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Home My WebLink AboutItem C: Downtown Public Safety Zone Ordinance ECC UGENE ITY OUNCIL AIS GENDA TEM UMMARY Work Session: Downtown Public Safety Zone Meeting Date: October 25, 2010 Agenda Item Number: C Department: Eugene Police Staff Contact: Pete Kerns, Chief of Police www.eugene-or.gov Contact Telephone Number: 541-682-5102 ISSUE STATEMENT This work session provides an opportunity for the City Council to discuss recommendations from the Eugene Police Commission on the future of the Downtown Public Safety Zone (DPSZ) and the civil exclusion process. Police Chief Kerns and Judge Allen of the Eugene Municipal Court will provide additional information for the City Council regarding the exclusionary process. The ordinance creating the Downtown Public Safety Zone is scheduled to sunset on January 8, 2011. BACKGROUND Following several work sessions and a public hearing, the City Council adopted the Downtown Public Safety Zone (DPSZ) Ordinance No. 20419 on August 11, 2008. The ordinance was established with a sunset date of August 11, 2010. Subsequently, City staff developed the necessary procedures for the exclusion process and the first arraignment date of a DPSZ exclusion occurred six weeks later on October 31, 2008. On August 9, 2010, the City Council approved Ordinance No. 20462 to maintain the exclusion process until the Police Commission could review the staff’s activity report, hold a public comment session, and provide a recommendation to the City Council. Eugene Police Department (EPD) staff needed additional time to prepare the activity report and due to the extended time required by the Police Commission to process other policy work there was insufficient time to review the DPSZ activity report and receive public comment before sunset of the DPSZ ordinance. The extended sunset date of January 8, 2011, was requested to allow time to process any amendments to the DPSZ Ordinance if, after this or future work sessions and reviewing the Police Commission’s recommendation, the council asks for amendments to the ordinance. In addition, council break occurs in December and the number of available meetings is typically somewhat limited. Following council direction, a staff report of the activity recorded in the Downtown Public Safety Zone was provided to the Eugene Police Commission. This report is available at the following link (DPSZ Activity Report) and is available in hard copy for the council if desired. The Police Commission reviewed the report and held a public forum on September 1, 2010, to obtain public input regarding the effectiveness of this ordinance in reducing targeted incidents in the DPSZ. The council received the Police Commission’s recommendation (See Attachment A) regarding continued enforcement of the ordinance on October 8, 2010. Z:\CMO\2010 Council Agendas\M101025\S101025C.doc Long-term, disorder-related issues downtown have been addressed for more than 20 years through special committees, task forces, Council Goals, City projects, private businesses, etc. Most recently the Downtown Safety Task Team prepared a list of recommendations they believed would improve downtown safety and make the downtown a more welcoming place. Inherent in their recommendations was the understanding that the lack of jail beds as a sanction remains a critical component to the persistent problems occurring downtown. The civil exclusion process provides a tool to offset the lack of jail sanctions and is a component in law enforcement and our community partner’s efforts to improve downtown Eugene’s disorder-related issues. Public Comments and Police Commission Recommendation At the Police Commission’s Public Forum on September 1, and the City Council’s public hearing on July 29, 2010, speakers expressed both support and opposition to the use of a civil exclusion process. Those in favor primarily spoke of the need to make downtown safer, removing predators from the city’s core and their view that the DPSZ was improving conditions downtown. The majority of those opposed spoke against all exclusionary zones, protection of First Amendment rights and fear that homeless individuals and youth may be unfairly targeted for exclusion. The Police Commission summarized the concerns they heard from the Public Forum and their reactions to the Downtown Public Safety Zone Activity Report in their October 8, 2010, memorandum to the City Council. Their recommendation to the council stated: “Recommend to the Council continued enforcement of the Downtown Public Safety Zone Ordinance 20419, and that Council work with City departments and community members and stakeholders that may or may not include Police Commission and Human Rights Commission members, to resolve outstanding issues in the ordinance.” The Police Commission went on to say in their memorandum: “….However, as stated in the recommendation, there are still some outstanding issues in the ordinance for the council to resolve. Sexual offenses were not included in the original ordinance and were considered a significant category of offenses that should be included. There was great concern from members of the commission and the public about sexual predators, however, no predatory behavior is on the exclusion list. Several people stated offenses like statutory rape and sex abuse that occur in the zone should be added to the ordinance. Some additional municipal codes should also be added to tie to State statutes, especially for sexual assault. “A second key issue is the disagreement over due process protections for individuals. Some people believe the ordinance circumvents due process by allowing officers to issue exclusion citations based solely