Full Policing Report
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Meeting Date: Monday, June 24, 2019 To: Mayor Mills and Members of Council From: Denyse Morrissey, Chief Administrative Officer Report: CAO 2019-08 Subject: Police Services Options & Review – Ontario Provincial Police and Shelburne Police Services Recommendation Be it Resolved that Council of the Town of Shelburne: 1. Receive report CAO 2019-08 for information regarding Police Services Options & Review – Ontario Provincial Police and Shelburne Police Services; and that 2. Council provide direction to staff and approve either: Option 1 Advise the Ontario Provincial Police by July 15, 2019 that their contract policing proposal dated January 14, 2019 to provide policing services to the Town of Shelburne is accepted; Or Option 2 Advise the Ontario Provincial Police by July 15, 2019 that their contract policing proposal dated January 14, 2019 to provide policing services to the Town of Shelburne is not accepted. Report CAO2019-08 Page 1 of 22 Background The significant capital costs associated with a renovated or new building for the Shelburne Police Services and evaluating options to avoid these significant capital costs and resulting long term debt (using a 15 to 20 year loan) and taxation impacts was the primary reason that a contract policing proposal was requested from the Ontario Provincial Police (OPP) by the Town of Shelburne. The Shelburne Police Service had indicated there are significant deficiencies and inadequacies with the current facility which are related to privacy, space and safety. It was recognized and acknowledged that the quality of services and commitment of the Shelburne Police Services, established in 1879, were not in question. It is also recognized that a review of policing services options and considering another police force as the service provider can be a very difficult process for any town or municipality, the local police force and their community to undertake. In 2017, a number of other communities were also reviewing contracting with the OPP. On December 4, 2017 Council requested the OPP provide a costing for the provision of policing services to the Town of Shelburne. The OPP had been scheduled to present to Council on July 16, 2018. The presentation date was rescheduled to January 2019 due to the municipal election in October 2018. That rescheduling decision was made by Council on June 16, 2018. On January 14, 2019 the OPP presented the costing for the provision of policing services. The Shelburne Police Services 2019 gross operating budget is $2,620,571 with revenues of $124,544 or a net budget of $2,496,027. The 2019 capital budget is $93,000. The 2019 budgets are provided in Appendix 1. Not included or charged back to the Shelburne Police operating budget are the Town staff costs related to such items as payroll and benefits administration, accounts payable, accounts receivable, building and facility services and utilities. These costs are in the Town’s administration budget. Based on the 2019 budget the estimated cost for these services is $83,600. The OPP’s estimated 2019 annual policing cost is $2,686,029 plus one time costs of $414,428. The combined cost is $3,100,277. The OPP’s January 14, 2019 costing proposal is provided in Appendix 2. The OPP provides a three year transition contract. This includes providing the same staffing numbers as the Shelburne Police currently have for three years (except for administrative staff). Starting in year four the Town of Shelburne contract costs would be based on the OPP’s standard billing model. Based on the Town’s 2019, a 1% percent tax adjustment is about $69,550. Report CAO2019-08 Page 2 of 22 On March 25, 2019, the OPP presented to Council their “Billing Model” which is comprised of two categories: the base service costs plus calls for service costs. The OPP’s presentation is provided in Appendix 3. As of June 6, 2019 the OPP polices 326 of Ontario’s 444 municipalities. The OPP’s average cost per property in 2019 was $359. An example of a 2019 cost estimate using the billing model is provided for Mono Township in Appendix 4. The list of communities that have moved to the OPP from 2001 to 2019 is: . Deseronto Police 2001 . Meaford Thornbury Police 2002 . Ingersoll Police 2002 . Carleton Place Police 2003 . Elliot Lake Police 2003 . South Bruce Grey Police 2003 . Quinte West Police 2003 . Prescott Police 2004 . Aitkokan Police 2005 . Temiskaming Shore Police 2007 . Essex Police 2009 . Kenora Police 2009 . Leamington Police 2010 . Wawa Police 2011 . Perth Police 2013 . Pembroke Police Service 2012 . Stirling-Rawdon Police Service 2017 . Midland Police Service 2018 . Espanola Police Service 2018 . Wingham Police Service 2018 . West Nipissing Police Service 2019 Municipalities that requested OPP contract policing proposals from 2016 to 2019 and which cancelled the process, remained with their local police force or contracted