have inhibited the city's efficiency and economic growth. 2. It must concentrate on programs that keep and lure firms that bring money into the city's economic base, including those in manufacturing, service and regional retailing. It should minimize spending on secondary tier activities. 3. It should maximize the return and minimize the risk in the use of scarce EDA funds. 4. It must include housing programs that encourage workers to live and spend in the community, as the significance of its economic base is diminished if they do not. 5. As economic expansion requires a competitive cost environment, it should both lower business regulatory and resource costs, and increase business efficiency via access to modem transportation and communications infrastructure. 6. It should provide mechanisms for convincing existing basic firms to remain in the city. They are a primary source of employment growth and the best advocates for other firms to join them. 7. It should foster economic development institutions that can create an environment attractive to both existing and new basic sector firms. A set of strategies addressing these elements is outlined below in priority order. The action items under each priority are themselves in priority order. In Appendix A. a list of on-going programs whose continuation is vital to the success of San Bernardino's economy is also enumerated and discussed. PRIORITY 7.-CITY HALL COMPETITIVE CLIMATE STRATEGY 7 ACTION #1.- The City and EDA Administrators are instructed to jointly develop a long term strategy aimed at making the city's personnel more likely to make decisions that will enhance the city's competitive economic position. The City Hall Competitive Climate Strategy should include a proposed time line, staffing, budget and be completed by June 1996. , Rationale: Like other California communities, San Bernardino has grown up in an environment in which neither voters, elected officials, public administrators, or educators, saw the necessity of competing for businesses. Times have changed. Unfortunately, California's legal structure and governmental cultures have not. If San Bernardino is to increase the standard of living of its residents, it must develop a competitive attitude towards luring Finns that can expand its economic base. Implementing the program outlined below will go along way towards accomplishing this objective. However, given the degree to which businesses must rely upon City Hall decision making, a competitive attitude must be nurtured within the city's internal culture. NOTE: The proposed elements of a City Hall Competitive Climate Strategy are detailed in Appendix B. PRIORITY#2 - BASIC NOT SECONDARY ACTIVITIES ACTION #2.-The Common Council and Community Development Commission (CDC) direct that it shall be policy that basic as opposed to secondary economic activities will be the priority in establishing Council agendas, assigning staff time and expending EDA funds. ACTION #3.-City and EDA staff shall establish numeric guidelines which will allow a judgment �.• to be made as to whether proposed city investments, projects or programs will affect the primary or secondary tier of San Bernardino's economic activity. ACTION #4.-City and EDA staff are instructed to include in the staff reports of all proposed city investments, projects or programs whether they affect the primary versus secondary tier of the economy, and assign priority to the former. ACTION #5.-EDA staff shall undertake a cost versus benefits analysis of each project it recommends. The analysis shall include the project's probable impact on the budgets of EDA and the City. Rationale: The city's scarce investment funds should be spent expanding its economic base. Any other priority does not encourage growth and wastes scarce development dollars and staff time. Some money may be expended on "worthy secondary tier activities. However, the latter should be forced to meet a higher test of worthiness"than basic tier projeds. As EDA funds are the city's only means of investing in its future, it is crucial that staff and poLcy makers be aware of the impact of any project on the agency's balance sheet and the city's budget. PRIORITY#3.-EXTENT OF SUBSIDIES & RISKS ACTION #6.The CDC Board directs staff to prepare and justify policy recommendations that the Board can adopt indicating the level of financial exposure and risk which EDA is willing to accept in all projects, with a priority given to those affecting the economic base. ACTION #7.-EDA staff shall create a set of project guidelines and procedures that will implement CDC Board policies on the financial exposure and risk levels acceptable for each type err 8 of project. A policy and procedure's manual for implementing these guidelines and tracking compliance shall be produced and the staff trained to use it. Rationale: EDA's financial resources are scarce. It assists projects that cannot stand alone in' the marketplace. Its funds are often subjected to long term contingent exposure or risk of default. It is thus imperative that financial exposure, risk and compliance policies, guidelines and procedures be developed, articulated and consistently executed. PRIORITY#.i.-OWNER OCCUPIED SINGLE FAMILY DETACHED HOMES ACTION #8.-The City Council and EDA Board declares it to be city policy to preserve owner occupancy in those single family detached homes where it currently exists, and to return as many be single family detached rental homes back to owner occupancy as possible. ACTION #9.-The City and EDA staffs are instructed to retain a leading economic consulting firm, with expertise in housing issues, to study the single family housing stock's ownership profile and recommend a specific positive implementable strategy which the City and EDA can undertake to preserve and restore owner occupancy. Rationale: The decline of owner occupancy in single family detached neighborhoods prevents San Bernardino's housing stock from serving as a lure to young working families looking for affordable homes. It is a major factor in the high percentage of residents on public assistance and the crime rate. It is a contributing factor to the flight of the city's middle class, the loss of some professional firms, and the decline of spending in the secondary tier of the economy. The city's rental inspectiorVcode enforcement program is a first step in developing data and starting processes to deal with this problem. However, potential owner-occupant buyers are afraid to live in parts of the city. Meanwhile, many landlords are trapped into ownership by tax laws; some are trapped by past investment decisions; a few appear to be taking advantage of a bad situation. Policies and a master plan of action need to be developed which can differentiate between these situations and create an environment in which potential owner occupants want to buy and most landlords want to sell to them. PRIORITY#5.-COMPETITIVE RESOURCE COSTS ACTION #10.-City staff is instructed to develop a utility tax discount program to be used to help lure new basic employers to the city. Rationale: San Bernardino has one of the highest utrTty taxes in the Inland Empire. This is a barrier to recruiting many types of employers. For negotiated periods, competitive jurisdictions are offering new firms lower utility tax rates and/or phased rate implementation. San Bernardino needs such policy alternatives. Action #11-The San Bernardino EDA staff is instructed to work with the Water Department to design a program under which the city's plentiful water supply can be used as a lure to bring water dependent manufacturers to the community. This should include pricing incentives to allow firms to offset other local operating costs. Rationale: Water availability is an issue with many manufacturers. Operating costs are an issue wiM all firms. San Bernardino has a unique, plentiful asset that can be a competitive advantage in luring both. 9 Action #12.-San Bemardino Water Department shall to hire consultants to define the extent of its unique geothermal resource. If it is as extensive as believed, EDA is instructed to undertake a major niche marketing campaign aimed at potential users of this resource. Rationale: The city's geothermal field is a low cost space heating, and a warn, soft water resource. It provides the city with a potential competitive advantage in competing for firms that heat large spaces or need large quantifies of hot, soft water. The city needs to understand the size of the resource so that it can be appropriately marketed. Action #13-San Bemardino designates itself the water capital of Southern California. and instructs staff to incorporate this slogan into its marketing materials. To highlight the water supply, EDA staff is instructed to work with city and regional water agencies to plan and implement a long term program of bringing water above ground in dramatic ways in key spots in the community. Rationale: San Bernardino's extraordinary water resource is hidden to all but experts. This effort would use this water to both beautify the community and dramatize the availability of the resource (if you've got it flaunt it!). The 1-10-Route 30 waterfall project is a perfect illustration of this strategy. PRIORITY#6.-BUSINESS SUPPORT NETWORK ACTION #14.- EDA is instructed to develop plans for a well organized and aggressive Business Support Network, including an implementation budget and staffing and bring it to the Board for implementation. Plans should include methods for maintaining constant contact with basic tier firms, and facilitating interaction between them and the private & governmental agencies designed to assist them. Rationale: Basic tier firms will only migrate to, and remain in San Bemardino, if they believe it is in their economic interest to do so. In pan`, this depends on how their perception of the community's attitude towards them. It is also a function of the ease with which they can acquire help when they need it. An aggressive Business Support Network can accomplish these ends. ` NOTE: The Business Support Network should include a plan for identifying basic tier firms and their leaders; a telemarketing program for maintaining cont ad with them; a simple method by which they can ask for help; and a computer linked system tying together business support agencies in finance; regulatory process; management training; worker recruitment & training; international trade; technology transfers; and marketing information. An ideal network is describe in Appendices C & D. It represents an expansion of the "EARS" network sponsored by Souther California Edison, the Greater San Bemardino Chamber of Commerce and the EDA, though it is more extensive and aggressively proactive. PRIORITY#7.-ECONOMIC DEVELOPMENT INSTITUTIONS ACTION #15.- The EDA staff is instructed to make contact with the San Bemardino County Economic & Community Development Agency to see what can be done to ensure the agency stays in downtown San Bemardino. Rationale: San Bemardino County will soon move its Economic & Community Development Agency. As this organization meets often with potential new basic tier companies, the city should work to ensure the agency is kept within the downtown area near City Hall. 10 ACTION #16.-The EDA staff is instructed to work with surrounding cities to develp funding for a full) time Small Business Development Center(SBDC) office in San Bernardino. Rationale: The SBDC currently offers entrepreneurial counseling, business planning and loan Packaging training to San Bernardino area small business on a weeidy basis. It will soon administer the 1VOA business incubator. Given the importance of these dual roles, funding is needed to expand SBDC's counseling& training function to full time. ACTION #17.-San Bernardino EDA staff is instructed to open channels of communications with University of California at Riverside's administrators. Rationale:, UCR has recently begun creating programs and conducting applied research with drect employment creation possibilities. Eventually, they should spawn manufacturing activities that could best be located in San Bemardino owing to lack of appropriate space near the campus. They will not, if university leaders do not know of the possibilities. Though San Bemardino lies within UCR's zone of influence, there has been little in the way of dialogue between city officials and campus leaders. It would be beneficial to both sides to close this gap. ACTION #18.-EDA staff is instructed to investigate the Manufacturer's Councils developed in in San Bernardino.surrounding jurisdictions and bring proposals to the Board for implementation of such a Council Bernardino. Rationale: Given the importance of manufacturing to the city's economic base, the specialized needs of firms in that sector, and their general lack of participation in city economic institutions, a Manufacturer's Council would give entrepreneurs & executives in this sector the chance to network and advise the city on issues affecting them. The San Bernardino Chamber of Commerce should be helpful in launching one. ACTION #19.-In conjunction with the County, surrounding cities and local financial institutions, EDA staff is instructed to should explore the creation of a financial intermediary to help successful entrepreneurs and high technology start-up businesses obtain funding. Rationale: Entrepreneurs claim that their greatest need is access to capital (under $10,000). Lenders indicate that money exists. The gulf occurs as entrepreneurs do not understand the banking community; do not know how to create business plans or loan packages, and/or fail to qualify as they exhaust their finances before seeking loans. SBDC helps firm's develop business plans & loan packages. However, a financial intermediary is needed to forward them to local banks or an SBA processor for funding. K there is no interest, and a firm has good job potential, the intermediary might loan its own funds or take an equity position,particularfy if these can be leveraged for bank financing and a dear exit strategy exists NOTE: Overtime, an SBDC-financial intermediary link could form an early intervention program to reach entrepreneurs before they get into too much trouble. PRIORITY#8.