on preponderance of evidence, and without requiring an attorney be provided for those who cannot afford one. This combines two issues, the authority of police officers and providing representation for individuals in a civil matter. These speakers discussed a chain of due process that is severed if an officer can sanction someone before they have their day in court before a judge (exclusion prior to conviction). In contrast, officers and other people stated that attention was focused in the design of this ordinance to provide due process protections and that it is a judge making the decision to exclude someone, not the officer. There appears to be confusion about how the ordinance works and this should be clearer before the council makes a determination on the future of the ordinance. A discussion of options to possibly mitigate aspects of the due process concerns should be explored with the Police Department and Municipal Court as part of a decision regarding the future of the DPSZ. Z:\CMO\2010 Council Agendas\M101025\S101025C.doc “In addition, the commission urges the council to consider greater support and funding to social service agencies to aid in the overall criminal justice system. Many offenders who are excluded from downtown by the DPSZ ordinance need additional help for alcohol and drug addiction, and that can only be remedied by having more services available to them to improve their way of life.” Extension of the Downtown Public Safety Zone Over the past months, the Police Department has conferred with Municipal Court Judge Allen and the Court Administrator, as well as members of the public, to identify options to improve the DPSZ civil exclusion process. Judge Allen will be present with Chief Kerns for the October 25th work session and will be able to assist with questions about the due process protections for defendants, provide examples of other situations where non-criminal sanctions are enacted without legal representation and answer other questions the council may have about how the ordinance works. The Police Department’s Activity Report for the first 20 months of the DPSZ ordinance provides data on the highlights of the exclusion program. Based on the findings of this report, the Police Department views a limited extension to the DPSZ for 18 months as a significant resource to maintain progress achieved in improving downtown Eugene’s livability and safety. Within 18 months, the police officers added in the FY11 budget will have completed training and the new Downtown Police Team should be established as a continuous, year-round assignment. When this team is in place, the department will have additional resources to resolve many of the crimes and violations occurring in the downtown core. The department also proposes modifying the ordinance to address sexual violations and crimes. Discussions will continue with the Municipal Court, the City Prosecutor and community stakeholders to review available options to address concerns about due process protections and the complexity of the ordinance. The Activity Report discussed the role of chronic inebriates in two types of disruptive minor offenses: liquor violations and criminal trespass. These findings have already prompted Police Department research and efforts to explore other options to address law enforcement issues and additional community supports for individuals with chronic alcoholism. RELATED CITY POLICIES This topic relates to the Safe Community Vision: A community where people feel safe, valued, and welcome. In addition the topic also relates to several of the City Council’s goals: The Homeless, Sustainability, Downtown and Police Initiatives. The Park Rules currently provide an option of exclusion from parks and playgrounds for certain offenders. COUNCIL OPTIONS A.Direct the City Manager to bring back for final action a revised ordinance to continue the Downtown Public Safety Zone, setting a sunset date of 18 months. B.Direct the City Manager to bring back for final action a revised ordinance to continue the Downtown Public Safety Zone and add sex offenses to the list of violations and crimes subject to exclusion. C.Direct the City Manager to bring back for final action a revised ordinance to continue the Downtown Public Safety Zone and address other concerns the council has identified. D.Allow Ordinance No. 20416 to expire on January 8, 2011, ending the Downtown Public Safety Zone. Z:\CMO\2010 Council Agendas\M101025\S101025C.doc CITY MANAGER’S RECOMMENDATION The City Manager recommends that the council choose Options A and B, directing him to bring back for final action a revised ordinance that would sunset in 18 months and would add sex offenses to the list of violations and crimes subject to exclusion. SUGGESTED MOTION I move to direct the City Manager to bring back for final action a revision to the Downtown Public Safety Zone Ordinance that would add certain sex offenses to the list of violations and crimes subject to exclusion and set a sunset date for the Ordinance of 18 months. ATTACHMENTS A.Police Commission Recommendations: Downtown Public Safety Zone Extension B.Downtown Public Safety Zone Ordinance No. 20462 C.Downtown Public Safety Zone Ordinance No. 20419 FOR MORE INFORMATION Staff Contact: Linda Phelps Telephone: 541-682-6308 Staff E-Mail: linda.m.phelps@ci.eugene.or.us Z:\CMO\2010 Council Agendas\M101025\S101025C.doc Police Commission City of Eugene Memorandum 777 Pearl Street, Room 106 Eugene, Oregon 97401 (541) 682-5852 Date: October 4, 2010 To: Mayor Piercy and City Council From: Members of the Eugene Police Commission Subject: Recommendation on the Downtown Public Safety Zone Ordinance No. 20419 This memorandum provides the