DATE:             September 1, 2010

TO:                  Frank Lancaster, County Manager

                        Bob Keister, Budget Director

FROM:            Jim Alderden, Sheriff

SUBJECT:      Year 2011 Budget Transmittal

REVISIONS TO THE 2010 BUDGET

There have been a few changes to the original 2010 budget. These changes have been approved by the County Manager.

The major change to the budget was moving the Alternative Sentencing Unit to Criminal Justice.  Even though this occurred mid-year, all revenues ($1,366,094) and expenditures and appropriations ($2,930,527) were adjusted to the beginning of the year in order to simplify the construction of the 2011 budget. 

Most increases to the base budget were due to  increased expenditures with off-setting revenue.  The Bureau of reclamation contract accounts for most of this increase.

We have experienced lower than projected revenue in jail rental and bonding fees.  We have also had a slight reduction in VIN checks and have eliminated a kitchen charge to Community Corrections.   This is further explained in the section titled "Target Budget."

We have had one major fire to date, the Round Mountain Fire.  It is projected that our share of the cost for this fire will be at least $40,000, but we are still in our fire season.   With our current savings in salaries, we will be able to cover this expense by transferring funds from "personnel" to "operating" with BCC approval IF WE RECEIVE THE INVOICE THIS YEAR.   If  not, I would request that  unexpended funds from our 2010 budget be carried over to 2011 so funds are available to cover these expenses when we do receive the invoices.  We WILL need to adjust this figure if we have any unusual fire activity after the submission of this budget. 

DESCRIPTION OF SERVICES

Detention Center Operations

• The Security section (GL000060) is responsible for the safety and security of inmates and the facility. Security deputies monitor large groups of inmates in sections known as pods. Deputies balance the needs of inmates with the operational policies and procedures of the facility. Safety and security is the prime concern.
• The Booking section (GL000061) is the inmates first and last point of contact during their stay. The booking deputies are responsible for processing inmates both in and out of the facility. The number one challenge a booking deputy faces, besides workload, is to ensure only those eligible for release are set free. Several measures are implemented to assure procedures are followed to prevent unauthorized releases, including the recently implemented iris scan.
• The Transportation section (GL000062) is responsible for the transportation of inmates to and from court and from other jurisdictions or facilities. Officers also arrange transportation for authorized furloughs or health care visits.
• The Extradition section (GL000063) is responsible for bringing inmates back to our jurisdiction that are named in an arrest warrant issued by our county.
• The Control section (GL000064) is the main control center for the facility. It provides radio and telephone communication throughout the facility plus door control and security camera viewing from camera units placed both inside and outside the facility.
• The Courthouse Prisoner Movement section (GL000267) provides manpower for the movement of prisoners throughout the Justice Center. The group also provides security for the inmates and the facility as well.
• The Accreditation section (GL000066) is responsible for ensuring that all of the standards set forth by the American Correctional Association are adhered to by the facility and its employees. The Detention Center undergoes a physical audit by the ACA every three years and prepares written reports every year. The main purpose for accreditation is to limit exposure to civil liability while creating policies and procedures to effectively operate the facility.

Inmate Services

• The Detention Center Administration section (GL000067) provides services for the day to day operation of the facility.  It performs much like the headquarters Support Services division in that its focus is on matters that pertain to the facility as a whole.

• The Medical section (GL000068) provides medical care for the inmates. Once an individual is incarcerated, medical care and expenses become the responsibility of the facility. Medical costs for inmates are the  most costly operational expense excluding salary and benefits.
• The Mental Health section (GL000069) provides psychological services for our inmates. The service provides one on one contact with qualified professionals.   Approximately 21% of the inmates require these services.
• The Programs section (GL000071) offers inmates the opportunity to use their time constructively while in the facility. Programs offered include education, recreation, commissary, library, visitation and religious offerings. A large portion of these services are provided by volunteers.
• The Food section (GL000072) provides healthy meals for the inmates. Meals are prepared in the facility kitchen. The entire food service operation is contracted through private organizations.

