® Los Angeles County

Metro Metropolitan Transportation Authority

One Gateway Plaza 213.922.2000 Tel Los Angeles, CA 90012-2952 metro.net

TO:

THROUGH:

FROM:

SUBJECT:

ISSUE

BOARD OF DIRECTORS

PHILLIP A. WASHINGTON 1) /J_ uJ CHIEF EXECUTIVE OFFICER \ T\

V(/ ALEX Z. WIGGINS

NOVEMBER 23, 2016

CHIEF, SYSTEM SECURITY AND LAW ENFORCEMENT

LAW ENFORCEMENT CONTRACT REQUESTED INFORMATION

On November 17, 2016, staff presented the Transit Law Enforcement Services contract award recommendation to the System Safety, Security and Operations Committee, as well as the Executive Management Committee. In response to questions raised about overtime usage, response times, compliance staffing, comparable approaches, and deployment, staff prepared this Board Box to provide detailed supplemental explanations as requested by the Board.

DISCUSSION

Overtime Explanation

The following summarizes the proposed staffing models as conveyed directly by the various law enforcement agencies.

Long Beach Police Department LBPD will deploy 14 sworn personnel to the Metro system. " .. .LBPD intends to establish the Metro Security Detail with several full-time positions at the onset of the contract. Specifically, LBPD anticipates staffing the Metro Team with a full-time Lieutenant, Sergeant and two civilian support staff. For the field team, LBPD proposed a staffing model composed of 2 sergeants and 10 police officers. LBPD anticipates establishing this team with 4 full-time police officers assigned to the Metro Security Detail Field Team. The remaining field positions would be filled on an overtime basis during the transition period until the vacant positions are filled with permanently assigned staff. Through calendar year 2017 (and in 2018 if needed), LBPD will analyze its staffing to determine whether recruitment for vacant positions may -proceed with the goal of onboarding at least an additional police officer per quarter to the Metro Security Detail Field Team until all positions are filled." (LBPD, 1112016) Per the contract terms and conditions, all officers would be Metro trained.

Los Angeles Police Department Approximately 52 full-time lieutenants, sergeants and specialized officers will staff the LAPD Transit Bureau in year 1. Full time personnel will increase to 93 in year 2, and then 108 during years 3 through 5. " .. . Lieutenant watch commanders and sergeant assistant watch commanders will be full-time from the inception of the contract. The full-time field supervision will be phased in over the first three years of the contract. This increases the sense of responsibility to the mission and builds organizational knowledge within the cadre of supervisors. Supervision at Transit Bureau will maintain responsibilities for all Metro field operations. This strategy will ensure supervisors remain aware of issues throughout Metro's transportation system. The deployment strategy does not impact current deployment or the basic level of police services provided to the City.

The five-year build out allows for a full-time component primarily composed of command staff and supervision. This provides the maximum ability for management and oversight for all sworn personnel deployed. All full-time personnel will be phased in the first three years of the contract. Fu/I-time and overtime personnel will be utilized throughout the five-year build out. Sworn personnel assigned on an overtime basis only will be required to meet strict rules and regulations prior to being selected. Utilizing personnel on overtime is a force multiplier that will allow for officers, who would normally be on a regular day off and at home, to be on duty and patrolling within the City.,, (LAPD, 11/2016) Per the contract terms and conditions, all officers would be Metro trained.

Los Angeles County Sheriffs Department (LASO) LAS_D proposed full-time staff, but will fill vacancies with over time. LASO explains " ... Whenever possible, overtime assignments are issued on a pre-assigned voluntary basis. LASO management reserves the right to involuntarily pre-assign or assign overtime based upon critical needs. When hiring overtime, LASO hires Metro assigned or Metro trained personnel only. In all cases, the following requirements are in place to ensure staff have appropriate rest to perform their work, "(LASO, 1112016)

• LASD's original proposal included 661 sworn positions. LASO revised proposal included 611 sworn positions. Metro staff estimates a need for 58-75 sworn positions to support the multi-agency deployment. Based on a review of LASD's daily in-service audits, staffing hovers in the range of 200 deputies per 24-hour operating period, but has previously fallen to a range as low as 140-180. Due to historic staffing challenges, staff does not believe LASO has the capacity to fill 611 sworn positions.