Police Commission’s recommendations regarding the continuation of the Downtown Public Safety Zone (DPSZ) Ordinance No. 20419. In the ordinance, City Council specified a process for the commission’s review of the DPSZ effectiveness. This included receiving public input and discussing the DPSZ Activity Report presented by the Eugene Police Department. This link will take the reader to the DPSZ Activity Report on the Police Commission’s web page. The Police Commission received the Downtown Public Safety Zone Ordinance Activity Report from the Police Department on August 18, 2010. On September 1, the commission held a public forum at the Eugene Public Library. Following a short presentation about the findings in the Activity Report, a panel of downtown stakeholders commented on the ordinance and answered questions from the public. Approximately 50 members of the public attended the forum and had the opportunity to provide public comment. The public comment was almost equally divided between those who oppose and those who support the ordinance. (Please see Attachment A for minutes from the public forum.) At their regular meeting on September 9, 2010, the Police Commission discussed input heard at the forum and the Department’s Activity Report. After careful review, the following motion was made: “Recommend to the council continued enforcement of the Downtown Public Safety Zone Ordinance 20419, and the council work with City departments and community members and stakeholders that may or may not include Police Commission and Human Rights Commission members to resolve outstanding issues in the ordinance.” The motion passed 5-4, with members Ahlen, Alsup, Brown and Mueller dissenting. Summary of Public and Commissioner Comments The following summary statements and themes include comments from some members of the public who spoke at the September 1, 2010, forum and some commissioners who support and/or oppose continuation of the exclusion zone. The minutes from the public forum provide additional comments and are provided in Attachment A. Statements supporting and opposing the continuation of the ordinance represent the beliefs expressed by individuals; they have not been corrected for accuracy if they do not correctly describe the DPSZ exclusion process or if they are not factual. Comments In Support of Continuing the DPSZ Ordinance : The ordinance has the ability to protect people and prevent victimization of vulnerable people, especially youth. The statistics in the Activity Report show a strong impact on criminal behavior in a short amount of time. Using the tools that we can enforce will create a better environment for our citizens. Exclusion is often preferable to incarceration, and has been applied very sensibly by the Police Department. The normal pre-conviction process set out in the exclusion ordinance allows people the opportunity to be heard before a judge, who then reviews the police report. If a hearing is requested, the officer who made the arrest will be there and the defendant will have an opportunity to challenge the temporary or 90-day exclusion. So there is due process, and it is not arbitrarily imposed upon arrest by the police officer, there is judicial review. The exclusion process is a part of a comprehensive strategy for Downtown. Accomplishing the goals cannot work without the exclusion zone. Beyond the statistics cited in the report, property owners see this as a lifeline from the City, showing that the city cares about Downtown Eugene. Some individuals noted a big difference since the exclusion zone began—they stated that hardcore predators are gone for a little while and this gives kids a chance. The exclusion zone is offered as a deterrent, because jail is an empty threat to people because of a lack of resources. They felt the exclusion zone shouldn’t be dropped, although it might need to be adjusted. The lack of jail beds was noted as a reason why the exclusion zone was needed at this time because consequences are need for people who offend. Individuals identifying themselves as members of the community, as well as business owners, stated they felt we owe it to our citizens and children to do something about our downtown. It’s not the ordinance or a specific weapon that is the issue, but the ability for it to be implemented. When a recommendation is made, it should be done while considering victims of these crimes. It’s a small price to pay for safety. The process is cheap, easy, works for some people, and is a good way to get people out of trouble. We need to make sure it’s not duplicating any existing rules. The speaker concluded she was very pleased with the way it’s been enforced. However, as stated in the recommendation, there are still some outstanding issues in the ordinance for Council to resolve. Sexual offenses were not included in the original ordinance and were considered a significant category of offenses that should be included. . There was great concern from members of the commission and the public about sexual predators, however, no predatory behavior is on the exclusion list. Several people stated offenses like statutory rape and sex abuse that occur in the zone should be added to the ordinance. Some additional municipal codes should also be added to tie to State statutes, especially for sexual assault. A second key issue is the disagreement over due process protections for individuals. Some people believe the ordinance circumvents due process by allowing officers to issue exclusion citations based solely on preponderance of evidence, and without requiring an attorney be provided for those who cannot afford one. This combines two issues, the authority of police officers and providing