Investigations

• The Laboratory section (GL000095) is a critical component in the fight against crime. Laboratory technicians deal specifically with physical evidence or the development of such. The lab techs are dispatched to crime scenes where they employ the latest technology and training in their search for clues. Besides searching for and developing clues, lab techs also have the responsibility of confirming evidence. Examples of this include fingerprint identification (matching fingerprints of suspects to evidence), tool mark confirmation, and hair, fiber or other microscopic evidence comparisons.
• The Evidence section (GL000115) acts as the central repository for physical evidence. Maintaining evidence for court presentation is one of the most critical aspects of the criminal justice system. In order to successfully use evidence, law enforcement and prosecutors must be able to prove that the evidence, while in custody, was held in a secure fashion and that it remained as found with no changes or alterations. In order to accomplish this, evidence technicians are well trained in "chain of custody" procedures while at the same time imposing strict security measures such as limited access and security alarms.
• The General Investigation section (GL000127) is the unit responsible for investigating criminal cases referred to them by the patrol deputies or other agencies. The cases are referred because the patrol deputy may lack the time to conduct the necessary follow-up or because of a lack of specialized training required to solve the crime. All investigators are required to have specialized training in at least major crime scene and homicide investigation and interview and interrogation methods. While any investigator is capable of investigating any crime, there are a few specialized areas in the section. Those include arson investigation, child abuse, sexual assault, auto theft and white collar crimes, to name a few.
• The Crime Impact unit (GL000640) was created with the sole purpose of pursuing criminal activity and violators specifically within the realm of fugitives at large, sex offenders, gangs and illegal drugs. The unit’s members are dedicated to only these functions and generally not tasked with other types of criminal activity, such as burglary, robbery and sexual assault. With such focused attention to these crime categories, it is expected to be of benefit to the citizens of Larimer County in making the community safer.

Patrol Operations

• The Patrol Administration section (GL000079) performs administrative functions for the daily operation of the patrol function. The Sheriff's Office is responsible for patrolling approximately 2,600 square miles in Larimer County. The patrol area is divided into seven areas with the majority of them in and around Fort Collin s.
• The Valley Patrol section (GL000080) is comprised of a group of deputies and supervisors whose primary function is to patrol and answer calls for service in and around Fort Collins, Loveland and Estes Park.   An exception to this is the Poudre Canyon/Red Feather Lakes district. Deputies for these areas are based in Valley Patrol but perform work in the mountains.   The patrol section also does traffic enforcement.
• The Wellington section (GL000082) specifically covers the town of Wellington as a result of a law enforcement contract between the Sheriff's Office and the town of Wellington. This agreement has been in effect for several years. The revenue from the agreement offsets the expense of providing deputies to handle Wellington’s law enforcement needs.
• The Sheriffs Civil section (GL000097) is responsible for the execution of writs, or civil process. The section provides the following services: Service of criminal and civil papers (restraining orders, divorce and debt collection), evictions, till taps (collecting unpaid taxes), property seizure and sale, and civil stand-bys.
• Fairgrounds Security  (GL0000515) provides a law enforcement function at the fairgrounds.  Salary splits are utilized to pay for various positions performing the function.

Patrol Special Operations

• The DUI unit (GL000086) is set up specifically for enforcing alcohol related traffic laws, such as DUI and DWAI. The state, through grants, offers partial payment of salaries and overtime expenses for the enforcement of these laws. A DUI officer typically makes between 400 and 450 alcohol related arrests per year.
• The Canine unit (GL000087) maintains the animals and provides the necessary training for the unit. Deputies and their canine counterparts can be instrumental in capturing fugitives, clearing buildings of intruders and crowd control.
• The Emergency Response Team, or SWAT (GL000088) is a very important part of any law enforcement agency. Members receive specialized training in weapons and tactics. The team is used for hostage situations and other high risk challenges.
• The Reserve unit (GL000091) utilizes volunteers who are certified to perform law enforcement functions. Members are not paid directly. However, any earnings realized are placed back in their operational budget to offset equipment purchases.
• The Posse unit (GL000092) is the mounted version of the Reserve program. Volunteers, and their horses, are used extensively for searches and crowd control. Like Reserve members, Posse members are not paid directly.  Any earnings go back to their operational budget to help offset certain expenses.
• The School Resource Officer unit (GL000093) allows a deputy to be stationed in one of the schools in Larimer County. The School Resource Officer provides security for the school and encourages one on one contact between students and law enforcement. The position is partially funded through Poudre School District.
• The Victim/Witness unit (GL000124) provides assistance to those affected by crime or tragedy. Help can come in the form of a referral for professional help or even financial for that matter. The services are offered 24 hours a day. Most common referrals are for victim compensation and mental health issues. Projects GL125, Victims of Crime Act, and GL126, Victim Assistance and Law Enforcement, are closely related to GL124 in that both partially fund Victim/Witness functions through grants.