• LASO relies heavily on overtime to fill current vacancies, and in some cases assigns deputies to mandatory overtime or double shifts. To fill shift vacancies, LASO often assigns deputies from other areas of the County to support the Metro contract regardless of whether or not they have received Metro specific training.

2

Lon Beach PD $111.56

Los Angeles PD $132.61

LA County Sheriff $159.56

Emergency Response Times

Temporary until all ositions are filled

Regulated OT (i.e. must have 8 hour

Fills vacancies on overtime, in some

cases double shifts

Yes

Yes

Yes

The 2016 OIG Policing and Security Workload and Staffing Analysis calculated LASD's response times using the "call entry to dispatch" time plus the "dispatch to arrival" time. The "call entry to dispatch" is the amount of time from when the call was received by the Transit Policing dispatch center until a patrol unit was dispatched to respond and handle the call . The "dispatch to arrival" time is the amount of time it took for the patrol unit to travel to the scene of the incident. The below matrix illustrates bus related response times, and captures emergency, priority and routine calls.

Call Entry to Dispatch 3 3 3 6 16 4 3 7 5.6

Dispatch to Arrival 31 17 19 29 27 21 17 19 22.5

Total 34 20 22 35 43 25 20 26 28.1

Source: BCAWR Analysis of Computer Aided Dispatch system data for the period of Ju ly 1, 2014 to June 30, 2015 provided by LASO Data Systems Bureau.

Note: Call entry to dispatch t ime is the t ime fro m when a call is received by the TPD Dis patch Ce nter until the call is dispatched to a patrol un it fo r response. Dispatch t o arrival t ime is t he time from when a pat rol un it is dispatched until the unit arrives at the scene of the call.

3

LASO estimates their transit related emergency response times to be 6. 7 minutes between the period of September 2015 and September 2016. This number was calculated using LASD's Regional Allocation of Police Services (RAPS) and Computer Aided Dispatch (CAD) . The current CAD system used by LASO is more than 40 years old . Staff is relying on the detailed data provided by the OIG's consultant. The response time data LASO provided Metro staff did not contain sufficient information to gauge accuracy. Moving forward, staff will remedy this by installing a Metro specific CAD system.

Transit Agency Comparisons

Transit agencies employ a number of different strategies to meet their policing needs. Many of the smaller agencies rely solely on 911 and /or security officers, while others may contract with a police department or have their own transit police department. The below matrix provides a snapshot of the transit policing deployments across the country.

RTD - Denver Sound Transit -Seattle TriMet - Portland MTA - New York Cit WMATA-WADC SEPTA­Philadel hia DART - Dallas Sacramento AC Transit ­Oakland Metra - Chica o BART - Bay Area

CTA- Chica o

No contracts w/law enforcement 4 1

17 1

./ onl No contracts w/law enforcement

./ (only) No contracts w/law enforcement

./ onl No contracts w/law enforcement 4 2

./ onl No contracts w/law enforcement ./ (only) No contracts w/law enforcement

1

In all cases above, the transit agency coordinates law enforcement service. No single law enforcement agency oversees another law enforcement agency.

Oversight and Deployment In 2014 the Board directed the CEO to hire a minimum of 3 additional staff to oversee performance and compliance of the law enforcement contract, as well as the day-to-day operations of Metro's security workforce. All 3 positions have been filled; the duties are as follows.

4

• Chief of System Security and Law Enforcement oversees all staff assigned to the department, and is the day-to-day project manager of Metro's law enforcement and security contracts.

• Law Enforcement and Security Compliance Manager ensures contract compliance with regard to billing, staffing, meeting Key Performance Indicators (KPI), resolving complaints, and summarizing crime analysis data.

• Director of Transit Security oversees the daily security, fare enforcement and contract security assignments.