-ANNEXATION ACTION #20.- The City of San Bernardino declares its intention to seek legislation, in conjuction with San Bernardino County, to allow the unilateral annexation of islands which have been surrounding by city boundaries for in excess of 20-years. Rationale: The islands of unincorporated properly located in the middle of San Bemardino create inefficiencies in the delivery of governmental services that adversely affect the budgets of both the city and the county. As residents of these areas have long since become accustomed to 11 enjoying many of the benefits of the city without paying for them, it is unlikely that they will ever voluntarily annex to the city. This is clearlyan area in which changes in state law are needed. IV. SUMMARY There is no natural defect or economic flaw preventing San Bernardino from once again achieving prosperity. The city occupies a key location in the midst of what continues to be Southern California's fastest growing area. It has the essential resources, critical infrastructure, low cost labor, inexpensive space and affordable housing required to achieve success. What San Bernardino needs is the adoption and execution of an economic strategy that will increase the flow of dollars coming to it from the outside world. Such a strategy must be based upon the numerous location advantages which the city possesses. It must correct those defects which are inhibiting its ability to compete. It must be directed at growing basic tier firms who can benefit from the city's unique assets. And, most importantly, it must result in the workers who are employed by those companies choosing to live and spend in the community. Given this situation, if the city succeeds, it will be because of policy choices made by its political leaders and senior staff. If it fails, it will be for the same reason. 12 APPENDIX A ON-GOING PROGRAMS WHICH SHOULD CONTINUE INFRASTRUCTURE 1.- San Bernardino should continue assisting Santa Fe Railroad's efforts to expand its inter- modal rail capability. Rationale: In an era of just-in-time-inventory procedures, an area with intennodal rail capability has a serious competitive advantage. Combined with the cargo facilities at San Bernardino International Airport, the Santa Fe lntermodal yards will help lure manufacturing and distributing firms to the city. 2.- San Bernardino should continuing encouraging telecommunications firms to expand their investments in the city. EDA should continue efforts to link itself to the Internet. The city should join the EEE network. The city should continue working with other East Valley cities in the GEO based mapping system being developed by ESRI. Rationale: In an era of Internet, teleconferencing, and high speed data transmission, San Bernardino must provide firms with access to the latest in, communications technology. BASIC NON-MANUFACTURING ACTIVITIES 3.- EDA should continue providing incentives to basic tier retail firms in the same manner as manufacturers. To qualify, business owners should be prepared to demonstrate that a significant percentage of their business comes from outside of the city's boundaries. Rationale: Retail firms and restaurants in the Hospitality Lane, Inland Center and Carousel Mall zones of San Bernardino bring outside dollars to the city in the same manner as manufacturers and "export"service firms. They should be equally encouraged and protected. 4.- Hospitality Lane development should continue to be of the highest quality consistent with an upscale regional retail, restaurant and basic tier office environment The attempt by any business to tamish this area should be prohibited. Rationale: The one San Bernardino area that has avoided the regional perception that the city has a serious crime problem has been Hospitality Lane. Its restaurants, retail stores, hotels and offices draw a regional clientele and have become a major source of outside dollars to the.city. The attempt by any firm to offer products or services within this area that are inconsistent with this positive environment should be vigorously opposed. This is particularly true of topless or Pornographic operations which would serve to associate the area with the worst regional perceptions of the city. 14 S.- Route 66 Rendezvous should continue to be supported with whatever EDA funds are necessary to maintain the level of quality it has now achieved. Rationale: This event has been premier tourist event in recent San Bernardino history. it is part of the city's economic base as it attracts outside tourist dollars. It has helped counter the city's unsafe image. Note: Properly marketed, the same logic would apply to the new Spirit baseball team and stadium. MARKETING 6.- San Bemardino should continue its participation in the Inland Empire Marketing Project (TEMP) formulated by the Inland Empire Economic Partnership in conjunction with 27 local govemmental entities. Rationale: San Bemardino's economic future depends on that of the Inland Empire. However, despite a $49 billion economy, stronger location characteristics than surrounding counties, and a Southern California location, the region is poorty known. Sohring this requires a regional marketing effort aimed at the national finance industry, growing mid-sized corporations and firms, tourism planners and film studios The TEMP is designed to do this. Its success will increase the universe of activities for which San Bemardino has the opportunity to compete. 7.- EDA should continue to compile the data and explanatory materials needed to respond to information request from firms interested in locating in the Inland Empire. Rationale:EDA needs to have precise data and readily available informational materials on hand to rapidly respond to inquiries by prospective companies. 8.- EDA should continue targeting marketing materials to niche market firms needing access to location advantages which it uniquely possesses. Rationale: The city has particular location advantages that certain industries may find uniquely valuable. Those advantages include its geothermal field, its water supply, the former Norton Air Force Base runway, and the Santa Fe intennodal yards. 15 APPENDIX B CITY HALL COMPETITIVE CLIMATE STRATEGY The proposed elements of a City Hall Competitive Climate Strategy: 1. If San Bernardino business is experiencing difficulty with City Hall regulatory processes, a designated staff person should be charged with resolving the situation. If the matter is routine, the person should be empowered to cut across departmental lines to handle it. If the matter is severe, the person should be in a position to form a Red Team to provide high level intervention. At all times, this staff person would be charged with remembering that time, more than cost, often destroys firms. 2. The EDA's Office of Business Development (OBI) should continue to manage city business retention efforts, including business outreach programs like the Mayor's site visitations or city Red Team efforts. It should also continue as the city's point of contact with private economic development efforts (e.g., EARS, IEEP) and develop strong ties to every employer with over 500 workers. T1 The Strategy should create an in-service training effort aimed at making city staff members acutely aware of the importance of the entrepreneurial community to the success of San Bernardino's economy and city government. 94, The Strategy should create a mechanism for including an appraisal of each employee's speed and accuracy in responding to business and public inquires in their employee evaluations. 5. The Strategy should include a city strategy for ensuring that city zoning, permitting, regulatory and fee structures give weight to the importance of a competitive, job inducing business environment. 6. The Strategy should ensure that someone in city government is responsible for identifying which city functions could most efficiently be contracted to local entrepreneurs. As contracting out requires negotiations with city unions, terms need to be established under which this can occur. ' 7. The Strategy hould gy provide that a city staff member be given responsibility for understanding the regulatory processes of San Bernardino County and regional agencies. This would allow the city to assist city firms having problems at those levels of government. 8. The Strategy should provide for a city staff member to be responsibility for recommending changes in California law which are unnecessarily hampering San Bernardino's employment growth. If a strategy such as this were implemented, over time San Bernardino's City Hall culture would become known for creating a business friendly,job inducing environment. 17 APPENDIX C BUSINESS SUPPORT NETWORK If San Bernardino is to diversify its economic base, existing basic tier firms must remain in the city and expand, and new ones must be convinced to migrate to it. With today's companies willing to locate anywhere, it is up to the city to create an environment which entrepreneurs & executives perceive as favorable to their operations. Beyond questions of cost, such a climate depends on businesses believing the city wants to support them and provide help when they need it. The Business Support Network's purpose would be to make this a reality. Ideally, it would involve linking together the following elements in and out of City Hall: 1. Information Outreach System APPENDIX D describes in detail a prototype Business Support Network Information Outreach System in great detail. It is based upon linking basic tier firms and public & private support agencies via a telemarketing operation and an Internet computer connection (e.g., San Bernardino County's new EEE network). Through this system, basic tier firms would be frequently contacted to ascertain if they are experiencing problems. Referrals would be made to the appropriate support organizations. 2. Small Business Development Center(SBDC) Many referrals would go to the SBDC. This is the key local player in supporting Inland Empire small businesses. It operates under matching grants with the U.S. Small Business Administration and uses experienced professional staff member to offer. a. Generic entrepreneurial training classes designed to teach new business owners how to anticipate and avoid the fundamental pitfalls of operating a firm. b. Specialized business plan and loan packaging tutorials to assist firms in maximizing the probability of obtaining and properly using lines of credit. c. Assistance in bidding on federal and state contracts. The SBDC uses graduate student intems working under full time staff guidance to carry out some of its functions. Where volunteer assistance is sufficient to solve a problem, SBDC can refer a client to the Senior Core of Retired Executives(SCORE). 3. UC Manufacturing Extension If a mature manufacturing firm is found to need a review of its processes, the Business Support Network would refer them to the University of California's Manufacturing Extension Program. This new effort is modeled after the agricultural extension program. It consultations to manufacturers on how to increase efficiency, lower costs, and take dvant ge of the latest in manufacturing technology. Note: It is well known that entrepreneurs often fail because their personal funds are gone before they seek bank assistance. By then, financial groups are often unable to help them. The link between the Information Outreach System, the SBDC, the UC Manufacturing Extension would serve as a good first step aimed at institutionalized early intervention to prevent firms from making this mistake. 19 4. Job Training Partnership Act If it is found that a company needs workers, the Business Support Network should havp procedures for putting it in contact with the local JTPA'office. JTPA maintains a clientele of trained workers seeking jobs. It can offer financial assistance to firms hiring several categories of workers. And, it can produce a daily listing of job openings. S. SBVC Customized Training If an employer's training needs are sufficiently large, the Business Support Network should have procedures for putting it in contact with the San Bernardino Valley College (SBVC) Customized Training Office. This is SBVC's administrative mechanism for quickly responding to requests for specialized training programs. SBVC staff would meet with the employer and determine the technology to be learned, find an industry based instructor, organize and undertake the training. Depending on the circumstances, funding might come from SBVC sources, federal and state manpower programs, the students or the firm itself. 