Emergency Management

• The Office of Emergency Management acts upon declared emergencies and disasters. Emergency preparedness is critical in times of disaster. The Office of Emergency Management works in conjunction with other state or federal agencies such as Colorado Department of Local Affairs and FEMA to name a few. Financial and other resources provided by state and federal programs helps local governments deal more effectively in times of crisis.

Emergency Services

• The Emergency Services section (GL000100) is the first responder to wild fires and search and rescue calls. In the event of forest or prairie fires, the department relies on a significant number of volunteer fire fighters. The department employs two seasonal teams that can act as initial attack groups in the event of a crisis. When not on active fire status, one group staffs the facility performing such duties as maintenance and administrative matters. The second group is working on fire mitigation projects throughout the county in partnership with the USFS, CSFS, Parks and Open Lands and local property owners. The section also performs search and rescue operations. In the event the operation requires additional resources, a Search and Rescue team is called in to assist. Because of the specialized training they receive, members are competent to perform on any terrain challenge offered by the diversity of our community. In the event of water searches or rescues, a privately operated dive organization is employed and aided by our members. Both Search and Rescue and Dive Rescue are non-profit organizations. The Sheriff's Office partially funds both and directs and coordinates their activities through a contractual agreement.

• Wildfire Fuel Mitigation (GL0000599) is a grant funded project that allows us to dedicate resources towards the reduction of wildfire fuels on both public and privately owned property.
• Forest Reserve (GL0000611) receives a portion of funds from the state with dedicated use for Emergency Services, Search and Rescue (PILT).

Sheriff Administration and Support

• The Headquarters General Administration section (GL000102), within the Administration division, helps with the daily operation of the department. A portion of the financial resources is used for expenses that relate to the entire operation of the department.
• The Professional Standards Bureau (GL000104) is responsible for two very important functions.  Internal Affairs performs and maintains a record of all complaints received by citizens and members of the department. A secondary function is to conduct staff audits to ensure all sections of the department are complying with policy and procedures. However, due to staffing restraints, we have not been able to conduct staff audits on a consistent basis.
• The Computer Services section (GL000105) maintains hardware and software throughout the department. The section performs all repairs, installations and provides support to the users.
• The Information Services section (GL000107) is responsible for any form of Information Management within the department. It also is responsible for acquisition, distribution and installation of hardware and software.
• The Personnel section (GL000109) has the primary function of maintaining staffing levels through the hiring process. The section is responsible for setting up the testing and evaluation of applicants for positions within the Sheriffs Office including new hires and promotions.  It is also responsible for ensuring that all guidelines and standards are met as an equal opportunity employer.
• The Training section (GL000111) has the primary responsibility of developing and scheduling ongoing training needs for the department. Internal training sessions are generally scheduled on a monthly basis and are mandatory for certain job functions.
• The Supply section (GL000113) is responsible for supplying the entire department with such things as office products and supplies, uniforms and other equipment necessities.
• The Vehicle Maintenance section (GL000114) provides for the maintenance and repair of the Sheriffs Office fleet of patrol cars, Emergency Services vehicles and administrative vehicles.
• The primary function of the Records section (GL000116) is to create, retain and disseminate official records of Sheriffs Office calls for service. A critical aspect of the Records section is adhering to rules and regulations pertaining to the retention and dissemination of official law enforcement reports.
• The Fiscal section (GL000112) consists of a group of employees who are responsible for payroll, accounting and budget production.
• The Concealed Weapons section (GL000347) assists citizens in the pursuit of a permit for the carrying of a concealed weapon. Employees of the section begin the process with an initial application. After all required background and fingerprint checks are completed, the applicant is issued a permit which is valid for five years.
• The Public Information Officer (GL000119) is the primary press information officer, publishes a weekly newsletter, produces training videos, and coordinates the annual Citizen’s Academy.
• Front desk/ Differential Police Reporting section provides many services to the community. Front desk employees are the initial point of contact for visitors to the department. Employees must be able to make referrals within the department and to outside agencies when necessary. The DPR section functions primarily to relieve the Patrol section by taking certain case reports over the phone or in person. Generally, the reports must be minor in nature and when face to face contact with a patrol deputy is not necessary. Cases are screened thoroughly to ensure that only those cases meeting DPR standards are completed by the section. Typical DPR reports include theft, missing persons, private vehicle tow, lost and found property, and vehicle trespass.  They also do fingerprints for applicants, VIN checks, and sex offender registration.
• The Communications section (GL000117) operates the nerve center of the department. Communicators answer all incoming calls, dispatch calls for service in emergency and non-emergency situations, maintain the location of all deputies for safety and security reasons and last but not least, act as a communication go-between for all members of the department.
• Non-Emergency Medical Dispatch (GL0000496)  receives funding from Larimer Emergency Telephone Authority to offset expenses related to the dispatching of non-emergency medical calls.  Equipment, training and certification are some of the expenses.
• Emergency Medical Dispatch (GL0000497) receives funding from Larimer Emergency Telephone Authority to offset expenses related to the dispatching of emergency medical calls. Equipment, training and certification are some of the expenses.

