November 28, 2023
Library and Community Services
DATE: November 28, 2023
TO: Mayor Martinez and Members of the City Council
FROM:
LaShonda White, Deputy City Manager, Community
Services
Sam Vaughn, Deputy Director of Community Services –
Office of Neighborhood Safety
Subject:
Community Crisis Response Program Development
Update
FINANCIAL IMPACT: The City Council allocated $1 million to support the implementation of a Community Crisis Response
Program (CCRP) in Richmond (01204022 400201
RI200). City staff believe this is sufficient to cover support from Urban Strategies Council, pre-start-up costs, and
personnel costs.
Although staff is still refining the budget, currently, the estimated cost to implement a CCRP program (if the
program is to operate 24 hours per day and 7 days per
week) could be approximately $2.76 million annually
(without cost pool) and up to $3.37 million (with cost
pool). A model with less operational hours or a smaller team could result in lower annual cost.
PREVIOUS COUNCIL
ACTION:
September 12, 2023
STATEMENT OF THE
ISSUE:
On July 26, 2022, the City Council approved a contract
with Urban Strategies Council (USC) to conduct research and analysis of various Community Crisis Response
Program (CCRP) options and set forth recommendations.
Per City Council direction provided on September 12,
2023, City staff would like to provide a program update regarding CCRP implementation.
AGENDA
REPORT
November 28, 2023
RECOMMENDED ACTION:
RECEIVE a draft report and presentation from Urban
Strategies Council regarding Community Crisis
Response Program model options – Community Services
Department (LaShonda White 510-620-6828/Sam
Vaughn 510-620-5404).
DISCUSSION:
Background
The Community Crisis Program (CCRP) began taking root in November 2020 amidst conversations within the Reimagining Public Safety Task Force (Task Force). On July 26, 2022, the City Council approved a contract with Urban Strategies Council (USC) to conduct research and analysis of various Community Crisis Response Program (CCRP) options and set forth recommendations.
USC was contracted by the City of Richmond to assess program model options and develop a pilot initiative for a non-police response to low-level 911 calls serving Richmond residents. USC engaged Richmond residents and community stakeholders in a community survey, focus groups, community meetings, organization presentations, and direct interviews to better understand their experiences with the 911 system, crisis resources, and aspirations for new response strategies.
Additional information regarding CCRP can be found at
https://www.ci.richmond.ca.us/4451/Community-Crisis-Response-Program.
What is Community or Alternative Crisis Response?
CCRP provides a diversion model to reduce reliance on police and criminal justice responses by offering a public health response. A proposed CCRP program would provide an opportunity to improve access to mental health and other community services in Richmond and would also navigate people to the right services at the right time by utilizing community responders with strong ties and connections to Richmond that can respond in a respectful and non-stigmatizing manner.
Some of the desired impacts of CCRP are to reduce the engagement of frequent utilizers of emergency services with Richmond Police Department (RPD) and Richmond Fire Department (RFD); reduce the number of behavioral health and lower acuity calls traditionally responded to by the RPD and RFD; and provide communities with a supportive response option that enables connection to services. CCRP is an opportunity to provide community-focused, trauma-informed, and healing-centered call responses by well-trained non-police personnel who can increase impacted individuals’ access and connection to timely, appropriate, and safe community-based services and resources.
The specific types of calls will be developed by the key stakeholders (CCRP staff, RPD,
November 28, 2023
RFD, and 911 dispatchers). Situations that are commonly and successfully responded to by an alternative response program may include:
Trespasser/unwanted person
Loitering
Public urination/indecent
exposure (without criminal
intent)
Wellness check
Subject down (often resident
asleep in public)
Found syringe
Person screaming
Person needing referral to
services
People in vehicles/camping in
public
Person drunk in public
Panhandling/Aggressive
Panhandling
Disorderly juveniles - group
Auto Disturbance - noise,
revving engine
Loud music - Noise complaint
Incorrigible juvenile
Confused/senile person
Family dispute
Neighbor disputes
Incomplete 911 call
September 2023 City Council Direction
On September 12, 2023, Urban Strategies Council, in collaboration with City staff, presented a program update and draft report outlining potential program components and options for CCRP implementation.
