September 22, 2026
Police Department
DATE: September 22, 2026
TO: Mayor Martinez and Members of the City Council
FROM: Timothy Simmons, Chief of Police
Subject: Contract Amendment with Axon Enterprise and Contract with Assure MSP, Inc. for Law Enforcement and City
Facility Video Technology, Surveillance, and Support
Services
FINANCIAL IMPACT: The estimated first year expenditure of up to $1,000,000 is included in the approved Fiscal Year 2026-2027 Police Department budget, and future years will be budgeted
appropriately. The recommended dual vendor approach
provides a cost benefit compared with continuing the
current configuration or purchasing similar technologies through separate standalone procurements.
Based on updated analysis from the Police Department,
transitioning the ALPR, CCTV, and drone systems from
Flock Safety to Axon is expected to reduce annual costs by approximately $200,000, which results in an estimated savings of about $1,000,000 over five years. The Axon
package also increases available drone capacity by
moving from a single leased drone to six purchased
drones, which adds operational value beyond annual cost comparisons. These efficiencies result from Axon’s
bundled pricing, integration with existing City technology, and the avoidance of duplicated software, installation, and maintenance costs associated with multiple
independent procurements. (Account String:
01191021-400209)
AGENDA
REPORT
September 22, 2026
PREVIOUS COUNCIL
ACTION:
October 18, 2016
December 22, 2020
December 17, 2024
March 3, 2026
STATEMENT OF THE
ISSUE:
The proposed contracts support two distinct video
technology needs. The amendment with Axon Enterprise
will provide additional funding for the City-wide
automated license plate reader system and continued
maintenance and support of law enforcement technology
and equipment currently in use. The contract with Assure MSP, Inc. will provide Verkada closed-circuit television cameras, related infrastructure, installation, maintenance, and technical support at various City facilities.
Using two vendors allows the City to separately manage
law enforcement technology and general City facility
security systems. This approach helps ensure that law
enforcement data is accessible only to authorized law
enforcement personnel while allowing the City to retain ownership and control of its data.
RECOMMENDED ACTION: APPROVE a contract amendment with Axon Enterprise to continue servicing body-worn cameras, taser devices, interview room equipment, and virtual reality training
equipment, and to add license plate reader and
surveillance equipment, increasing the contract amount
by $3,500,000, for a total amount not to exceed
$12,000,000, for the term of October 1, 2026, through
September 30, 2029, with two one-year extension
options through September 30, 2031; APPROVE a
contract with Assure MSP, Inc. for Verkada closed-circuit television camera equipment and related services at
various City facilities, in an amount not to exceed
$500,000, for the term of October 1, 2026, through
September 30, 2029; AUTHORIZE the City Attorney’s
Office to negotiate and finalize the contracts; and
AUTHORIZE the city manager, or their designee, to
execute the contracts – Police Department (Chief
Timothy Simmons 510-621-1802). This item was
continued from the September 15, 2026, meeting.
DISCUSSION:
The City of Richmond initially entered into an agreement with Flock Safety in February 2023 to purchase and deploy 30 Automated License Plate Reader (ALPR) cameras.
Since that initial agreement, the City has amended the contract on four occasions to
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expand the use of Flock Safety technology in support of public safety operations and security at City-owned facilities and infrastructure.
In November 2023, the City Council approved the first amendment to the Flock Safety agreement, authorizing the purchase and deployment of additional ALPR and closedcircuit television (CCTV) cameras. This amendment significantly expanded the City's initial ALPR program and added CCTV technology to the City's public safety camera network.
In April 2024, the City Council approved the second amendment to the Flock Safety agreement to further expand the system through the installation of additional CCTV and ALPR cameras at the Port of Richmond. This expansion was intended to enhance security and situational awareness at the Port and surrounding City infrastructure.
In January 2025, the City Council approved the third amendment to the Flock Safety agreement. This amendment further expanded the City's existing Flock Safety program to include Drone as a First Responder (DFR) technology, as well as additional camera systems to support the security and monitoring of City infrastructure and facilities.
As a result of these successive amendments, what began in 2023 as a deployment of 30 ALPR cameras evolved into a broader technology program consisting of ALPR cameras, CCTV cameras, facility and infrastructure security cameras, and DFR technology.
On March 3, 2026, staff presented a proposed amendment to the City's existing agreement with Flock Safety to extend the applicable contract terms through December 31, 2026. The City Council approved the amendment on March 17, 2026. The purpose of the extension was to allow the City to satisfy existing contractual payment obligations while providing staff with sufficient time to conduct a competitive Request for Proposals (RFP) process and evaluate whether Flock Safety continued to represent the best technological, operational, and financial solution for the City of Richmond.
The contract amendment extending the agreement through December 31, 2026, was executed on May 5, 2026.