6. IVDA Incubator If a firm was in need of low cost space in an environment with readily available entrepreneurial counseling, the Business Support Network would have procedures for referring them to the IVDA business incubator. This operation is being created at the San Bernardino International Airport. It is being managed under contract with the SBDC. 7. International Trade Assistance Agencies If it was found that a business should be learning about international trade issues, the Business Support Network should have procedures for putting them in contact with the U.S. Department of Commerce International Trade Administration (ITA), the World Trade Center Association or L.A. Trade Net. ITA is housed with the IEEP and has direct ties to U.S. commercial attaches around the world. L-A. Trade Net is a computer network providing potential exporters with marketing and procedural information. It is another subsidiary of the SBDC. 7. Other Business Retention Efforts If a firm is considering leaving the Inland Empire, the Business Support Network would have procedures for putting them in contact with one of a host of business retention operations. These include Southern California Edison (including 'EARSI, Southern California Gas, the California Trade and Commerce Agency and the IEEP The choice would depend upon the principal problem affecting the firm. A Red Team could then be formed to deal with the cost or regulatory pressures affecting.the company. �n Summary If San Bernardino were to form a Business Support Network along the lines discussed above, it would be attacking the major complaint which businesses'have with California: No one cares! In this sense, it would be an excellent business recruiting device. Footnote: California State University SB Business Outreach The Cal State SB Graduate School of Business is looking to expand its business support efforts. The CONNECT program at the University of California at San Diego's (UCSD) would be an excellent model for them to emulate. This cooperative venture is sponsored by successful local firms and UCSD, and is the center of San Diego's business networking. Every firm in the region is constantly encouraged to join CONNECT. Through such a program, San Bernardino manufacturers would regularly meet and exchange ideas with their fellow entrepreneurs, interact with venture capitalists, and offer new product ideas for criticism by skeptical colleagues. On occasion, forums could be held in which researchers could detail the status of cutting edge technologies. Annually, Cal State could sponsor a contest in which entrepreneurs would compete for innovative product Through such a program, peer networks could be created for CFOs, Blacks, Hispan As Asians or Women. Occasionally Cal State could sponsor forums that would allow San Bernardino's professional community to learn about the issues impacting their ability to serve local entrepreneurs. Governmental officials and business leaders would have the chance to discuss the impact which city policies and procedures are having on San Bernardino's job creating environment. N APPENDIX D Information Outreach System San Bernardino's business retention & expansion strategy must organize business support entities in a manner that makes them readily available and well known to potential users. The Information Outreach System (IOS) outlined below could accomplish this objective. Elements of the IOS The IOS would include the following elements: 1. A network of private & public groups whose purpose is to promote business success. The group would be tied together using San Bernardino County's EEE network. 2. A centralized telemarketing- operation contacting every San Bernardino basic tier firm a minimum of 4-times a year and putting them in touch with appropriate assistance, as needed. The operation might be called Person-to-Person. As the system becomes more functional and better known, less telemarketing would be required. Note: It is unfortunate that long time San Bernardino entrepreneur Bob Parker is no longer with us. His Person to Person Communicators was the model for the heart of this proposed operation. 3. A hot line to Person-to-Person for occasions when firms need rapid action and do not know where to get it. As the system matures, the hot line would become more important than the telemarketing effort. 4. A direct mail & media campaign to ensure that the city's businesses are aware of the system. The IOS Organization The Information Outreach System(/OS)would be organized as follows: 1. San Bernardino's EEE computer network would be used to allow the support entities to communicate by on-line commuter. Each would therefore have to be a member of it. 2. Marketing and daily management of the IOS would be in the hands of an entity,supported by state or federal funds. Its assignment would be to create and manage the SB Business Directory and the Person-to-Person calling activities described below. 3. SB Business Directory A SS Business Directory would be created including the names and pertinent information on every identifiable San Bernardino basic tier employer. This data would be stored on the computer at the entity managing Person-to-Person activities. A program would be created to allow data on new firms to be regularly fed to the SB Business Directory by modem from the San Bernardino County "fictitious name desk" and the San Bernardino City Cleric's Office business license desk. The latter two entities would therefore have to be linked to the EEE. Their staffs would have be trained to know which firms should be inputted and how to use the system. 4. Person-to-Person 711 Appendix D City of San Bernardino Police Department � O a Z �n o OLIG Organizational Development and Community Service An Organizational Prospectus toward Planning and Implementation of Crime Reduction Strategies The Road Ahead... Lee Dean Chief of Police June 1996 SRN" Amok 2 90, Vision, Mission, and Core Values of the a o San Bernardino Police Department kAQUO Vi i n• To be a leader in establishing the standard for excellence in policing. Mission Statement: The San Bernardino Police Department is committed to providing: Progressive quality police service; A safe environment to improve the quality of life; A reduction in crime through problem recognition and problem solving. Core Values: • Commitment to Public Service and Safety • Integrity • Loyalty • Respect for the Law • Accountability n v- p C I T Y O F J � ��F an Bernardino GNnD"'ti�0 P O L I C E D E P A R T M E N T L E E D E A N C H I E F O F P O L I C E June 15, 1996 Message from Chief Lee Dean To The Honorable Mayor, City Council, City Administrator, San Bernardino Police Department Employees and Citizens of San Bernardino I am delighted to present you with this organizational prospectus for the San Bernardino Police Department. Its purpose is to articulate a vision for local law enforcement, and to define a planning process for crime reduction strategies. Specific strategies will include those developed by the Council commissioned Crime-Fighting Strategic Plan Steering Committee as well as others generated through the "initiative management"process described herein. This report also sets forth a management philosophy which forms an essential foundation for long-term sustainment of exemplary police services. The bottom line is that a quick fix approach to crime in San Bernardino won't work. Implementing the most promising strategies will take deliberative time and effort, but will yield the greatest return. Very truly yours, Lee Dean Chief of Police P O S T O F F I C E 8 0 X 1 5 5 9 , S A N 8 E R N A R D I N O , C A L I F 0 R N I A 9 2 4 0 1 - 1 5 5 9 ( 9 0 9 ) 3 S 4 • 5 7 4 2 TABLE OF CONTENTS Community Policing History & Definition I Community Policing in San Bernardino 2 Higher Standards 3-4 Leadership Development & Organization Structure 5 Problem-Solving Philosophy 6-7 Performance Measures 8 Staffing & Service Levels 9-10 Patrol Time & COPPS 11 Staffing Plan 12 Assessment Funding 13-14 Diversity in Police Service (Appendix A) 15 Diversity Workshop Findings & Recommendations 19-20 Leadership Development Program (Appendix B) 21-38 Area Command Distribution (Appendix C) 39-49 Crime Fighting Strategic Plan - Goals & Strategies (Appendix D) 50-54 COMMUNITY POLICING AND PROBLEM SOLVING IN THE CITY OF SAN BERNARDINO Historical Overview: The officer on a regularly assigned foot beat was probably the first attempt at community policing and problem solving (COPPS). The officer was familiar with his beat, its environs, and inhabitants. In the early days, with no radio or telephone, the officer's only support was from sympathetic members of the community for which the officer was responsible. In the COPPS role, a police officer shifts from an incident-driven enforcer to a results-driven problem solver. Enforcement strategies become "tools"for use by the officer. Community- Oriented Policing, Problem-Solving is, thus, an approach that addresses the causes of crime, encourages community support and participation, and makes better use of existing resources. It simply makes good sense. Key to an understanding of community policing is recognizing that it is not merely an "add on" to an existing structure. It is a philosophy, a management style, and an organizational strategy. Definition: The San Bernardino Police Department has developed a unique, locally-based model of community-oriented policing and problem solving. To the San Bernardino Police Department, (COPPS) is a management style and organizational strategy which promotes proactive problem solving and a police-community partnership. Partnership refers to any combination of neighborhood residents, schools, churches, businesses, community-based organizations, elected officials, and government agencies who work cooperatively with the police to resolve problems that impact them. Problem solving is a process of identifying areas of concern, or problems, through coordinated efforts and community partnerships. Collecting and analyzing information and developing, implementing, and evaluating innovative responses will eliminate or reduce problems. 1 IN SAN BERNARDINO COMMUNITY POLICING HAS FOUR KEY ELEMENTS THAT ARE FUNDAMENTAL To SUCCESS HIGHER STANDARDS LEADERSHIP DEVELOPMENT The San Bernardino Police Department An ongoing program of study and has adopted a mission, vision, and set of leadership development prepares our core values that are fundamental to the leaders to lead. We have learned that one way that we treat each other, serve the of the most important tasks of a leader is public, manage our resources, and to prepare others for leadership. represent the citizens of San Bernardino. The COPPS program recognizes the Our mission, vision, and core values are importance of empowering the individual on the inside cover of this report. They at the most effective level of decision are more than nice words. They are our making. Our Leadership Development way of doing business. Program builds the type of leader that will allow that to occur. EFFICIENT STRUCTURE PROBLEM-SOLVING PHILOSOPHY To provide more efficient and effective A fundamental ingredient to problem service to the community, we have adopted solving is the synergy between an an area command model of organization. informed, involved, and empowered With this model, the area commanders are community, and an organizational accountable for all police services within commitment to dedicating the time and their respective areas. Each area has the resources to solve problems rather than resources, through a coordinated effort, merely treat symptoms. Initiative meet the needs of the community. Each management, crime prevention, early officer is empowered to make decisions recognition of problem areas, and a and to solve problems. The idea is to structured, systematic approach to problem enhance service and responsiveness, and solving, are all important. This reduce bureaucracy. philosophy recognizes the long-term efficiency and cost effectiveness of early intervention and a planned approach to problem solving. 2 HIGHER STANDARDS The vision of the San Bernardino Police Department is to be a leader in establishing the standard for excellence in policing. As an overarching goal, this dedication to excellence sets our sights high. Excellence requires vigilance in constantly striving to improve ourselves and others. Our vision does not represent unrealistic expectations or unreachable goals but reaffirms the potential through a cooperative, joint spirit between the community and the Department. Mission Statement of the San Bernardino Police Department: The San Bernardino Police Department is committed to providing: Progressive, »quality police services; A safe environment to improve the qualityf life, A reduction in crane.through problem recognition and problem solving Our mission statement makes clear what we are all about, and who we are. It defines our relationship to those we serve, and sets our course for the future. Nothing we do should be in conflict with our mission. We each understand that we represent the Chief of Police, the City Council, and the citizens of San Bernardino. We value the responsibility and trust placed in us, and understand that the key to success is working together. Our mission gives us direction, reassurance, and purpose. CORE VALUES Commitment to Public Service - It is our responsibility to cultivate an organizational bench mark of responsiveness in order to develop and maintain the public trust. Integrity - Wholeness through excellent qualities of character must become integral to our entire lives, both professional and private. Loyalty - Fidelity to the principles embodied in the Law Enforcement Code of Ethics is a fundamental part of professional community service. Respect for the Law - We believe that the law is to be enforced according to its spirit. Accountability - We are held to a higher standard in terms of our conduct and demeanor as it reflects on our profession, the Organization, and the men and women who work here. 3 DIVERSITY IN POLICE SERVICES An important part of any recruitment and hiring plan is to know where we are and where we want to be. The City of San Bernardino is poised to realize a bright future of continued growth, with changing populations and new opportunities. This future may also bring us more challenging problems. A Police Department that maintains a workforce that represents the community it serves will best be suited to meet those challenges. Our goal is to build and maintain an organization of men and women reflecting the cultural diversity of our city, with each member of that organization, regardless of background, demonstrating awareness and sensitivity to every segment of our population. It is the commitment of the San Bernardino Police Department