Metro's Chief of System Security and Law Enforcement sets priorities and manages performance. Police specific tactical and investigative decisions, as well as chain of command, are retained by each law enforcement agency. In a relationship identical to that of a city manager and a police chief, Metro's Chief of System Security and Law Enforcement will manage overall performance on the transit system under the multi­agency approach; the lead law enforcement officer for each agency retains command of their staff.

As is the case now, staff in Metro's System Security and Law Enforcement department will meet with the lead officer assigned to the Metro contract on a regular basis. We currently hold a weekly command level meeting to review overall performance; bi­weekly meetings with mid-management staff to discuss deployments, crime trends and special projects; as needed daily meetings to problem-solve specific issues. Beg inning in January 2017, the Metro Regional Law Enforcement Working Group wil l also meet to engage other local law enforcement agencies. The Multi-Agency approach provides an opportunity for local law enforcement agencies to engage directly with Metro regarding security issues in a proactive manner.

Trantil So&Q.lrity Ttdmk al Gr.1r1ts

M.;inao,r

System Security and Law Enforcement Org Chart

OirKIOl'Oflt2ntl -

Tr3ln1"9 Speci31;st·

T1:an"t $tcl.l',:Y Sptct.alProjK.ts

M:.n.19,,

StnlOI Mml'liSll3 11~d

An3fyU

Tr;w11pof:ltl00 ~IOC.l.lltl

hielA.:lmill·Ur.Jtrv ~1'/11

Stn-a J.d:nmistr.JWe

Ar~tni

I 1~~-~,.-1

·10 l>e fllled mid-year (January 20 17~

5

LASO System-wide 485+ authorized positions $56.3M extension • • • •

•

•

LBPO

LAPO

LASO

Metro Security

Law enforcement valid 7/1/2016 through Fare enforcement 12/31/2016 Train patrols Bus patrols (team of Actually hovers in the 6 only) range of 200, but has Annualized through

Critical previously fallen as low the end of the fiscal

Infrastructure as 140-180 year - $112.6M Protection Investigations

• Long Beach rail & station patrols

• Investigations, enforcement, homeland securit

• Los Angeles rail , bus (34 team for bus) and station patrols.

• Investigations, enforcement, homeland security

• All other ra il , bus & station patrols (20 team for bus)

• All other investigations, enforcement, homeland security

• Fare enforcement • Revenue collections • System security & CCTV

14 $27M over 5 years

168+ year 1

175 inyear2 $369.8M over 5

180 years 3 years throu h 5

Staff estimates Staff $1 49.8M over 5

estimates years 58-75

Revised "single agency" proposal

was $627. 1M

189 $69.5M over 5 ears

Contract Security Fixed post guarding of stations and facilities

332 $81.9M over 5 ears

Multi-a 240 - 269 $546.GM

6

The multi-agency approach supports the addition of direct funding reimbursement MOUs with local law enforcement agencies as the system expands (i.e. Huntington Park, Inglewood, Santa Monica, Beverly Hills) to support enhanced security services to address the desire by riders for a felt presence.

BCA Consultant Recommendations LASD did not suggest a model that oversees other law enforcement agencies during the RFP process. That approach requires partnerships with other law enforcement agencies and LASD has not provided any documentation to indicate that they have entered into MOUs with other law enforcement agencies. Also, as stated at the Committee meeting by the BCA consultant, the initial contract in 2003 with the LASD assumed MOUs would be executed with local law enforcement agencies and that did not occur. The multi-agency approach is more feasible.

Recommendation #6 in the OIG Metro Policing Workload and Staffing Analysis (2016) supports a multi-agency approach (page 6). With regard to the discussion of Option #2 in the OIG Review of Law Enforcement and Security Options (2015), the recommendation outlined a specific exception encouraging Metro to consider contracting with LAPD, LBPD and Pasadena PD (page 2). The previous discussion eliminating Option #2 was based on 1) a significant reduction in the number of law enforcement officers assigned to Metro; 2) replacing dedicated law enforcement staff with Metro security officers. The current staff recommendation increases the number of law enforcement personnel and compensates agencies for dedicated Metro law enforcement support.

7