with another local force are: . Smith Falls process cancelled in April 2016 . Brockville proposal declined in February 2017 . Prince Township proposal declined in June 2017; contracted with Sault Ste. Marie PS) . Aylmer process cancelled in July 2017 . Amherstburg process cancelled in Fall 2017, contracted with Windsor PS . Deep River proposal declined in December 2017 . Owen Sound proposal declined in December 2017 Report CAO2019-08 Page 3 of 22 . Orangeville 1st proposal declined in December 2017; second costing requested - OPP presented June 10, 2019 . Dryden proposal declined in May 2019 Analysis In 1994, an extensive renovation of Town Hall was undertaken, and it included about 5,000 square feet for police services. The $2.1 million project, which had some government grant funding, increased the useable space in Town Hall from 9,000 square feet to 17,000. As stated under the background section of this report, The Shelburne Police Service had indicated there are deficiencies and inadequacies with the current facility which are related to privacy, space and safety. A request for proposal (RFP) for a Facility Strategic Plan 2015-2035 was issued by the Shelburne Police Services Board in 2015. The study was completed by Water Fedy and is dated October 22, 2015. The purpose of the study was to complete a review of the existing police facility to identify potential deficiencies that affect the daily operations of the police service The Walter Fedy 2015 report had summarized the estimated costs which did not include land, servicing, furniture and equipment, (FFE) and other applicable costs: Option 1 Renovate and expand the current facility $3,143,000 Total area: 8,000 square feet Option 2 Acquire and adapt another facility $2,415,000 Total area: 8,500 or 9,000 square feet Option 3 Construct a new one-story facility $4,132,000 Total area: 8,500 square feet During the review process the Shelburne Police Services had also indicated they required increased space or about 10,000 square feet. Facility accommodation continued in 2017 and included four options, which were about 10,300 to 10,978 square feet for police services were considered including purchasing other buildings for renovation. The estimated costs* were: Renovation of Town Hall and Expansion of Council Chambers $6,410,000 Renovation of Town Hall (no Council Chambers) $5,530,000 New Police Station ** $5,830,000 Purchase and renovate another building $5,320,000 *based on 2015 construction costs ** location not stated Report CAO2019-08 Page 4 of 22 The chronology of the review of policing services is listed below: November 27, 2017 Notice of Motion regarding police services and requesting a costing from the OPP December 4, 2017 Council requests the OPP to provide a costing for the provision of policing services to the Town of Shelburne July 16, 2018 OPP scheduled to present to Council. On June 16, 2018 it is rescheduled to January 2019 due to the municipal election in October 2018. January 14, 2019 OPP presents the costing for the provision of policing services January 28, 2019 Council approves the hiring of a consultant to study and compare policing services and costs between OPP and Shelburne Police Services March 5, 2019 Consultant is hired March 25, 2019 OPP presents the OPP Billing Model to Council March 27 – June 5, 2019 On Line survey for community to provide the input to Council on policing services and capital project costs April 3, 2019 Community information meeting and Q&A with the OPP May 13, 2019 Shelburne Police Services present the 2018 Annual Report to Council, and Information meeting with Q&A with public June 3, 2019 Consultant’s report presented to Council; special Council meeting at the CDRC June 10, 2019 Staff report re: Council’s April 8, 2019 direction for summary of all former space considerations developed by the police accommodation sub- committee; and review of a renovation or expansion of the current facility at a cost not to exceed $3 million. June 24, 2019 Staff report and recommendation to Council on policing services July 15, 2019 Town of Shelburne 6-month deadline to respond to the OPP Report CAO2019-08 Page 5 of 22 Consultant’s report and presentation June 3, 2019 Pomax Consulting was contracted, via RFP, by the Town of Shelburne to complete a study and analysis of policing options comparing the services, costs, legislation, governance, and service level of the Shelburne Police Services and the Ontario Provincial Police, and to draw conclusions and make recommendations. The consultant’s report is provided in Appendix 5. In performing this assignment Pomax: . examined three years of Shelburne Police Services data from both the computer aided dispatch and record managements systems; . examined 3 years of uniform crime reporting survey statistics; . accessed the crime severity index for Shelburne and other communities; . calculated 10 years of billing model and calls for service costs; .