to actively recruit police officer candidates of the quality and ethnic variety that will result in the successful hiring of underrepresented groups, in order to achieve and maintain a workforce that ethnically represents the population of the city of San Bernardino. A Diversity in Police Services Plan is set forth at Page 16 (Appendix A). This plan resulted from a workshop held at the Police Department on March 15, 1996. A cross-section of organizational and community leaders worked cooperatively in this venture. CULTURAL AWARENESS TRAINING This training addresses cultural issues that we all have opinions on, but are sometimes reluctant to discuss. Within the organization, there are likely to be very different viewpoints. Now, perhaps more than ever, it is necessary for us to take a moment of honest, self- evaluation, with respect to any biases or prejudices that may cloud our treatment of others and the role that we play within our community. Cultural Awareness Training is not graded. It is presented for the sole purpose of personal and professional growth. Open, honest, thoughtful, and professional participation is expected. A heightened awareness about cultural diversity represents a major component of the San Bernardino Police Department's core values, as well as the principles embodied by our chosen profession. Law enforcement's role in society is to serve and protect. It is essential that we do so without the interference of bias or discrimination, and with a greater sense of awareness of the diverse community which we serve. CUSTOMER SERVICE TRAINING On February 27, 1996, the San Bernardino Police Department held its first Customer Service Training session. This training deals with some of the fundamental principles of delivering the most efficient and effective service to our constituents. It also addresses pitfalls and how to avoid them in the day-to-day operation of the organization. Employees attending the training have been favorably impressed with the principles they learned. Customer service is an example of how the Department is seeking to set higher standards. 4 LEADERSHIP DEVELOPMENT On March 13, 1996, the San Bernardino Police Department held its first full-day Leadership Development session. These meetings will be held every four months. All supervisory and administrative personnel assigned to the Police Department attend. An ongoing study of practices and principles that make better leaders, the program has been successful in generating new energy and enthusiasm for leadership and the primary purpose of leadership: preparing others to lead. The first session was entitled, "Leadership - Stepping Beyond. " Materials from this session are set forth at Page 22 (Appendix B). As a group of leaders, we are reading The Power of Ethical Management by Kenneth Blanchard and Norman Vincent Peale. This book discusses that ethics in business is the most urgent problem facing America today. It sets forth a straight forward three-step ethics check that helps evaluate any action or direction. EFFICIENT STRUCITM To provide more effective service to our community, the San Bernardino Police Department has adopted an "area command" model of organization. Through the use of a computerized Police Resource Optimization System, we have taken a fresh look at how the area commands are structured. An essential pan of this inquiry is how to most effectively staff and locate the Neighborhood Service Centers. Community access, calls for service, reliability and demographics are the key factors. The overview at Page 40 (Appendix C) reflects how the area commands are distributed, and explains the rationale for same. One of the central philosophies of an efficient structure is to decentralize those services which can best be provided at the community level through the area commands. Services included in this delivery model include crime prevention and community volunteers. The central theme here is that each officer will be empowered to make decisions, to solve problems. Our goal is to be responsive and reduce bureaucracy. 5 PROBLEM SOLVING PHILOSOPHY Introduction to Initiative Management The initiative process is, in a sense, self-defining. Taking the "initiative" in gangs, violence, narcotics, problem solving, efficiency, and information management, allows us to maximize the use of resources. Goals and strategies from the City of San Bernardino Crime Fighting Strategic Plan Steering Committee are set forth at Page 52 (Appendix D). Adopting the philosophy of proactive problem solving is necessary for "Initiative Management. " Planning for the future by understanding contemporary issues, and translating that understanding into customer service based on today's needs and tomorrow's challenges, is the essence of "Initiative Management. " Proactive problem solving also motivates accountability. We develop a greater understanding for our accountability to the customers we serve as we become empowered to solve problems. An "Initiative Manager" also becomes accountable to the organization, contributing to its successes. As problems are identified, a proactive, cooperative strategy is developed that often employs a community partnership to remedy the cause, not the symptoms. An "Initiative Steering Group"facilitates the solution by removing obstacles and empowering line employees to take action. This is the initiative process in a nutshell: A proactive, coordinated partnership based on finding solutions to problems. The San Bernardino Police Department has identified four major initiatives: I. Cooperative Problem Solving 2. Violent Crime/Gang/Narcotics 3. Efficiency 4. Information Management Each of the four is fairly broad, and each will be under the direction of an "Initiative Manager. " Problem solving is an outcome that occurs within and through the "Initiative Management"process. The Steering Groups consist of a cross-section of Department members, and others, who bring their views and expertise to the table. Each initiative is tasked with the responsibility of developing an annual planning matrix to define goals, responsibilities and performance measures. This document will be updated biannually. Flexibility is designed in, but at the same time, a well-understood process keeps things on track. A key ingredient is the synergy which results naturally from "Initiative Management. " 6 PROBLEM SOLVING PHILOSOPHY CONT.: The Violent Crime/Gangs/Narcotics "Initiative" will target violent crime designated by the FBI as part-I offenses, including murder, robbery, rape and aggravated assaults. Over the last 25 years in the City of San Bernardino, violent crime has increased six fold. The city has gained a dubious distinction in terms of its murder rate, and aggravated assaults are almost nine times higher now. Among the 47 California cities with populations of more that 100,000 listed in the FBI's Uniform Crime Report, which contains the most recent official "raw" crime data, San Bernardino ranks 17th in population, 11th in part 1 crime numbers, and 9th in violent crime. San Bernardino ranks number one in violent crime per capita, even when compared to California's largest cities such as Los Angeles, San Francisco, and San Diego. Violent crimes are increasingly being committed by gang members or their associates, and the severity and brutality of crimes has escalated at an alarming rate. Illegal drugs have been shown to be a disturbing contributing factor in violent crimes. It is estimated that in San Bernardino, a minimum of 2,100 individuals belong to 10 of the major gangs, with 90 subsets within the city. A comparison of 199411995 homicides reveals that gang related killings have increased from 10 cases in 1994 to 25 cases in 1995. We will be focusing on all of the violent crimes listed above as this "initiative" begins to plan strategies to reduce the occurrence of violent crime. An important part of this will be planning for an at-risk youth prevention program. It will take some time to develop a quality, lasting program in this regard, but it is certainly worth a concerted effort. The ever present responsibility to be careful stewards of our resources resulted in the development of the Efficiency Initiative. This effort by a cross section of the Department will be a critical element in preserving the trust that is placed in us by City leadership and the community we serve. This Initiative will be asking what we need to do differently, what we should stop doing, and start doing. As the collection, storage, processing, and dissemination of information is approaching a state of "critical mass, " it is clear that we have two choices, manage information or be buried by it. The formation of the Information Management Initiative, staffed by a cross section of those close to the issue, is critical. This Initiative will facilitate an Information Management Strategic Plan, and serve as ongoing stewards of existing and proposed enhancements. 7 PERFORMANCE MEASURES We have identified five performance measures which will provide focus and flexibility in assessing our ongoing productive use of resources, toward a net reduction in crime. Our goal is to show an overall measurable reduction in part I crimes each year, with an ambitious target of a`25 percent';drop by the year 2000. Response times Violent crime clearance rates Chronic service drains Public perception KE'y "int[ tlYe" r�G Qlii IShtt7 n, Response times - This is perhaps the most objective measure from a customer-service standpoint. It is tied closely to our 'proactive time" benchmark of 33 percent. Our bench mark goals within the first year are: Priority E, 4 minutes; Priority 1, 7 minutes; Priority 2, 20 minutes. Violent Crime Clearance Rates - Most violent crimes are committed by repeat offenders. Our bench mark here is to reach and sustain, if not surpass, a 44 percent average combined clearance rate for murder, robbery, rape, and aggravated assaults, by increasing the clearance rate at two percent per year over the next three years. Chronic Service Drains - Police Departments historically spend an inordinate amount of time with repeat "customers, " and locations. Our bench mark here is to reduce by at least one half, return calls for service at one chronic service location in each of the five area commands every quarter. Public Perception - The fear of crime is worse than the statistical likelihood of becoming a victim. Although this measure is difficult at best to quantify, it needs to be at the forefront of our thinking. A solid reputation for public safety is pivotal to a vibrant community. Key "Initiative" Accomplishments - Each of the four major initiative groups will be reporting on measurable accomplishments. This is where our service foundation exists. Our bench marks here will be spelled out in the annual planning matrix for each initiative. Note: See Appendix D for Crime Reduction Goals and Strategies. 8 � STAFFING AND SERVICE LEVELS Police have for years struggled with projecting and justifying staffing levels. Determining the adequacy of a police force must be considered in the context of a community's desired service and willingness to collectively support the "venture". Council action relative to (1) assessment funding, (2) commissioning of a police department audit and, (3) acquisition of a computerized Police Resource Optimization System (PROS), centers attention on staffing and service expectations. This response addresses those concerns. In most cases, requests for increases in police personnel have been based on comparisons with other agencies or on the nationally used bench mark of one officer per one thousand population. Personnel justifications based on these rationale are weak because they do not give appropriate consideration to local variables such as demographics, crime rates, economics and leadership. Technology now employed by the police department provides detailed analysis workload of field officers. This analysis is based on data provided by the complex mini-mainframe Computer Aided Dispatch systems and the Police Resource Optimization System (PROS) software. We can analyze large amounts of local data to provide the basic foundation for assumptions made and decisions rendered in regards to appropriate staffing levels. General statewide oversight for setting police "industry" standards rests with the California Commission on Peace Officer Standards and Training (POST). Based on extensive study, the POST model workload study recommends a standard of 33% unobligated patrol time as sufficient to provide proactive police activities. This is also the target figure referenced in the police audit. Annual data collected from 1992, 1993, 1994, and 1995 served as the data base to forecast local trends. PROS analyzed 1995 data for current proactive levels and staffing increases necessary to attain 33% proactivity. Queue time is defined as the time lapse between the receipt of the call at Communications until an officer is dispatched. This measure is directly affected by the number of officers in service and available for assignment. Thus, when calls are dispatched immediately, queue time in minimal. Queue time is measured within each call priority. 9 STAFFING AND SERVICE LEVELS CONT.: Computer aided dispatching (CAD) categorizes incoming calls into five (5) exclusive priorities: Emergency: Immediate life threatening. Priority One: Very serious where bodily injury could occur for felonies and serious crimes are in progress. Priority Two: Potentially serious calls such as misdemeanors in progress, suspicious persons, and the like. Priority Three: Hazardous conditions or disturbances of no immediate danger and crimes against persons not in progress. Priority Four. Property crimes not in progress, administrative activities, and municipal code violations. Response time is the time it takes an officer to arrive on the scene of a call once it is dispatched. 