The decision to conduct a competitive procurement provided the City with an opportunity to comprehensively evaluate the current marketplace, compare available technologies, assess system performance and reliability, evaluate data management and privacy safeguards, consider interoperability with existing City technology, and determine whether alternative solutions could provide improved capabilities and value to the City.
REQUEST FOR PROPOSALS AND VENDOR EVALUATION
On February 26, 2026, City staff completed an RFP for Automated License Plate Reader (ALPR), closed-circuit television (CCTV), and related public safety technology solutions. The RFP was posted on February 27, 2026, with a closing date of March 27,
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2026. A total of 830 vendors were notified of the solicitation, and an addendum was posted on March 1, 2026.
The City received proposals from six vendors:
Assure MSP
Axon Enterprise
Flock Safety
IREX
Motorola Solutions
Net Electric
Following an initial review of the six proposals, staff shortlisted Assure MSP, Axon Enterprise, and Flock Safety for additional evaluation.
Vendors Not Advanced for Further Evaluation
IREX was not advanced because its proposal lacked sufficient technical specifications for the equipment. Additionally, the proposed cost was approximately $1 million, and the proposal did not include a drone solution.
Motorola Solutions was not advanced primarily due to cost. Its proposal was approximately $3.5 million over five years, with individual drones costing approximately $500,000 each. As part of the City's due diligence, staff also conducted a reference check with a neighboring law enforcement agency, which reported that it was transitioning away from Motorola Solutions.
Net Electric was not advanced because the proposal lacked references, installation services, an integrated software solution, or a drone solution. Additionally, the proposed equipment consisted primarily of commercially available, off-the-shelf items rather than an integrated public safety technology platform.
EVALUATION COMMITTEE
A ten-member evaluation committee representing multiple City departments, including the Richmond Police Department (RPD), and operational perspectives participated in the review process:
Police Chief Timothy Simmons
Police Captain Elizabeth Bashan
Police Sergeant Enrik Melgoza
Police Sergeant Sarita Ellison
Police Systems Administrator Luan Trinh
Police Officer Michael Pagaling
Interim Chief Assistant City Attorney Kimberly Chin
Port Director Charles Gerard
Assistant Deputy Director of Public Works Darin Fitzpatrick Building Trades Worker (Abatement Team Leader) Fernando Chavez
September 22, 2026
The multidisciplinary composition of the committee was intended to ensure consideration of law enforcement operations, technology, legal compliance, city infrastructure, public works, City facilities, and citywide implementation requirements.
AXON ENTERPRISE
Axon Enterprise was shortlisted because it proposed a comprehensive, turnkey law enforcement solution that would integrate with technology already utilized by the Richmond Police Department (RPD). Under the proposed model, the City would own the deployed equipment and retain ownership and control of the equipment and its data.
The information would be maintained within the City's existing Axon Evidence.com environment, which currently houses all electronic digital evidence.
Axon partners with Skydio Co. for its drone technology and provides an integrated ecosystem encompassing ALPR, CCTV, digital evidence, drones, and other public safety technologies.
The evaluation committee met with Axon representatives on May 11, 2026. Among the advantages identified by the committee were:
Seamless interoperability with RPD's existing Axon hardware and software infrastructure;
Integration with the City's existing Evidence.com digital evidence environment; Bundled pricing opportunities associated with the City's existing Axon relationship;
Solar-powered equipment options, reducing the need for hardwired electrical installations and associated Public Works workload;
Integration with Skydio's drone technology;
Centralized management of law enforcement digital evidence and technology; A public-facing transparency portal like the transparency functionality currently available through Flock Safety; and
An internal Axon Ethics Commission that serves in an advisory capacity regarding technology and related ethical considerations.
City staff's evaluation also considered the platform's ability to support applicable California statutory requirements concerning auditing, immigration-related restrictions, and ALPR data management.
Prior to the issuance of the RFP, members of the City's technology team and Crime Analyst Assistant Sofia Ayala met with the Sacramento Police Department, an existing Axon ALPR/CCTV customer. Sacramento Police Department personnel provided favorable feedback regarding their experience with Axon's technology, data security, and customer support.
A primary implementation consideration associated with transitioning to Axon is the initial staff workload required to manage a large-scale technology deployment. This work would include site assessments, encroachment permit review, equipment staging
September 22, 2026
and configuration, installation coordination, system configuration, and employee training.
FLOCK SAFETY
Flock Safety was shortlisted because it is the City's current provider and because the City has already deployed a substantial Flock ALPR and CCTV infrastructure throughout Richmond and at certain City facilities, including the Port of Richmond, Corporation Yard, and portions of the City Hall parking areas.