Sheriff Facility - Detention

• The Building Maintenance section (GL000073) is charged with the general upkeep and repair of the facility.
• The Inmate Supplies section (GL000074) purchases one-half of the uniforms, bedding and personal hygiene supplies for the inmates from the account, the remainder being funded through the Inmate Welfare Account..

TARGET BUDGET

The 2011 budget is based on a modest reduction of the appropriation from the General Fund as shown below:

The revenue generated by the Sheriff's Office will be significantly less in 2011 that was originally projected for 2010.  The 2010 projections have been adjusted accordingly.  We had anticipated contracting with the US Marshal to hold some federal inmates.  This did not occur and the US Marshal has indicated they will not be able to contract with us due to their budget cuts.  With cuts to the Colorado Department of Corrections, we had anticipated a backlog of state prisoners which would generate additional revenue.  We have not experienced this.  Due to overcrowding at the jail, we have seen a reduction in the number of inmates booked into the jail.  This resulted in fewer inmates posting bonds and a reduction in revenues due to bonding fees.  We also eliminated a one-time fee charged to Community Corrections and have experienced fewer VIN checks than expected.    The reduction in revenues is as follows:

Based on the above adjustments, the 2011 target budget for Guideline #1 is as follows:

If Amendments 60, Amendment 61 and Proposition 101 pass in November, we have been asked to submit a second budget proposal based on the following General Fund contribution:

This would reduce the General Fund contribution by $1,216,109 and establish a new budget of $37,428,188.

2011 BUDGET OVERVIEW

The target budget under Guidelines #1 was reached by eliminating three FTE's and reducing some operational expenses.   We will be creating a line item for temporary salaries to address shortages as they come up and for special projects which have not been previously funded such as imaging.  The majority of the reductions come from reducing the level of medical and mental health services to inmates.  We have traditionally provided a superior level of these services to our inmate population.  We believe we can reduce our pharmaceutical costs by changing the formulary, especially on psychotropic drugs.  While the costs may be lower, the drugs may not be as effective.  We are reducing the contracted hours for our psychologist from 30 hours a week to 10 hours a week.  We are also reducing the number of Mental Health Therapists by two FTE's.  While we will still be in compliance with ACA and  NCCHC guidelines, counselors will see the inmates with emotional or mental issues less frequently.  Group sessions will be eliminated and after care planning, substance abuse treatment, case management and handling deputy requests will be scaled back.  The expected result will be more tension in the housing areas and more pressure on all the staff.  We would anticipate more assaults and more suicide attempts as a result and hence increased liability exposure to the county. 