1995 Queue 7Ymes 1995 Response 71mes Call Priority Minutes Call Priority Minutes E 1.1 E 4.6 PI 2.6 PI 78 P2 16.5 P2 22.63 P3 49.9 P4 53.1 Additional field officers, PROS scheduling and work load distribution among the new area commands are projected to reduce queue and response times. 10 PATROL TIME AND COPPS Problem Oriented Policing (POP) can be briefly described as the focused efforts of police personnel to solve problems. Solving problems ultimately reduces calls for service. Generally, solving problems involves the expenditure of time not normally available to police personnel who are required to answer calls for service. An argument could be made that 'folding" POP officers back into the patrol force would result in a corresponding increase in proactive time. However, it is our belief that this would not be a focused, effective use of POP officers' talents. Placing POP officers back into the routine calls for service mode would not allow them to develop effective, professional relationships with city hall, fire, building and safety, and code enforcement personnel. It also would not allow them time to develop significant community relationships. Placing POP personnel back into patrol would also not allow the uninterrupted time needed to start, follow through, and complete projects. It would not facilitate holding POP officers accountable for projects that are designed to directly benefit the community and reduce calls for service. Recent data has shown that calls for service have begun to drop in the last couple of years. We believe this is in large part attributable to POP's emphasis on solving problems related to repeat calls for service. Dismantling POP as it now exists would be counterproductive. Unobligated patrol time is essential to successfully strengthen our Community Oriented Policing and Problem Solving (COPPS) philosophy. An integral key to this program is proactive policing vs. a merely reactive style. Reactive policing is best described as a "finger in the dike" approach. Proactive policing will allow us to identify problems and develop solutions that can be immediately implemented. It provides the flexibility needed to plan specific long term or short term strategies and deploy resources as needed. In simple terms, we need to know how many 'patrol force" officers are required to sustain the bench mark of 33% unobligated time. e 11 FIVE-YEAR STAFFING PLAN TOWARD 33% BENCH MARK STAFFING INCREASE DOLLARS '(PERSONNEL) YAR PERSONNEL FY 96/97 FY 97/98 FY 98/99 FY 99/00 FY 00/01 FIVE TOTALS E TOTALLS P-1 612,030 (11) 630,730 (11) 599,100 (10) 616,900 (10) -0- (0) 2,458,760 (42) P-2 -0- (0) 164,060 (2) 168,860 (2) 174,060 (2) 179,060 (2) 686,040 (8) P-3 -0- (0) 93,230 (1) 96,030 (1) 98,930 (1) 101,830 (1) 390,020 (4) FRC 1 -0- (0) 27,100 (1) 27,600 (1) 27,600 (1) 28,200 (1) 110,500 (4) PRC II -0- (0) 35,500 (1) -0- (0) -0- (0) -0- (0) 35,500 (1) CSR I -0- (0) 30,700 (1) 31,300 (1) 62,600 (2) :311,900 (1,' 156,500 (5) CSR II -0- (0) -0- (0) -0- (0) 40,000 (:1) _1j•, (0) 40,000 (1) TRANSCRIPTION -0- (0) 10,600 (1) 10,600 (1) 10,600 (1) 10,600 (1) 42,400 (4) -------°------------------------------------------------------------- -•------ JTALS FOR _----- ----------_-° $612,030 (11) $991,920 (18) $933,490 (I6) $1,030,690 (18) $351,90 (6) $3,919,720 (69) - ADDN'L PSNL PER YEAR _. -_»_» - -------------------------- CARRYOVER COST5 lat, 2nd, 3rd--4th_'--- --`-- $720,830-(11) $1,867,750 ("29) $3,042:940 (45) $4,358,630 (63) $10,010,150 '(69) Grid TOTALS $612,030 (11) 61,7-2,7SC ;29) $2,82-1 240-(45)$4,073,630 (63) $4,710,220»(69)�$13,929,870�(691 Associated with the aforementioned personnel costs are additional costs for vehicles, both marked and plain, overtime, miscellaneous equipment, academy costs, and other incidentals. Our estimate for the five years of this staffing plan is that those costs will amount to approximately $1,067,680. The above chart and associated costs reflect the optimum in terms of support and supervision staffing to augment the base request of 42 officers (top line). A commitment to fund support and supervision positions is not a condition precedent to moving forward with the hiring of additional officers; this should be revisited as the budget situation improves. 12 ASSESSMENT FUNDING In July 1990, a special assessment district was created to fund enhanced police services in the city of San Bernardino. This district paid for streetlighting and street sweeping services. General fund monies dedicated for those purposes were then made available to fund police activities. This funding provides the Department with 23 sworn personnel and 25 nonsworn personnel. This original assessment district provided for an assessment of$48 per parcel in the city and generated revenues of approximately $3,000,000 per year. In February 1994, the Department received a Police Hiring Supplement Program grant. This grant provided federal matching funds for 17 additional police officers. The federal funds amounted to a total of$1,439,195 over three years. These funds accounted for 50 percent of the salaries and fringe benefits, excluding overtime, for those 17 police officers. At that time, it was decided that the funding source for the City's matching funds would be an increase in the 1990 Streetlighting and Street Sweeping Assessment District. Thus, that district was increased to $65 per parcel, and graffiti clean up and traffic signals were also funded out of the district. This took place in June 1994. Current assessment district revenues are approximately $4,200,000 per year. Thus, a total of 65 Police Department personnel are currently funded, either partially or in whole, by Assessment District #994. With reference to the 17 officers funded via the federal grant and the assessment district, federal matching monies will soon be exhausted. The Department's estimate is that we will receive grant funding through October or November 1997. We will receive approximately $220,822 during that fiscal year. This compares to the $509,353 of federal grant monies we anticipate receiving in FY '96197. On March 17, 1995, Ralph Anderson and Associates completed a management audit of the San Bernardino Police Department. This audit stated on page 81, "The Patrol Division's staffing levels appear low, when compared to service demands and the Department's service delivery objectives. " The audit goes on to state, "Using available calls for service data, the number of patrol officers required to provide service will be identified. " On page 109 of the management audit, it is stated that appropriate levels relative to staffing in the Patrol Division will be developed based on reliable data extracted from the PROS (Police Resource Optimization) System. PROS is a complex system, and Department personnel are just now becoming proficient with it. Nevertheless, we believe that the data we currently have is reliable, within reasonable parameters, and we have validated it using another method. The uniformed Patrol Division is authorized 156 officers (P-1's and P-2's). Of this total, 134 are assigned as call takers. 13 Twenty are assigned to problem-oriented policing and bicycle teams. The two remaining officers are assigned to the Department's Neighborhood Service Teams. Of the officers assigned to Patrol for call handling, approximately 106 are available at any one time due to a vacancy factor (training, vacation, illness, injury, unfilled slots, other non patrol time) of approximately 20 percent. Based on 1995 data, PROS has determined that, with 106 officers, their proactive time is 18 percent. California Peace Officers Standards and Training recommends a proactive level of 33 percent to allow uniform police officers adequate time to effectively solve problems and prevent crime. To increase proactivity to this 33 percent level, we will need to provide a staffing level so that 147 officers are available at any one time for call taking. Factoring in the aforementioned 20 percent vacancy level, this equates to 176 officers assigned to the Patrol Division as call takers - a recommended increase of 42 police officers. Associated with a recommended increase of 42 police officers will be a need for additional Department supervision, clerical support, equipment support, and overtime expenditures. As noted earlier, we have validated the PROS data using another method. Specifically, a Patrol staffing report, prepared by another department, established a bench mark figure of 700 dispatched calls for service, per officer, per year. This is typically translated into a 33 percent availability figure for preventative patrol. Department staff have analyzed the calls for service being handled annually by our sworn call takers. For calendar year 1995, our officers handled 995 calls for service per year. Taking that 995 calls times the average availability of 106 call takers, equals 105,470 dispatched calls for service. Dividing 105,470 by 700 gives a recommendation of 150.67 officers. This is almost identical to the PROS recommendation of 147 officers, thus validating the PROS information. Clearly, the City and the Police Department are rapidly approaching a point where some critical funding decisions will need to be made. Assessment District #994 will expire in June 1997, unless the Council votes to continue it. Additional funding will be needed in FY '97198 to pay for the 17 federal grant police officers as the federal matching funds expire. A funding source will also need to be identified if the Department is to begin to phase in additional personnel so that we can provide a level of 33 percent proactive patrol time. i I i 14 SAN BERNARDINO POLICE DIVERSITY IN POLICE SERVICE ERN h 9�0 o. or <IcE� FINAL WORKSHOP REPORT MAY 15, 1996 APPENDIX A 15 DIVERSITY IN POLICE SERVICE WORKSHOP PARTICIPANTS Mel Albiso G. Harold Duffy Charlie Lim Kiwanis Club Human Relations Commission Korean American Grocers Assoc. Wallace Allen Reverend William Dunston Luis E. Lopez Westside Action Group NAACP Police Commission Marie A. Alonzo Mark Emoto Frank Mankin I.E. Hispanic Police Sergeant Police Lieutenant Chamber of Commerce Phil Arvizo Wesley Farmer Brone McGee Council Office Police Captain Police Officer Michael Billdt Marielena Garcia Larry Neigel Police Lieutenant County of San Bernardino Police Lieutenant Maurice A. Calderon Wally Green Dee Saenz S.B. County Credit Union Carousel Mall Personnel Department i H. Doug Chandler Wayne Harp Debi Shuker Civil Service Assistant Chief of Police Police CSR III Carl Clemons Gloria Macias-Harrison Dave Snell Police Commission Inland Empire Community Newspapers Police Lieutenant Robert Curtis Ted Henson Frank Stallworth Police Captain Police Sergeant Senator Ayala's Office Lee Dean Gerald Jones Reverend Ray Turner Chief of Police Police Detective Temple Missionary Baptist Church Barbara Dillon Peter Le Ernest Wilson Personnel Department WE Financial Corporation Affirmative Action Office 16 GROUP DISCUSSION Overview: An important part of a Diversity Recruitment and Hiring Plan is to know where we are, and where we want to be. The city of San Bernardino is at a point to realize a bright future of continued growth, with changing populations, new opportunities, and more challenging problems. A Police Department that maintains a workforce that represents the community it serves will best be suited to meet those challenges. Our goal is to build and maintain an organization of men and women reflecting the cultural diversity of our city, with each member of that organization, regardless of background, demonstrating awareness and sensitivity to every segment of our population. It is the commitment of the San Bernardino Police Department to actively recruit police officer candidates of the quality and ethnic variety that will endorse successful hiring of underrepresented groups, in order to achieve and maintain a work force that ethnically represents the population of the city of San Bernardino. Underrepresented groups in our society often finds themselves placed in, what may seem to some, an adversarial role with the police. The perception has, in some individuals, made it very unlikely that law enforcement will even be considered as a career. Some members of underrepresented groups have also received less than adequate training and preparation to enter the workplace, but possess the ability to learn, given the opportunity. Law enforcement has typically attracted the middle class, white male. Assuming that group will still continue expressing interest in law enforcement, the challenge will be to attract members of underrepresented groups to the profession in sufficient numbers to allow the hiring and advancement of qualified candidates. Utilizing community, non-profit, and socially-oriented agencies will provide access to applicant pools and may provide volunteer assistance with the pre-hire process. Utilizing such outside assistance with recruitment and hiring will facilitate a cost-effective enterprise. Educational agencies, including police academies, community colleges, universities, and local school districts are concerned with the placement of graduates, and will offer assistance in the recruiting process as well as providing forums for job fairs and help with publicity. Community agencies, including the business sector, ethnic service clubs, other organizations, and churches also share a common concern for underrepresented groups that they represent. Internal policies and procedures to ensure fair and balanced opportunities for underrepresented advancement must also be in place. 17 Strategies for Success 1. Select a plan of action based on specific goals and measurable objectives, basing program objectives as well as short-term goals, on needs assessment, available resources and research. 