POLICY REPORT
FINANCE
Date: October 7, 1997
Dept. File No. PR96\049
CC File No. 1376
TO: Vancouver City Council
FROM: Chief Constable
SUBJECT: Vancouver Police Department - Staffing Requirements for
Assuming Vancouver Port Policing Responsibilities
RECOMMENDATION
THAT Council approve an increase in the authorized sworn strength of the Vancouver Police Department by one Sergeant position and 14 Constable positions, effective immediately, to provide twenty-four hour preventative patrols, initial and follow-up investigations, and community-based policing for the port community.
CHIEF CONSTABLES COMMENTS
The Chief Constable RECOMMENDS approval of the foregoing.
COUNCIL POLICY
Council has supported the proposed port legislation which would provide greater autonomy for the Port of Vancouver and lead to the elimination of the Ports Canada Police, subject to a number of conditions. Those requirements include arrangements to ensure that additional costs are not incurred by municipalities and that there is no reduction in revenue presently received through grants-in-lieu.
PURPOSE
The purpose of this report is to summarize the events leading to the dissolution of the Ports Canada Police, the subsequent assumption of policing obligations by the Vancouver Police Department, and to seek Council approval for the necessary increase in sworn staffing levels.
BACKGROUND
The Canada Marine Act was passed by the House of Commons in April, 1997. However, the Act failed to become law before Parliament was dissolved. Although the Act was silent on "public policing" issues, the effect of the bill would have been to repeal the Canada Ports Corporation Act, which established and authorized the Ports Canada Police. Although the Canada Marine Act had not come into law, the Federal Government followed through on its intention to disband the Ports Canada Police. The last day of service by the Ports Canada Police in Vancouver was July 24th, 1997.
On July 23, 1997, the Vancouver Police deployed a "waterfront" patrol team, on a project basis, to assume policing responsibilities for the port area within the city. The team consists of one Sergeant and 10 Constables drawn from the existing police strength of other areas of the City. This interim project team will continue pending the authorization of permanent positions.
DISCUSSION
The Canada Ports Police (PCP) was established as the National Harbours Board Police in 1969 and was renamed in 1983. The authorized staffing level of the Vancouver PCP detachment has been as high as forty-three members historically, and in July, 1997, was comprised of twenty-five personnel.
In the past, the PCP had responsibility for the protection of port property in addition to its "public police" responsibilities. A number of reports have examined the function of the PCP and have separated the functions of "corporate property protection" (private security) and "public" policing issues (i.e., requiring peace officer status).
With the announcement by the Federal Government that the Ports Canada Police would be disbanded, negotiations began with the British Columbia Ministry of the Attorney General to ensure that an adequate level of policing was available on port property throughout the province.
On July 2, 1997, a Memorandum of Understanding was signed by the Province of British Columbia (Attorney General) and the Vancouver Port Corporation (VPC). The MOU allowed for payments by the VPC to provide for an orderly transition of public policing responsibilities by the City of Vancouver.
A second MOU between the Attorney General and the City of Vancouver, relating to transition funding for policing the port within the City, was signed on July 2, 1997.
The MOU provides that the Attorney General will receive payments from the Vancouver Port Corporation in trust for the City and will forward that funding to the City. The City will apply the funds received from the Attorney General to the budget of the Vancouver Police Department to offset the costs associated with policing the Port of Vancouver. The agreement provides for inflation adjustments over the seven year period based on the Canadian Consumer Price Index.
Staffing Requirement
A departmental review has concluded that it may be possible to provide a baseline level of public policing for the port community, to include response to "calls for service", preventative patrols and initial investigation, and a degree of community-based policing. Those tasks may be accomplished with fewer than the previously referred to twenty-five PCP officers due to:
-the delegation of some property protection responsibilities to private security; and
-the organizational support services already in place within the Vancouver Police.
It has been generally agreed that ten police officers would be adequate to provide the required level of service that those duties demand.
What may not have been adequately addressed in previous studies is the potential investigative role for the team. Given the unique environment of the port, an on-site investigative capability, with emphasis on partnerships with other enforcement and regulatory agencies in joint forces operations, is required.
In the past, the Ports Canada Police had seven officers assigned to four "joint forces operations" (JFOs) in concert with a number of enforcement agencies. These JFOs provided a coordinated strategy in addressing criminal activity which is hidden in, and takes advantage of, the port environment. These partnerships address property crimes as well as drug trafficking and organized crime. It is essential that they continue through this transition and into the future.
As a result, the Police Department is recommending the following addition to its authorized strength:
Baseline public policing 10 constables
Additional investigative and JFO work 4 constables
Waterfront Patrol Command 1 Sergeant
The requested increase in strength will enable the Police Department to provide police services, comprising response to emergencies and calls for service, uniform preventative patrol, and investigative activities without affecting other areas of the city.
On September 24th, 1997, the Vancouver Police Board passed the following Resolution:
THAT the Board receive as information the Staffing and Resource Requirements for Assuming Vancouver Port Policing Report from Chief Constable, dated September 15, 1997;
AND THAT the Board support an increase in the authorized sworn staffing of the Vancouver Police Department by one Sergeant position and fourteen Constable positions, effective immediately to provide twenty-four hour preventative patrols, initial and follow-up investigation, and community-based policing for the port community.