Some of the medical care we are responsible for providing to the inmates cannot be provided in-house.  We are reducing the allocation for hospitalization and surgery to reflect our experience over the past couple of years.  However, if we experience any significant medical issues we will need to request an additional appropriation from emergency funds.  We will also be reducing our contract Correctional Health Care and reducing the number of on-duty nurses by one.

The other reductions should not affect community safety or increase the liability exposure to the county.  We have experienced a slight decrease in the calls for service and the number of reports that have to be typed since we placed MDT's in the patrol cars.  We have been carrying a vacant FTE in Records and have been able to handle the workload.  We will be eliminating this position. 

Reduction in workforce

Records           1 FTE

Mental Health 2 FTE

Reduction in operating expenses

Inmate medical GL068-52622                        $50,000

Inmate pharmacy GL068-51212                     $ 59,000

Inmate medical contract GL068-52627          $ 47,777

2/3 contracted psychologist                            $ 67,199

DC Admin. miscellaneous                              $ 74,848

In addition to the above reductions reflected in the budget projection system, we anticipate several other reductions but will not be able to verify these until later in the year after the employee voluntary separation program is finalized.  We anticipate reducing the number of FTE's by an 2 and 3/4 as follows.  Changes in the system will also allow us to eliminate one FTE in Warrants and one in Accounting at the DC.  We will be giving up a 1/2 FTE in Investigations/Fugitive.  There will be a reduction in efficiency as deputies/investigators may have to do the computer work-up to locate fugitives.  We will also reduce the number of hours for the Press Information Officer to a 3/4 FTE and she will no longer be available to produce videos in-house.  These salary and benefits savings will be transferred to overtime and a new line item in Support Services for temporary salaries. We have never had a line item to cover temporary salaries for special situations or projects that come up throughout the year.  This will give us some flexibility to address specific needs.

Reductions in FTE's with funds transferred to temporary salaries

Warrants          1 FTE

Accounting     1 FTE

Investigations  1/2 FTE

PIO                 1/4 FTE

Budget Proposal #2 would require additional reductions of $1,216,109.  We do have plans in place and will submit a revised budget by November 10 if necessary.  This will require  laying employees off and eliminating positions.  Identifying those individuals prematurely would be impose an emotional toll on the potentially affected employees and prove disruptive to the organization. 

CHANGES TO REVENUE, FEES AND CHARGES

A review of our current fees and charges indicate that we are charging the maximum allowed by statute.  Fees that aren't regulated be statute are comparable to what other agencies are charging.   We have considered increasing some fees paid by inmates who are incarcerated, such as haircuts and medical co-pays, but the reality is that in most cases these charges are put on the books but the inmates lack the ability to pay.   We currently have over $1,000,000 in uncollected fees that have been turned over to collections.

Revenue changes in jail rental and other fees were addressed above.  There will be a net change of ($363,748) in revenues.

FUTURE BUDGETARY ISSUES

Last year we submitted an investment proposal for the technology to allow video visitation which  has become an industry standard in corrections.   We requested that our unexpended funds be carried over to future years to fund this project.  With the transfer of Alternative Sentencing and the remodel of that facility within the next two years, video visitation has been put on hold and will be incorporated into the ASU remodel.  This technology will increase the efficiency of security processes as well as reduce manpower requirements involved in the current manual visitation procedures.  It will reduce the opportunity to introduce contraband into the jail.  It would also eliminate the chaos and risks involved in moving hundreds of inmates through the halls throughout the week.