2. Utilize a vertical command structure in the Police Department, bypassing levels of the organization that might create confusion or delay, while working toward achieving and maintaining the overall objective of a representative workforce. 3. Generate the commitment of command staff, as well as genuine community support for a Police Department that represents all segments of the community. Add a performance evaluation factor to each manager's evaluation form to capture workplace diversity efforts. 4. Utilize and support existing programs in the community at large that support equal opportunity employment for underrepresented groups. S. Increase the awareness of cultural diversity in our community and within our Department through an ongoing cultural awareness training program. 6. Insure sustained oversight of the Diversity Plan through a well defined process, with specific accountability. 7 Create a bridging procedure to allow the cross-over of underrepresented employees from nonsworn to sworn positions. Ensuring a Viable Program Annual and periodic reports detailing recruitment, hiring, and training activities, as well as success in meeting measurable objectives will insure accountability. The ability to adjust program activities and objectives as needed to achieve success, is important to continued viability of the project. Fine tuning, based on fair and objective evaluation, as well as changing demographics, will provide the best opportunity for the success. Community feedback, evaluation from employees, and information from successful job seekers, as well as unsuccessful job applicants, will offer a human dimension to the evaluation of the program. Effective communications, especially effective listening and appropriate action, that is consistent with the mission, and core values of the San Bernardino Police Department is critical to the program. 18 FINDINGS AND RECOMMENDATIONS Top Quality, State-of-the Art Recruitment • It is essential that sworn police officers be tasked with the responsibility for candidate recruitment, and that such officers, to the extent possible, mirror the cultural diversity of our community. • The designation "O.P.A.L. " (Outreach Police Advisory Liaison) is a viable, attractive way to capture the focus. O.P.A.L. should be a community-based education and recruitment program staffed by community members who represent the various ethnic groups in our community. • O.P.A.L. would recruit qualified candidates from the city's various ethnic groups, and be responsible for assisting qualified candidates, including job preparation, education, and tutoring, if necessary. • O.P.A.L. would work in close concert with the police officer recruitment team. Part of the thrust would be to make test preparation materials available, to include information and instruction on both oral and written examinations. • Open and continuous recruitment for law enforcement trainees is critical. Efforts have already been made in order to make this recommendation a reality. TYming • Summary testing is of key importance. To the extent possible, tests should be orchestrated so as to consume the least possible time, and be administered on one day if possible. • A coordinating committee, consisting of Civil Service, Police, Personnel, and Affirmative Action should work together toward streamlining the process. • Design a flow chart/timing process for tests, as well as attractive, professionally prepared flyers on testing dates, location, and alternatives. • Flexibility in terms of weekend testing, as well as evenings, in addition to a variety of site locations will enhance the process. • Background investigations should be contracted in order to streamline the hiring process, making the Department more competitive and attracting qualified applicants. Retired officers could be used in this capacity. 19 Matching Priorities • A coordinating committee consisting of Affirmative Action, Civil Service, Police, and Personnel, should have oversight responsibility in terms of training Police Department personnel to proctor tests, fast tracking, updating rules and regulations, and also facilitating Council approval and input with respect to hiring. • Test questions for entry level police officers should be examined to insure the relevancy and potential adverse impact they could have on the police candidate hiring pool. • Elimination of artificial barriers, in order to make the process "applicant friendly" is critical. Such barriers are sometimes hidden, chronic impediments to hiring. The use of self-addressed, stamped envelopes was but one example of addressing an artificial impediment. • To the extent possible, the hiring process should be automated. One example is the rapid results of test scoring. Members questioned why it took so long for written tests from the Civil Service process to be scored, and urged the purchase of a Scantron or other appropriate device to allow immediate scoring and candidate feedback. • The Civil Service Board should seriously examine the merits of merging lists in order that they can run concurrently, to facilitate expeditious, ongoing hiring. Competitive Incentives • A critical comparison with other agencies regarding hiring incentives should be performed in order to ensure our competitive edge. A starting point here would be to acknowledge and market existing incentives, to include highlighting appropriate role models, consistent with program goals and objectives. • Any artificial cap on the number of officers entitled to bilingual pay should be avoided. This is not only important in terms of an incentive, but also important as it relates to community partnerships and interaction. The chief of police should have the discretion to establish the starting pay step for new employees commensurate with their education and experience. • Emphasis should be placed on city resident recruitment so that we attract those qualified candidates who come from our community. One way of doing so would be to provide some form of incentive program to encourage police employees to recruit from the targeted groups. SUMMARY Many suggestions were memorialized during the course of the day. Those listed above are the ones with uniform, strong consensus. Taken together, these recommendations are broad enough r• to form the framework for a viable Diversity in Police Services Action Plan. 20 SAN BERNARDINO POLICE DEPARTMENT Leadership - Stepping Beyond SAN BERNARDINO, CA March 13th & 27th, 1996 by Lee Dean, Chief of Police San Bernardino Police Department APPENDIX B 21 Moving beyond facilitation and logistics toward helping "steer" the enterprise, " is a real and present challenge. Can we get there from here? Sure. Leadership, personal success factors and a coherent vision are the key ingredients. Paradigm shift from "mandates"per se, to a success curriculum based on a shared vision in step with reality and the future focusing on an institutional unity of purpose and action. Paradigm Defined: • A frame of reference • A way of looking at things • The lens that we view things through • A model, theory, perception or assumption 22 Key Success Factors in Making This Paradigm Change... PERSONAL SUCCESS FACTORS: • Be proactive (response -able) - take time to listen I • Begin with the end in mind - stay focused on your vision (Paradigm) • Put first things first - keep your commitments ICI • Seek win-win solutions - develop a cooperative mindset • Seek first to understand, then be understood - deal with the reality inside the other person 's head and heart (Adapted from Stephen R. Covey's 7-Habits of Highly Successful People) 23 Key Success Factors in Making This Paradigm Change... INDUSTRY SUCCESS FACTORS: • Identify hidden chronic problems • Build bridges, not walls • Help people grow in their jobs • Develop possible "solutions" • Look at the broad perspective 24 An intrinsic sense for contemporary issues is fundamental. Quality leadership I! • Liability creating conduct • Strategic planning • Wellness and safety • Dealing with change • Managing diversity • Efficiency and productivity • Civil disorder • Civil disaster 25 Effective leadership will be an essential ingredient Leadership has been defined as: • Showing the right way, the right vision. • The ability to keep people moving in the right direction by example, persuasion and guidance. • Doing the right thing in relation to furthering our mission, our purpose, our reason for existence, the service we provide. • Doing the right thing in relation to values, the guides for appropriate and inappropriate behavior. • Leadership, then, is the act of leading by example, standing up for what you think is the "right thing, " showing the way, holding to the purpose and espousingpositive beliefs. 26 Ten Characteristics of a Good Leader: 1. Imagination. He or she harnesses imagination to practical plans that produce results. 2. Vision. The present is just the beginning. A good leader is impressed with the possibilities of the future. 3. Sincerity. A good leader can be trusted. 4. Integrity. A good leader has principles and lives by them. S. Generosity. He or she knows the value of anonymous giving. 6 Poise. A good leader isn't overbearing but is friendly and assured. 7. Thoughtfulness. He or she is considerate, aware. 8. Common Sense. A good leader has good judgment based on reason. 9. Altruism. A good leader lives by the Golden Rule. 10. Initiative. He or she gets things started now! 27 Four Key Leadership Success Factors - Leaders need to be... I. Passionate - about making a difference 2. Patient - with self growth 3. Purposeful- in action 4. Persistent 28 "Winning" Outlook for San Bernardino Police Department Leaders Why not make things happen? • Some watch what happens while others ask what happened. Individual growth through outward focus. • Define yourself by what you give to others. New Commitment to Personal Success Factors. • Passion, Patience, Persistence, Purposeful. Negative outlook- out! • Positive self expectancy as key ingredient. Innovative thinking • Toward unity of purpose and action. Nothing less than excellence. • Leadership comes with higher expectations and responsibilities. Give of yourself. • Care enough about the enterprise to seek out criteria for success... 29 RNq i 90, Mission Statement and Core N o Values of the San Bernardino , oL,cO Police Department Mission Statement: The San Bernardino Police Department is committed to providing: Progressive quality police service; A safe environment to improve the quality of life; A reduction in crime through problem recognition and problem solving. Core Values: • Commitment to Public Service and Safety • Integrity • loyalty • Respect for the law • Accountability 30 SAN BERNARDINO POLICE DEPARTMENT IDENTIFIABLE PURPOSE IS A PREREQUISITE TO EXCELLENCE: VISION STATEMENT Vision: Ideal and unique image of the future for the common good. OUR VISION IDEALLY SHOULD... • Reflect core purpose • Set the standard for decisions • Establish clear direction; i.e., common frame of reference OUR VISION NEEDS TO... • Be feasible • Be challenging • Have larger significance;i.e., provide a belief in something larger than day-to-day tasks OUR LEADERS MUST BE WILLING TO... • Enthusiastically mirror the vision in their behavior • Convey its importance; i.e., at public occasions, staff meetings and one- on-one �rrr► 31 LEADERSHIP EXPECTATIONS 1. Challenge the Process: Turn ch n in direction of progress and hope. • Look for innovative solutions • Search for opportunities • Experiment and take risks • Remove organizational constraints • Accept mistakes and learn from them • Recognize value of"newness" 2. Inspire a Shared Vision: 'Ideal and unique ima of the future for the common good. " i 0 Intuition and choice based on acquired experience and knowledge • Envision uplifting and ennobelingfuture • Enlist others in common vision • End result/making life better in long run • Central role of core values 32 i LEADERSHIP EXPECTATIONS 3. Enable Others to Act: Foster synergy • Develop cooperative goals • Seek integrative solutions • Build trust • Support mutuality • Sustain on-going interaction • Emphasize long-term pay offs • Strengthen others by empowering 4. Model the Way: Evidence in Actions • Keep commitments • Walk your talk consistently • Create a sense of momentum • Build on small wins 33 LEADERSHIP EXPECTA TIONS III S. Encoua a the Heart. Coaching. . g• . • Sustain enthusiasm over time • Recognize individual contributions • Celebrate team accomplishments • Set high expectations • Recognize value of challenge i • Heart power as strength of organization • Can't buy it! err 34 PRINCIPLES: Deep fundamental truths that have universal application. RELATIONSHIPS: INTEGRITY--> TRUST <--HONESTY "THE POWER OF ETHICAL MANAGEMENT "Many people contend that nowadays there is a big gray area as an excuse not to worry about being ethical. " "There is No Right Way To Do a Wrong Thing. " "So you think guidance from the top is needed to bring out the best in people? Absolutely!" "Positive thinkers t positive results. " g "A person of principle has to be clearheaded and decisive in order to act in a manner consistent with his or her values. " "People who have a healthy amount of self-esteem tend to have the strength to do what they know is right. " "What you want is pride sprinkled with a fair amount of humility. " "Needing to be right all the time has to be an exhausting way to live. " "Self-esteem and pride are learned attitudes. " "No One Can Make You feel Inferior Without your Permission. " "So the idea is to build up your own self-esteem and pride, but not to get carried away with your own importance. " "You're right about patience being especially difficult today. And it's precisely because of the fast pace of our world that we so desperately need to rediscover the importance of faith and to take a long-range view of the consequences of our actions. " 35 i i THE POWER OF ETHICAL MANAGEMENT" Continued "Every Problem Can be Solved If You Take Some Quiet Time To Reflect, Seek Guidance, and Put Things Into Perspective. " "I am convinced that it all comes down to how people - both employees and customers - perceive the way they are being treated by the organization and its management. " "Pride in organizations is a reflection of how people feel about the organization they work for. " "Before they can have pride in their organization,people must first feel good about themselves and what they are doing for the company. " "Feedback on results is the number-one motivator of people. We all want to know how well we are doing. " "When people are attacked or not dealt with in a truthful manner, they lose respect for their organization and pride in their jobs. " "Every time you psychologically beat up someone, you not only tear down that person's self-esteem, but you diminish any respect he or she might have had toward you as a manager or toward the organization. " "Life is all about winning and helping others to win. " 'A seagull manager flies in, makes a lot of noise, dumps on everyone, and then flies out. " "If managers would think and reflect more often before they acted, valuable energy could be used to do things right the first time. " 36 Nine Fundamental Techniques in Handling People • Don 't criticize, condemn or complain. I • Give honest, sincere appreciation. Arouse in the other person an eager want. • Become genuinely interested in other people. • Smile. • Remember that a person's name is to him or her the sweetest and most important sound in any language. • Be a good listener. Encourage others to talk about themselves. • Talk in terms of the other person's interests. • Make the other person feel important- and do it sincerely. 