The evaluation committee met with Flock Safety representatives on May 13, 2026. The committee identified several advantages associated with continuing with Flock Safety:
Minimal staff resources required to maintain the existing infrastructure compared with a complete system transition;
Existing Flock drone infrastructure;
Robust ALPR functionality, including advanced search capabilities; Ability to facilitate authorized information sharing with other law enforcement agencies;
Existing employee familiarity with the Flock platform; Solar-powered mobile trailers that can be rapidly deployed to temporary locations; and
Functionality is designed to support applicable California ALPR and datamanagement requirements.
The committee also identified several concerns based on the City's experience with the existing system. These included:
Reliability concerns involving certain CCTV equipment; Extended delays associated with equipment repairs and replacements; Difficulty obtaining firm repair or replacement timelines; Concerns regarding billing practices, including requirements for payment when portions of the contracted equipment had not yet been installed; Cameras that remained incorrectly positioned following the initial deployment and had not been corrected;
A camera at the Corporation Yard that, at the time of the evaluation, had reportedly been awaiting repair for approximately eight months; and Concerning whether certain equipment and software functionality consistently performed as represented, including questions involving the Network Lookup feature.
Although the committee recognized that Flock Safety has continued to improve its platform, staff determined that concerns about reliability, transparency, system performance, and public confidence warranted consideration in the City's overall evaluation.
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ASSURE MSP / VERKADA
Assure MSP is a managed service provider and authorized installer of Verkada camera equipment. Assure MSP is based in Pleasanton, California, and Verkada is based in San Mateo, California.
The evaluation committee met with representatives from Assure MSP and Verkada on May 7, 2026. The committee found Verkada's camera platform to be robust and userfriendly, particularly for general City facility security applications.
However, the committee determined that the proposed Verkada solution was not the preferred platform for RPD's law enforcement ALPR/CCTV environment. Among the considerations were limitations identified during the evaluation concerning law enforcement auditing requirements, the absence of an integrated drone solution, and the absence of a comparable public-facing transparency portal. Additionally, the vendor's reference described the City of San Mateo's use of the technology in a nonlaw-enforcement capacity.
As with Axon, the implementation of Verkada equipment would require City coordination, including site reviews, permitting, equipment staging, configuration, installation, and training.
On May 27, 2026, Technology Supervisor Eric Tam visited Verkada's headquarters to gain a more comprehensive understanding of the company and its technology.
Following the visit, staff concluded that although Verkada was not the preferred solution for RPD's law enforcement technology needs, the platform was well suited for security applications at City-owned facilities.
Verkada manufactures a variety of camera types and technologies suitable for indoor and facility-based applications, whereas the proposed Axon CCTV cameras are primarily fixed-lens cameras designed for outdoor public safety applications. This distinction provides an opportunity for the City to select technology based upon the operational purpose and environment in which it will be deployed.
FINAL EVALUATION AND STAFF RECOMMENDATION
On June 16, 2026, the evaluation committee reconvened to formally discuss and rate the three shortlisted vendors. To ensure compliance with City purchasing procedures, Finance Department Senior Buyer Ofelia Alvarez attended the meeting and provided guidance regarding the vendor evaluation and rating process.
Based on the competitive procurement process, vendor presentations, reference checks, operational considerations, technology capabilities, legal and policy considerations, implementation requirements, and committee scoring, staff recommends a dual-vendor approach:
1. Axon Enterprise for RPD's law enforcement technology environment, including ALPR, CCTV, drone, and associated public safety technology; and
September 22, 2026
2. Assure MSP/Verkada for security camera systems at non-law-enforcement City facilities, including locations such as Shields-Reid Park, the Civic Center campus, Corporation Yard, and Port of Richmond.
This approach creates an intentional separation between the City's general facilitysecurity camera network and RPD's law enforcement technology environment. Non-lawenforcement City personnel using the Verkada platform would not have access to RPD's Axon Evidence.com environment or law-enforcement information.
RPD staff believes this separation provides an appropriate balance between operational effectiveness, information security, access control, and the differing technology needs of law enforcement and general City facilities.
AXON PROPOSED TECHNOLOGY
The proposed Axon law enforcement package includes:
110 solar-powered ALPR cameras;
60 solar-powered dual fixed-lens cameras;
24 spare cameras;
6 Skydio X10 drones with docks;
3 Skydio X10 patrol drones;
2 R10 indoor drones;
Axon Dedrone radar and detection capabilities; and
Auror Retail Crime Hub.
RPD currently maintains an existing agreement with Axon for several public safety products and services, including body-worn cameras, TASER energy weapons, virtualreality training, and digital evidence storage. The proposed amendment would expand the City's Axon environment to include the additional law enforcement technologies described above.
ALPR Data Security and Interagency Sharing
An important consideration in RPD staff's evaluation is the City's ability to maintain control over its ALPR information and determine when, how, and with whom that information is shared.