If Initiative #92 passes, we would expect a significant increase in the number of inmates confined in the Detention Center pretrial.  Fewer detainees would be eligible for pretrial release and have to post a surety bond.  During the first four months of 2010, 735 defendants were granted a PR or PRCO bond and Pretrail supervision who would have been required to post a financial bond under Initiative #92.  This extrapolates to 2,205 additional detainees a year.  The average length of stay at LCDC for inmates who are able to post as financial bond is 17.2 days.   This would mean an additional 37,926 bed-days or 114 beds (operating at 90% capacity).  At a minimum this would require twelve additional deputies, another nurse, and an increase in food and other operating costs.  The increased costs would be in excess of $5,000,000 annually.  If we are able to bring the average length of stay for those posting a financial bond down to the national average of 8 days, we would still require 54 beds and six deputies plus operating expenses at a projected annual expense of over $2,000,000.   THIS MINIMUM SPACE AND FUNDING WOULD BE NEEDED IMMEDIATELY.

We are facing the elimination of the grant funding for VINE, the statewide victim notification system.  Apprise and the County Sheriffs of Colorado are pursuing other funding options, but there is the very real possibility that we will either need to pick up the costs to stay on the system or replace the VINE system with some other form of victim notification tracking.  Our facility is too large to consider doing this manually and there are significant penalties for failing to make the required notifications. 

We will need to upgrade our Tiburon CAD/RMS/JMS system within the next few years.  Costs will be shared with Fort Collins Police Services which is setting money aside.  I strongly encourage the BCC to do likewise starting with any unexpended funds from the Sheriff's Office 2009 budget.  We would also ask that SCAAP funds continue to be accumulated and carried over specifically for this purpose in the coming years.  Currently we have approximately $260,000 in this account.

There are three potential upgrades being discussed:

• Upgrade our mobile CAD client to the newest version.  LCSO share would be about $50,000. 

• Upgrade CAD/RMS/CMS from our current Version 7.4 system to version 7.5 (released) or 7.6 (soon to be released).  Most costs are included in our ongoing maintenance fees, however we will need $25,000 - $75,000 dollars for interface upgrades.

• Upgrade CAD/RMS/CMS to version 8 (product name "Apollo").  This upgrade is still in development at Tiburon with some pieces available now.  The full suite we have is set for release  next year.  This is not covered by maintenance and is essentially a new system for us as the Apollo version is all new programming.  Our projected share will be between  $750,000 and $1 million and a significant hit on staff time.

One of the major issues facing the county is the looming expiration of the Jails Sales Tax.  Sales tax revenue is already insufficient to meet operating expenses and will expire in a few years leaving a huge deficit.  Addressing this issue is perhaps the biggest challenge facing the county.  This problem is followed by the need to expand the jail in the foreseeable future,  assuming the population of Larimer County, including the municipalities, continues to grow.  At some point, the Detention Center will need to be expanded.

Current deficiencies exist throughout the Sheriff’s Office in the areas of staffing, organization/classification, technology, and facilities.  The inadequacy of our evidence storage facilities creates issues with security and efficiencies.  We also need a facility to do arrest control training.  Finally, it would be beneficial to have a storage facility for some of our specialty vehicles.    These have been addressed in detail over the past five years with the BCC and FITD.

At some point in the future, the County must address the need for a secure Detox facility and Acute Treatment Unit for mentally ill offenders and substance abusers.  This is not a Sheriff's Office budget issue, but if such services were readily available, we believe it would have a positive impact on the jail population.

The LCSO no longer participates in the Larimer County Drug Task Force due to staffing cuts.  The county has never funded our participation in the LCDTF at the level of the other participating agencies and has consistently failed to provide any support in our efforts to combat the use of illegal drugs.  When the county's financial picture improves, we need to commit to supporting the LCDTF by providing appropriate staff to that enterprise.

We continue to explore the possibility of a Northern Colorado Regional Crime Laboratory to serve all the law enforcement agencies in Weld and Larimer counties.  We continue to pursue grants as a source of funding.  It is anticipated that participating agencies will be financially responsibility for the maintenance of the facility.  Our share is projected at $55,000 annually.

We realize that Larimer County government and our constituents are facing difficult financial times.  We can predict that more individuals will turn to crime as a means of economic support and others turn to substance abuse as a mechanism to cope with these conditions.  The substance abuse, combined with loss of jobs and other economic factors, typically leads to more domestic violence and suicides.  We continue to see a growing gang presence in Larimer County as well.  All of these factors combine to place greater demands on public safety services which are already overburdened.