37 Nine Ways to get Results • Begin with praise and honest appreciation. s • Call attention to people's mistakes indirectly. • Talk about your own mistakes before criticizing the other person. • Ask questions instead of giving direct orders. • Let the other person save face. • Praise the slightest improvement and praise every improvement. Give the other person a fine reputation to live up to. • Use encoura g ement. Make the fault seem easy to correct. • Make the other person happy about doing the thin you suggest. gg est. 38 City of San Bernardino San Bernardino Police Department Interoffice Memorandum To: Chief Dean From: Cooperative Problem-Solving Initiative Subject: Initiative Report Date: May 15, 1996 Copies: Administrative Staff and Initiative Members Problem The ability of the Police Department to generate quality service delivery is limited by the current configuration of area commands and organizational structure. Recommendations Divide the city into five geographical area commands. Each area would have one community service office. Fines The Cooperative Problem-Solving Initiative was created April 10, 1996, and held its first meeting the following day. The objectives were to examine the: • Current configuration of the area commands' geographical boundaries • Staffing requirements of any proposed area command reconfiguration • Number and locations of community service centers • Division between POP officers and patrol officers • Decentralization of functions • Integration of internal and external feedback into our process. Area Commands An analysis was made using the Police Resources Optimization System (PROS)to evaluate Patrol's workload in terms of expended officer hours during the calendar year of 1995. This analysis gave an overview of the city showing the distribution of workload for patrol officers. APPENDIX C 39 Workload One barometer of efficiency is the workload imbalance percentage. This examines the number of officer hours per reporting district expended during the year. Proposed commands are configured using different boundaries to determine the most equitable distribution of work. The more balanced the workload, the less cross-over and, consequently, more efficient operations. The accepted wisdom on workload imbalance is that any percentage below 10% is considered very good. Workload imbalance, using our 1995 data, is reflected in the following chart: ConfiL-uration Workload Imbalance Proposed 5 Area System 5.9% Current 3 Area System 13.7 Previous 6 Area System 15.1 This distribution was evaluated in light of the demographics of the city (census tracts), natural neighborhoods, topography, land use (zoning maps), and practical area boundaries. These considerations, combined with the data evaluated by PROS to establish equitable workload distribution,provided a conclusion that five area commands would be more efficient than the existing three and defined what the boundaries of the five areas should be. (See Attachment A.) Also,the current size of the area commands far exceeds an area commander's ability to effectively interact with all segments of the communities within their area boundaries. There is unanimous agreement by the area commanders on this point. By downsizing the current area command boundaries, we would enhance the area commander's ability to respond to citizens' needs. Lastly,the criteria used to align the original six-area configuration was the number of calls for service and major traffic arteries (in an attempt to create symmetrical boundaries). This contrasts sharply with the criteria used in our analysis. A second responsibility of our initiative was to insure that the service office locations consistently meet the public's needs. This concern required us to examine the: (1) necessary number of service offices; (2) staffing issues associated with the service offices; and, (3) office locations. Number of Offices and Staffing In order to accommodate five area commands,two lieutenant watch commanders would need to be converted to area commanders. This is a more appropriate for a lieutenant's skills, knowledge and abilities. 40 To further enhance the area commander's ability to be supportive of community needs, we recommend maintaining the administrative sergeant positions. By increasing the current number of administrative sergeants by two, seventeen supervisors remain for field duties.. This number is adequate. The current number of service offices exceeds our ability to consistently staff the offices. We have one Police Record Clerk(PRC) assigned to each of the six offices. When a PRC takes time off or vacancies occur, the area commanders have two choices: (1) the service office may close for the associated timeframe; or, (2) a Community Service Representative (CSR) may be pulled from field operations and placed in the unattended office. Both reactions have significant downsides. First, if the office hours are not consistent, the public will not attempt to use them after a few frustrating incidents of finding an office closed when it is supposed to be open. In the second scenario, the workload of the reassigned CSR is shifted to the remaining field units, contrary to the purpose of the CSR position. We recommend assigning five PRC's to each of the proposed area commands. The sixth PRC would be assigned a utility role. The function of the utility PRC would be to provide coverage in the absence of an area PRC. When additional coverage is not necessary, the utility PRC could be used for Records functions, like data entry. By supplementing office personnel in this manner, we significantly impact our ability to keep consistent office hours. Currently,the offices are open four days a week. This coincides with the PRC's 4-10 workweek. However, if we are to make the offices"user-friendly"we should know and accommodate our citizens' needs. Therefore, we would like to explore the possibility of expanding service hours in two ways. First, a significant number of San Bernardino residents commute to work sites outside San Bernardino. Our current office hours are 0700-1700 hours. However, we are unsure if these work hours meet the needs of the communities we serve. We propose tracking the citizen usage of the offices' services. This will provide us with a snapshot of when the offices are being used. At the same time, we would conduct a community survey to assist in determining the most beneficial office hours for the public. Because we may have different needs within different segments of our community, the results of these efforts may require different office hours for different offices. Secondly, we would like to examine the worthiness of expanding office hours to include Saturdays. Since most people are off-work on Saturdays, it may be convenient for them to have our service offices open on Saturdays. We suggest an experimental project where one service office is kept open on Saturday for three months. We would measure the usage of the service office on Saturdays to determine whether or not keeping the offices open on Saturday should be expanded to the remaining service offices. If the data indicates the need for Saturday coverage, we suggest using volunteers, similar to `B" team's office process. 41 Office Locations The Committee recommended criteria for placement of the community service office within each area command. Each office should be: • accessible • convenient to the area citizens • readily identifiable • approachable (professional appearance, clean, inviting to people) • user friendly Using this criteria, we assessed each of our current offices. The results follow: Kendall Drive The current office is located in a trailer on a parking lot of a shopping center. It meets each of our criteria except being approachable. The trailer we use does not present a professional appearance. We recommend moving the office out of the trailer and into one of the several vacant permanent office sites at the shopping center. Lt. Jarvis is negotiating with the developer of the center to determine the costs of closing the trailer and moving into a permanent site. Baseline and Arrowhead Meets our needs. Fifth and Herrington The strip mall setting of this service office fails to meet two of the location criteria and should be closed. The office is infrequently used by the public,not centrally located and, therefore, not convenient to area citizens. Secondly, it is offset from the roadway a significant distance and not easily identifiable. Mill and Mount Vernon This site does not meet the established evaluation standards and should be closed. It is infrequently used by the public, not easily identifiable nor centrally located in the proposed area reconfiguration. However, we recommend continuing the use of this office until a more appropriate location can be found. We are sensitive to the fact that closing two of the three Westside offices could be interpreted as a disproportionate redistribution of offices. Therefore, a decision on the replacement location should consider this issue. Baseline and Medical Center Drive Meets our needs. 42 Highland and Sterling Meets our needs. Division between Patrol Officers and POP Officers The division that has developed between patrol officers and POP officers is the result of how the organization structured POP. As currently structured, POP is a program. Once we placed an additional box on our organizational chart, labeled that box"POP", and assigned POP officers, we were committed to a programmatic approach to community policing. In order to make a philosophical commitment to cooperative problem solving, it must be integrated throughout the patrol division. We are convinced that the sergeants play a critical role in transitioning from our current programmatic approach to a philosophical shift. Therefore, we recommend prior to initiating the following changes,we hold training and discussion groups with the sergeants. Also, since they play a major role in the process, we would rely heavily on the sergeants' input to develop linkages between POP performance and rewards/evaluations/ promotional process. To accomplish this, we propose a two-phase process. First, in the transitional phase, we create a temporary"POP box"within each area command. The purpose of the box is to isolate the officers from handling calls for service. Two officers are placed in the box as POP trainers. Two additional officers are assigned to the POP trainers. They would not be subject to calls for service. The purpose is to allow them an opportunity to gain experience working through a SARA project developed in conjunction with their shift sergeant. The duration of this TDY assignment would be so as to learn the basics of POP and complete the SARA project. All completed SARA projects should be reflected in the Cooperative Problem-Solving Biannual Reports. With five areas, it would take about fourteen months to train all patrol personnel. Once the personnel are trained in POP, they would return to their area assignments. In the second, and final phase, a POP box would be maintained within each area. Two officers from each area would be assigned to the POP assignment for a six-month timeframe. Their assignments would overlap by three months; hence, every three months a new officer would be assigned the POP function. Also, when a patrol officer identifies an area problem that can be resolved through the problem-solving process, the officer presents his/her proposal to their shift sergeant. When the supervisor approves a POP project,the officer temporarily enters the POP box until the project is complete. The officer may volunteer for calls for service if time permits. The area commanders would determine the number of officers in the POP box at any given time. Also,assigning the officer calls while in the box would be prohibited. Once the POP project is completed, the officer rotates back into their area assignment. 