USC identified five (5) potential structural options for the City to consider ranging from the City instituting the CCRP program within the City of Richmond (new or existing department), implementing the program with a non-profit organization, or collaborating with Contra Costa County Health Services. After presentation and discussion, City Council provided direction for the following:
Direct staff in partnership with Urban Strategies Council to move forward with option 2 (institute the Community Crisis Response Program within an existing city department), specifically within the Office of Neighborhood Safety (ONS); bring the ONS director to the table to propose new community crisis response program division structural options by November 2023, presenting proposal for program design implementation plan and timelines for launch by August 2024; and draft job descriptions to ensure they are approved and posted publicly by December 15, 2023.
A friendly amendment made by Vice Mayor McLaughlin to have staff work with the Reimagining Public Safety Community Task Force to develop the proposal for the structure of the Community Advisory Board including purpose, powers, and composition was accepted.
November 28, 2023
Proposed Operation Structure
Per City Council direction, this program was discussed with the ONS director (official title is the Deputy Director of Community Services – Office of Neighborhood Safety).
After internal staff discussion, it was determined that the CCRP should not sit within ONS but instead could either sit as (1) a separate division under the direction of the ONS director, or (2) a separate division within the Community Services Department under the direction of the Deputy City Manager for Community Services. Please note that the meet and confer process still needs to occur; therefore, a decision regarding the organizational structure is not final. Both options are illustrated below.
Option 1:
It is recommended that the CCRP operate as a separate program instead of a program within the Office of Neighborhood Safety (ONS). Where appropriate, the two programs will work together, but it is important to the integrity of ONS, that the programs remain separate. Both programs could be overseen by the Deputy Director of Community Services – ONS and will be run by two distinct program managers. The proposed organizational structure is provided below:
Option 2:
As in option 1 above, it is recommended that the CCRP could operate as a separate program instead of a program within the Office of Neighborhood Safety (ONS). Where appropriate, the two programs will work together; however, it is important to the integrity of ONS, that the programs remain separate. In this option, the City would still hire a CCRP Manager, and that person would report directly to the Deputy City Manager for Community Services. The proposed organizational structure is provided below:
Regardless of the option selected, CCRP would benefit from and be supported by the lessons learned, relationships built with internal and external partners, and culture of caring for the “whole person” that is inherit in the ONS model. City staff, with the support of Human Resources, has developed a program manager job description that, per City Deputy Director of Community
Services - ONS & CCRP OR Social
Services OR Other Title
Office of
Neighborhood Safety
(ONS Manager)
Community Crisis
Reporting Program
(CCRP Manager)
November 28, 2023
Council direction, will be publicly posted. This position is exempt and considering CCRP is a new project, will provide the City with the greatest flexibility. It is important to note that regardless of the final structural option, City staff will create metrics to allow for analysis and evaluation of the program to ensure the program is effective and meets the needs of the community. Upon conclusion of the meet and confer process, staff will return to City Council with an update.
Estimated Program Costs
Pilot program rollout timeline depends on the implementation decisions, as do the estimated pilot costs. The CCRP pilot should run for 18 months to two years. Currently, the estimated cost to implement a CCRP program (if the program is to operate 24 hours per day and 7 days per week) could be approximately $2.76 million annually (without cost pool) and up to $3.37 million (with cost pool). A model with less operational hours or a smaller team could result in a lower annual cost. A more detailed breakdown of the costs is included below.
City staff is still working on a refined budget, but below are estimates for operating start- up costs (without cost pool) and personnel costs based on hiring dates this fiscal year. The total estimate that might be spent in FY 2023-24 is approximately $756,773.