SOCIAL IMPLICATIONS
There is no direct relationship between the contemplated staffing changes and families or children.
PERSONNEL IMPLICATIONS
The Vancouver Police Union has been provided with a copy of this report.
FINANCIAL IMPLICATIONS
The agreements between the Port Corporation, Ministry of Attorney General and the City require the Port Corporation to provide funding totaling $4.0 million over the next seven years. The payments and costs associated with the additional responsibilities being assumed by the City are summarized in the following table:
YEAR
VPC PAYMENT
1997 Dollars
POLICING COSTS
(SURPLUS)DEFICIT
JULY 1997/1998
1,000,000
902,727
(97,280)
JULY 1998/1999
857,143
804,340
(52,803)
JULY 1999/2000
714,286
854,560
140,274
JULY 2000/2001
571,429
1,044,640
473,211
JULY 2001/2002
428,571
1,139,900
711,329
JULY 2002/2003
285,714
1,054,900
769,186
JULY 2003/2004
142,857
1,174,900
1,032,043
TOTAL
4,000,000
6,975,967
2,975,967
The funding provided by the Port Corporation is for transition purposes only and is not intended to provide for the ongoing costs associated with policing port property. The City Manager has advised Council that it is anticipated that increasing areas of tenancy on the port property will increase city taxation revenues to offset the declining port contributions.
CONCLUSION
Assuming the responsibility for providing policing services to the port is a unique opportunity in the recent history of policing in Vancouver. In order to provide an adequate standard of police service for the port area and to avoid drawing on existing police resources from other areas within Vancouver, it is essential that the Police Department is provided with adequate resources to fulfill these newly acquired responsibilities.
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APPENDIX "A"
Page 1 of 3
POLICING COSTS
Vancouver Port Corporation Property
First Year July 97 thru July 98
Probationary constable, salary and benefits = $43,428 annually
- 11 constables hired in September, 1997 $437,899
- 4 constables hired in December, 1997 $115,808
Difference between sergeant (level 1) and
1st class constable (10 year qualified) salary
(establishing the waterfront teams sergeant position) $10,020
Outfitting Costs:
three patrol cars, and maintenance @ $45,000 $105,000
($135,000 minus $30,000 trade in on ex-PCP cars)
four investigative cars, and maintenance @ $35,000 $140,000
uniforms and equipment @$3,100 x 15 $46,500
portable radios @ $2,500 x 15 $37,500
office equipment, cell phones, computers $10,000
TOTAL $902,727
Second Year July 1998 thru July 1999
4th class constable, salary and benefits = $50,088 x 15 constables $751,320
Difference between sergeant and 1st class constable salary $10,020
Outfitting Costs:
vehicle maintenance @ $5,000 x 7 vehicles $35,000
uniform and equipment @ $200 x 15 $3,000
phones, office supplies $5,000
TOTAL $804,340
APPENDIX "A"
Page 2 of 3
Third Year July 1999 thru July 2000
3rd class constable, salary and benefits = $53,436 x 15 $801,540
Difference between sergeant and 1st class constable salary $10,020
Outfitting Costs:
vehicle maintenance @ $5,000 x seven cars $35,000
uniforms $3,000
phones, office equipment $5,000
TOTAL $854,560
Fourth Year July 2000 thru July 2001
2nd class constable, salary and benefits = $60,108 x 15 $901,620
Difference between sergeant and 1st class constable salary $10,020
Outfitting Costs:
vehicle replacement, three patrol cars, and maintenance
($135,000 minus $30,000 trade in) $105,000
vehicle maintenance @ $5,000, four investigative cars $20,000
uniforms & equipment $3000
phones & office equipment $5,000
TOTAL $1,044,640
Fifth Year July 2001 thru July 2002
1st class constable, salary and benefits = $66,792 x 15 $1,001,880
Difference between sergeant and 1st class constable salary $10,020
Outfitting Costs:
vehicle replacement, four investigative cars and maintenance
($140,000 minus $40,000 trade in) $100,000
vehicle maintenance @ $5,000, three patrol cars $20,000
uniforms & equipment $3,000
phones, office equipment $5,000
TOTAL $1,139,900
APPENDIX "A"
Page 3 of 3
Sixth Year July 2002 thru July 2003
1st class constable x 15 $1,001,880
Difference between sergeant and 1st class constable salary $10,020
Outfitting Costs:
vehicle maintenance @ $5,000 x 7 $35,000
uniforms and equipment $3,000
phones, office equipment $5,000
TOTAL $1,054,900
Seventh Year July 2003 thru July 2004
1st class constable x 15 $1,001,880
Difference between sergeant and 1st class constable salary $10,020
Outfitting Costs:
vehicle replacement, three patrol cars and maintenance @ $45,000 $135,000
vehicle maintenance, four investigative units $20,000
uniforms and equipment $3,000
phones, office equipment $5,000
TOTAL $1,174,900
TOTAL COST OVER SEVEN YEARS $6,975,937
Note:Police salaries are based on the 1996 Salary Schedule of the Vancouver Police Union Collective Agreement, 1995-1996.
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(c) 1997 City of Vancouver