43 Decentralization of Functions Traff c In 1992, the department decentralized the traffic unit to the area commands. However, the traffic bureau was re-centralized. During the decentralization period, the productivity of the motors nose-dived. They seemed to get"lost in the shuffle". Consequently, their impact was severely limited. Once they were re-centralized,their productivity re- established itself to previous levels. Hence, we recommend maintaining the current organizational arrangement in the traffic bureau. Detectives We discussed the decentralization of detectives assigned to property crimes at length. However, significant organizational issues remain to be addressed prior to conceptualizing and implementing a viable decentralization plan. Crime Analysis/Crime Prevention/Citizen's Patrol The role of Crime Analysis, Crime Prevention, and Citizen's Patrol within a five area configuration was explored. However, significant organizational issues remain to be addressed prior to conceptualizing and implementing a viable decentralization plan. BMET Due to the effectiveness of the BMET teams, we recommend that each area have two i4m) BMET officers. The area commanders were emphatic about the need to maintain BMET officers in each area. This would necessitate the addition of two officers to this detail. Our initiative sees significant advantages to decentralizing certain departmental operations. However, our position is that no matter how good an idea might be, if the timing is inappropriate,the proposed change will fail. We propose continuing to examine decentralization of certain detective bureau functions, crime analysis, crime prevention and citizen's patrol. If findings support decentralization, we recommend initiating change at the appropriate time. Organizational and Community Feedback Over the past five weeks, the five area configuration was presented to San Bernardino Police Department personnel for review and feedback. The predominant response was positive. The primary attraction for line personnel was the even distribution of work. Also, one of the most frequent requests by patrol officers was the desire to return to permanent call signs. The representatives from dispatch said this change would not be burdensome on dispatch. Therefore, we propose permanent call signs be designated for field personnel. 44 Our members are just beginning to make presentations to community groups. So far, the response has been positive without negative consequences. We intend to continue to seek community input to the proposed changes in the upcoming weeks. The groups are listed in the Attachment B. Additional Issues Watch Commander/Research and Development/Administrative Lieutenant We recommend that sergeants assume the role of watch commander. If this approach is approved, only two of the existing lieutenant positions will be converted to area commanders. Two additional lieutenants will be available for other assignments. We recommend the conversion of the patrol administrative sergeant to an administrative lieutenant. Also, we recommend establishing a Research and Development position and assigning a lieutenant to that position. The creation of this position is recommended in the Ralph Anderson management audit. We recommend this position report to the Assistant Chief. ATTACHMENT A. Proposed Area Boundaries B. Community Groups C. Initiative Members 45 CITY OF SAN BERNARDINO MMO LEGEND# © COMMUNCT, SERVICE CENTER COP POLICE BEATS NOT TO SCALE an.am AREA—B 911 WEST EMALL AREA Cg s AREA y � C 025 _ - TH 1332 WEST HLAND '-a= sas� ST ST r ISBd WEST IN -a BASELINE 3a €z sa$,t ass , all N ARE A AREA—A a snow R1ALT0 AVE 3:fdALTO AVE _� •�" � " 3 i AREA —E S WEST a HOSPITALITY 46 PROPOSED POLICE PATROL BEATS Attachment B The following groups and individuals will be contacted for external feedback: Abraham Lincoln Elementary School - PTA Merna Cornejo, Vice Principal San Bernardino Board of Directors Ron Kemper Baseline Business Association(BBA) Steve and Linda Southerland San Bernardino Chamber of Commerce Judy Thompson Safe Community Action Team (SCAT) Catherine Meister Northern Gateway Business Association Don Strimpel Downtown Business Association l Mike Maudse � y Healthy Start/Abraham Lincoln Elementary School Chris Corbett San Bernardino Neighborhood Watch San Bernardino Citizen's Watch Highland Avenue Business Association Larry Graham Del Rosa Neighborhood Action Group Don Murray Northend Neighborhood Association Larry Veres Del Rosa Neighborhood Improvement Association Kuman Koneru 47 Emerton Project Faye Pointer 30-40 and Hi-30 Neighborhood Groups Victoria Elementary/Healthy Start/Cambodian community Linda Frost Crestview Area Neighborhood Group Ernie Nelson Kiwanis Club Rotary Club Westside Action Group Northwest Project Area Committee Libreria del Pueblo Fifth Street Senior Citizens Service Center 48 Attachment C Initiative Members Dispatcher Deanna Alvarez Traffic Sergeant Jennifer Aragon Patrol Officer Brett Baumgartner Sergeant Dale Blackwell Lieutenant Michael Billdt Dispatcher Michael Eckley Dispatcher Michael Fox CSR Jim Hamlin-Crime Prevention CSR Gary Jacobs-Patrol Lieutenant Steve Jarvis Patrol Officer Richard Lawhead Lieutenant Frank Mankin Detective Beth Mulleavey Patrol Officer Lance Otey _ SHO Analyst Patrick Paramo Traffic Officer Steve Peck Crime Analyst Kim Sayano Sergeant Darryl Sellas Lieutenant W.D. Smith Lieutenant David Snell Q 49 The Crime Fighting Strategic Pkm Steering Committee has addressed the issues of Crime, Employment, Image, Blight and Education. These five critical issues were selected after neighborhood meetings, involving city residents and property owners who prioritized the top four crime problems as: 1. Drugs 2. Gangs 3 Youth Violence 4. Domestic Violence CRITICAL ISSUE- CRIME. Goals&StrateQies One overarching goal will impact all four priority crime problems That goal is to staff the uniform Patrol Division at a level so that each patrol officer has 33 percent of their time available for proactive or preventative patrol. This 33 percent bench mark is based upon . California Peace Officer Standards and Training recommendations Unobligated patrol time is essential to successfully strengthen our community-oriented policing and problem-solving (COPPS) philosophy. An integral key to this program is proactive policing. Reactive policing is best described as a finger in the dike"approach, whereby the primary role of patrol personnel is responding to calls for service. Proactive policing will allow us to identify problems and develop solutions that can be immediately implemented It provides the _flexibility needed to plan specific long-term or short-term strategies and deploy resources as needed The Police Department has identified staffing needs required to accomplish this goal. Drawing artificial distinctions between and among the problems of drugs, gangs, youth violence and domestic violence is both unrealistic and counterproductive. Thus a number of overlapping goals and strategies have been developed. APPENDIX D kid 5o Goal#1 Reduce the use and sale of illegal drugs through enforcement and prevention techniques. Strategy 1 - Use the methods developed through the Police Departments'violent crime/gangs1narcotics initiative to reduce, crimes designated by the FBI as part- one offenses. This includes murder, robbery, rape, and aggravated assault. Strategy 2- Selective enforcement focused on street and residential sales of narcotics Strategy 3- "Zero tolerance"enforcement of under the influence offenses Strategy 4- Develop on going cooperative effort with state parole and legislative officials to monitor and track placement of parolees in San Bernardino. Shmegy S- Reduce juvenile drug use as part of an at-risk youth program, by using prevention and diversion techniques. Strategy 6- Explore the viability of a juvenile drug court in concert with existing County drug court. Goal#2 Reduce amount of Youth Violence and Gang Activity Strategy 1- Continue the Police Department's current nine person Anti-Gang Unit. Strategy 2- Expand the current program of anti gang education, which is being conducted in the San Bernardino City Unified School District. Strategy 3- Enhanced enforcement of curfew laws during summer months (Goal#2 cone next page) 51 Stratay 4- Joint training and implementation program with school police to maximize benefit of recently adopted daytime truancy ordinance. Strategy S- Through the Police Department's initiative management process, establish an on going at risk youth program for Sam Bernardino: • Incorporate the use of"risk factors"both as to individuals and families • Develop collaborative ties with governmental, social and community resources. • Explore sanction alternatives working with County probation, juvenile courts and the community, toward increasingly significant consequences. • Fxplore viability of conflict resolution curriculum. Goal#3 Reduce amount of Domestic Violence Strategy I- Develop a training bulletin covering the law,policy, emergency intervention, local victim assistance, etc and distribute the bulletin at in-service training sessions Strategy 2- Cooperative use of community based resources available to assist victims of domestic violence. Strategy 3- Develop a domestic violence reduction program through the Police Department'violent crime initiative. Strategy 4- Study other cities with effective domestic violence enforcement and prevention programs, and use successful ideas to improve San Bernardino's program. 52 Goal#4 Make better use of police resources by taking steps to reduce or eliminate the causes of continued drain on police services Strategy 1- Strengthen crime-free rental housing program with ad&tional community participation and collaboration. Strategy 2-Designate officers from each area command to assist crime free rental housing program with training and oversight. Strategy 3- Implement "safe streets now" program. This program equips residents to file for small claims judgments against people in their neighborhood who sell drugs or engage in other crimes. Strategy 4- Develop "chronic service reduction"program through cooperative problem solving initiative to utilize wide array of remedies, (see also Goal#6- Strategy 3). Goal#S Create a more involved responsible community by strengthening community partnerships and delivering programs that create involvement in problem solving and crime prevention Striategv z- Strengthen citizens'patrol program and neighborhood watch, through the Police Department's new area command structure. Strategy 2- Use the Police Department's problem solving initiative to develop ways to enhance and strengthen community involvement. Si- Increase awareness of community crime prevention information and programs Strateev 4- Develop methods for tracking citizen involvement in neighborhood problem solving efforts (Goal#S cont. next page) 53 Str eSY S- Use annual community surveys in order to remain responsive to community priorities Strategy 6- Integrate the problem solving approach into regular patrol work on all shy. Goal#6 Develop a weft defined process that will allow the Police Department to address challenges to public safety, now and in the future Strategy 1-Endorse the community policing model and"initiative managemenP' structure set forth in the Police Departments'organizational prospectus of June, 1996 Strategy 2- Develop a comprehensive evaluation system which will include the use of community-based performance measures to provide tracking and reporting of community policing outcomes Strategy 3- Develop performance measurement systems that can differentiate between programs to determine effectiveness in reducing calls for service, crime rates, etc. Strategy 4 -Implement strategies to shy from a process-based structure to an outcomes-based management structure. Strategy S- Continue Police Department's leadership development program, and insure that training for management and supervisors is consistent with community policing goals and leadership expectations. 54 City of San Rernardino Police Department LAW ENFORCEMENT CODE OF ETHICS As a law enforcement officer, my fundamental duty is to serve the community; to safeguard lives and property; to protect the innocent against deception, the weak against oppression or intimidation and the peaceful against violence or disorder; and to respect the constitutional rights of all to liberty, equality and justice. I will keep my private life unsullied as an example to all and will behave in a manner that does not bring discredit to me or to my agency. I will maintain courageous calm in the face of danger, scorn or ridicule; develop self-restraint; and be constantly mindful of the welfare of others. Honest in thought and deed in both my personal and official life, I will be exemplary in obeying the law and the regulations of my department. Whatever I see or hear of a confidential nature or that is confided to me in my official capacity will be kept ever secret unless revelation is necessary in the performance of my duty. I will never act officiously or permit personal feelings, prejudices, political beliefs, aspirations, animosities or friendships to influence my decisions. With no compromise for crime and with relentless prosecution of criminals, 1 will enforce the law courteously and appropriately without fear or favor, malice or ill will, never employing unnecessary force or violence and never accepting gratuities. I recognize the badge of my office as a symbol of public faith, and I accept it as a public trust to be held so long as I am true to the ethics of police service. I will never engage in acts of corruption or bribery, nor will I condone such acts by other police officers. I will cooperate with all legally authorized agencies and their representatives in the pursuit of justice. I know that I alone am responsible for my own standard of professional performance and will take every reasonable opportunity to enhance and improve my level of knowledge and competence. I will constantly strive to achieve these objectives and ideals, dedicating myself w/ before God to my chosen profession......law enforcement.