Operating Costs: City staff estimate approximately $378,000 for start-up costs (operating costs – see below). This does not include cost pool, as per Finance staff, cost pool charges will not be assessed and added to the new established CCRP until FY 2024-25 or FY 2025-26. The annual operating budget is estimated at $342,500 annually. Please note that Finance receives cost pool numbers from a consultant and this analysis is in progress.
Draft Operating Budget
Annual Start-up
Item Estimated Costs
Computers/Phones/Radios (purchase) $55,000 $55,000
Database $20,000 $20,000 $20,000
Computers/Phones/Radios (service plans, software, etc.) $15,000 $15,000 $- Professional assistance (TA, data services, program innovation) $25,000 $25,000 $- Translation/interpretation $2,500 $2,500 $1,000
Evaluation $25,000 $25,000 $-
Training & staff development $30,000 $30,000 $30,000 Community outreach & engagement $20,000 $20,000 $-
Meal allowance $2,000 $2,000 $-
Office supplies $15,000 $15,000 $2,500
Equipment rental (XEROX) $5,500 $5,500 $5,500
Furniture $10,000 $- $10,000
November 28, 2023
Dues & Publications $5,000 $5,000
Supplies (for client - first aid, PPE, supportive services, snacks, emergency housing, etc.) $25,000 $25,000 $6,000
Vehicles (2 vans) $200,000 $200,000
Electronic health records & filling (Medicare reimbursement) $15,000 $15,000 $- Ambassadors ($1,000/month for 12 months for 10 people) $120,000 $120,000 $40,000 Mis Expenses (food for meetings, events, etc.) $10,000 $10,000 $2,000 Uniforms $7,500 $7,500 $6,000
ESTIMATED TOTAL $607,500 $342,500 $378,000
Personnel: The estimated personnel costs for FY 2023-24 are approximately $378,773 (covers Project Manager II at step 3 for five months, 3 community crisis responders and 3 EMTs for three months, 1 analyst for three months, and Part-time/intern support).
These numbers are rough order or magnitude estimates and will depend on how quickly new job descriptions are finalized and staff hired. The annual personnel costs are estimated at $2,421,993. Again, these numbers are estimates and subject to change based on further analysis.
DRAFT Personnel Estimates (based on class & comp numbers, 85% benefit, possible hiring dates)
Salary # Salary
Subtotal
Benefits Total
Compensation
- 12 months
Monthly Start-up
(for FY
23-24)
Notes
0.85 TOTAL with
benefits
Program
Manager (PM II
Step 3)
$164,676 1 $164,676 $139,975 $304,651 $25,388 $126,938 1 position for 5 months
Associate Admin
Analyst (step 3)
$94,510 1 $94,510 $80,333 $174,843 $14,570 $43,711 1 position for 3 months
Community Crisis
Responder (new)
$70,000 6 $420,000 $357,000 $777,000 $64,750 $97,125 3 positions for 3 months
EMT (new) $ 80,000 6 $480,000 $408,000 $888,000 $74,000 $111,000 3 positions for 3 months
Mental Health
Clinician (new)
$150,000 1 $150,000 $127,500 $277,500 $23,125
Student Admin
Intern
$ 20,000 1 $20,000 $20,000
TOTAL 16 $1,329,186 $1,112,808 $2,421,993 $201,833 $378,773
Timeline and Phases
Prior to the implementation of the pilot, the planning team will create initial administrative and clinical methods, identify logistical needs and considerations, and begin to build resource and referral networks. Overall, there are extensive questions,
November 28, 2023
protocols, procedural issues, and structural components that need to be addressed (e.g., program evaluation, oversight, training, department coordination, staffing requirements, inter-agency agreements, etc.) before the initiation of any program implementation within the community. Pre-implementation work is proposed to occur in three phases to enable a launch date in August 2024 (items listed within phases are subject to change and may happen in other phases).