Like Flock Safety, Axon's ALPR technology has the technical capability to facilitate information sharing between law enforcement agencies. However, once implemented, Axon’s ALPR environment would remain closed to outside agencies unless RPD affirmatively establishes an authorized sharing relationship or conducts a search in response to an authorized request.
Current RPD policy prohibits open or unrestricted sharing of the Department's ALPR data. The law in the State of California prohibits ALPR data from being shared with any agency outside of the state. Accordingly, implementation of Axon would not provide other jurisdictions with automatic access to Richmond's ALPR database.
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Under RPD's intended operating model, an outside law enforcement agency investigating a qualifying criminal offense would be required to submit an appropriate written request to RPD. An authorized RPD team member would then evaluate the request and, when consistent with law, policy, and authorized law enforcement purposes, conduct the requested search.
This approach allows RPD to retain control over its ALPR information while still providing a mechanism to assist legitimate criminal investigations. The transition to Axon would therefore not result in unrestricted regional database access or provide outside jurisdictions with open access to Richmond's ALPR information.
AXON COST COMPARISON
The proposed Axon ALPR, CCTV, drone, software, and installation package is estimated at approximately $700,000 annually, or approximately $3.5 million over five years.
For comparison, the city currently pays approximately $1 million annually to Flock Safety for a system that includes:
110 solar-powered ALPR cameras;
60 CCTV cameras consisting of a combination of solar, hardwired, fixed, and pan-tilt-zoom cameras; and
One drone.
Based on current estimates, transitioning the City's law enforcement ALPR/CCTV and drone environment from Flock Safety to Axon is projected to reduce annual expenditures by approximately $300,000, representing potential savings of approximately $1.5 million over five years, while substantially increasing the City's drone capabilities and further integrating RPD's public safety technology environment.
CITY FACILITY CAMERA SYSTEM
RPD staff also recommend entering into an agreement with Assure MSP for the installation, maintenance, and support of Verkada security camera equipment at appropriate City facilities.
Potential locations include Shields-Reid Park, the Corporation Yard, the Port of Richmond, the Civic Center campus, and other City-owned facilities where security camera technology is appropriate.
Assure MSP will perform a site survey and design a robust CCTV system with Verkada equipment to meet the unique facility requirements. Afterwards, Verkada will perform the installation, configuration, maintenance, and support of the system.
Verkada provides a range of facility-security capabilities, including advanced analytics and the ability to activate alerts, sirens, or public-address notifications based upon defined conditions such as motion detection, location, or time parameters. Under the
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proposed arrangement, Assure MSP would provide installation services as well as ongoing maintenance and repair support.
ASSURE MSP, INC. COST COMPARISON
Assure’s Verkada system will utilize CCTV cameras that are both fixed and Pan Tilt Zoom (PTZ) – no Verkada ALPR cameras will be utilized. For coverage at facilities like Shields Reid Park, the estimated 6 cameras and PA system, installation, wiring, and annual maintenance and support is roughly $33,000 for city-owned equipment. Since the new contract obligation will replace Flock’s current infrastructure, City departments utilizing Flock’s system will be able to convert their unspent budgeted balance to support the initial setup of Assure’s cameras. City departments included in the initial rollout will be Shields-Reid Park, the Port, Corporation Yard, and Civic Center Campus.
CONCLUSION
Following a competitive RFP process and multidisciplinary evaluation, RPD staff determined that no single platform provided the optimal solution for both law enforcement operations and general City facility security.
RPD staff therefore recommend utilizing Axon Enterprise for RPD's law-enforcement ALPR, CCTV, drone, and related technology needs, and Assure MSP/Verkada for City facility security cameras.
The recommended approach is intended to improve system reliability and interoperability, strengthen City control over law enforcement data, maintain strict limitations on external access to RPD ALPR information, separate law enforcement information from general City facility-security systems, expand the City's technological capabilities, and reduce the City's estimated law enforcement technology costs by approximately $300,000 annually compared with the existing Flock Safety solution.
Staff requests that the City Council authorize the City Manager to sign:
(1) a contract and/or contract amendment with Axon Enterprise to continue servicing Body Worn Cameras (BWC), Tasers, Interview Room Equipment, VR Training, and to add license plate reader and surveillance equipment in the amount of $3,500,000, for a total contract amount not to exceed $12,000,000 with an expiration of September 30, 2031 that will be finalized by the City Attorney’s Office; and
(2) a three-year contract with Assure MSP Inc. for Verkada’s CCTV solution to be utilized at various City facilities in an amount not to exceed $500,000 for the term October 1, 2026, to September 30, 2029, that will be finalized by the City Attorney’s Office.
DOCUMENTS ATTACHED:
Attachment 1 – RFP
Attachment 2 – Addendum No 1
September 22, 2026
Attachment 3 – Bid summary