Phase 1: September – December 2023
Hire of administrative student intern from University of California, Berkeley Masters of Social Welfare program
Collaboration with ONS to determine proposed operational structure Provide update to City Council on November 28, 2023 (per City Council direction) Work with Human Resources to refine and release a job announcement for a program manager position to lead the CCRP work (release by December 15, 2023)
Conduct informational interviews with West Hollywood, CA (WeHo), Oakland, CA (MACRO), Long Beach, CA (CCR), Eugene, OR (CaHOOTS), and maintain ongoing communication
Identifying and convening an internal city planning/support team USC support of Task Force’s proposed development of the Community Advisory Board
Update draft budget
Confirm staffing model
Update CCRP webpage
Continue coordination with CCC A3 program to discuss program integration, training, outreach, etc. is in place for A3 in Richmond Work with Richmond’s Fleet Division to purchase one or more vehicles (depending on program option)
Funding research - opportunities and considerations (will continue through other phases and after implementation)
Phase 2: January – March 2024
Hire a CCRP Program Manager
Discuss dispatch and training with RPD and RFD, and identify initial parameters of situations to dispatch to CCRP
Discuss hiring and placement of EMTs with CCC EMS and RFD Engage with City legal staff and risk management to identify initial legal/insurance/compliance issues
Draft job descriptions and begin recruitment of other CCRP positions with assistance of CCRP Program Manager
Identifying facility needs to house CCRP
Develop Identify necessary staff training protocols from local/county resources (i.e., de-escalation, cultural humility, mental health first aid, etc.)
November 28, 2023
Collaboration with County - how to share information/data/patient files; establish ongoing communication, explore developing data sharing agreements, and MOUs to streamline information sharing.
Phase 3: April 2024 – July 2024
Recruit/appoint Community Advisory Board (CAB) members Develop specially designed protocols for CCRP service call referrals and follow up
Identifying and ordering equipment such as communications and computers Identify first-aid and non-first aid supplies needed such as PPE, comfort items (i.e. water bottles, snacks, blankets, etc.)
Establish and strengthen referral relationships with community-based service providers and develop CCRP specific resource guide
Begin to discuss a strong data collection, monitoring, and evaluation system Initial training for responders and dispatch
Implement a citywide outreach and public education campaign, beginning several weeks before the pilot startup, including meetings with residents in neighborhoods most impacted by the emergency service system. Evaluation outline - metrics, selection process for evaluator Determine what data to collect and what tools to use for input - focusing on impact, outcomes, and efficacy
Develop documentation and process for case notes and collecting data on scene Open the CCRP office
Community Advisory Board (CAB)
Per City Council direction, the Task Force created a subcommittee during their October 2023 meeting to develop the purpose, powers, and composition of the CAB. USC provided support to the Task Force to support this work. USC provided a memo to the Task Force subcommittee sharing examples of oversight boards connected with other alternative response programs. The subcommittee is scheduled to share their recommendations for the Task Force’s consideration during a special meeting on November 29, 2023. City staff will bring the Task Force’s recommendation regarding the CAB to City Council for discussion and consideration as soon as possible after the vote of the Task Force. City staff is prepared to support the development and institution of the CAB, as appropriate.
Next Steps
Per City Council direction, it is City staff’s plan to (1) support the creation of a Community Advisory Board; (2) release the program manager job by December 15, 2023; and (3) implement the CCRP program in August 2024.
November 28, 2023
City staff also plan to work closely with USC, Contra Costa County (CCC), RPD, RFD, the Task Force, City staff, and other stakeholders, to refine the selected program model and/or engage in additional stakeholder outreach, conversations, and research before implementing CCRP. It is the intent of City staff to be prudent and deliberative in its approach to ensure that any program the City offers is well suited to serve the health and well-being of the community. Under the contract with the City, USC will continue to provide support to City staff and is expected to participate in further discussions to provide support for deeper engagement for Councilmembers to make the necessary policy decisions.
DOCUMENTS ATTACHED:
Attachment 1 – CCRP Presentation