representation for individuals in a civil matter. These speakers discussed a chain of due process that is severed if an officer can sanction someone before they have their day in court before a judge (exclusion prior to conviction). In contrast, officers and other people stated that attention was focused in the design of this ordinance to provide due process protections and that it is a judge making the decision to exclude someone, not the officer. There appears to be confusion about how the ordinance works and this should be clearer before the Council makes a determination on the future of the ordinance. A discussion of options to possibly mitigate aspects of the due process concerns should be explored with the Police Department and Municipal Court as part of a decision regarding the future of the DPSZ. Comments Opposing Continuation of the Ordinance The ordinance limits someone’s right to travel freely in society and this is a fundamental right. There is no way to track how many people were cited in error and chose not to challenge their exclusion either because they didn’t understand the process or believed they had no chance of being given a fair hearing in court. Some people have disabilities and little education and don’t understand the exclusion order. Needs to be more of a fair application of ADA rules. Instead of having an exclusion zone, we should use our current judicial system. The ordinance is vague and abuses officer discretion. Concern was expressed that the Activity Report lacked data on the number of homeless people and concern with class issues. The idea of a sunset on the ordinance isn’t unreasonable but needs to be extended to four years instead of two to really see results. Regular reviews and reports of the ordinance’s impacts should be provided. Too much time and too many resources are being used on the exclusion zone. Questions about alcohol and drug violations mentioned in the activity report. It seemed to this individual that more exclusions were made from drug violations than from alcohol, but alcohol was discussed as one of the two main types of disruptive minor offenses. A belief by a speaker at the forum that many of the descriptions of behavior are overstated; the report says more than 60% of people excluded, reported themselves as homeless but this individual thought it was closer to 80%. Rather than exclude people in one neighborhood, several people and commissioners urged focus on the need for services: public bathrooms, very few garbage facilities, no non-denominational shelters are downtown. Crime happens all over the city and sectioning off one area downtown won’t fix the problem. A speaker at the forum stated that Portland had the same type of exclusion ordinance, but was sued for profiling. (Note: Portland’s two ordinances that were allowed to expire on October 1, 2007 were the Prostitution and Drug-Free Zones.) In addition, the commission urges Council to consider greater support and funding to social service agencies to aid in the overall criminal justice system. Many offenders who are excluded from downtown by the DPSZ ordinance need additional help for alcohol and drug addiction, and that can only be remedied by having more services available to them to improve their way of life. We hope that City Council will find this summary useful in its future discussion of the extension of the Downtown Public Safety Zone. ATTACHMENTS: A. September 1, 2010 Public Forum Minutes B. Downtown Public Safety Zone Ordinance No. 20419 C. Police Commission Draft Minutes, pages 1-8 – September 9, 2010 Attachment A EUGENE POLICE COMMISSION DOWNTOWN PUBLIC SAFETY ZONE ORDINANCE – PUBLIC FORUM MINUTES Wednesday, September 01, 2010 Eugene Public Library Panelist Responses to Two Questions: ts of the downtown exclusion zone? 1. What do you feel have been the effec e? 2. 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§¬»³·º¿·´·²¹ô¬¸»²¬»°«°¿²¼¼±±³»¬¸·²¹¬±«°°±®¬¬¸»¶¿·´¿²¼°«¾´·½»®ª·½»ô·²¬»¿¼±º¬¿µ·²¹¿¸±®¬ ½«¬¿²¼«·²¹¬¸»»¨½´«·±²±®¼·²¿²½»ò Minutes Recorded by Randi Zimmer, Police Commission Staff EMAIL CORRESPONDENCE RECEIVED AT THE POLICE COMMISSION OFFICE: 1. Prepared Statement from Claire Syrett, ACLU Exclusion Zone Talking Points Police Commission Forum September 1, 2010 As a matter of policy the ACLU opposes programs like the one currently in place for downtown Eugene that allow pre-conviction exclusion of someone accused of a crime. Excluding a person from our public places – our commons – is a serious sanction that should not be imposed without due process of law. When we speak about excluding som eone under these zones we are talking about limiting someone's right to travel and associate freely in our society. To us, this right is a fundamental right. And before our government removes or limits that right by using an exclusion order, it must ensure that certain due process protections happen so that we do not end up punishing the innocent. These protections include: arrest and filing of criminal charges, the right to counsel, the right to a j udge or jury, a judicial hearing and judicial oversight. While the proponents of the exclusion zone focus on how effective and necessary this ordinance is we shouldn’t loose sight of what we are giving up to use this too l - including fundamental rights guaranteed by our Bill of Rights and a process that upholds those rights – rights which protect all of us in this room and in the businesses and schools downtown - not just those people who might be the targets of this ordinance. I want to be clear: the ACLU believes that we can have exclusion orders that uphold these due process principles. In stead of an ordinance, we can use the current judicial system. Under our system, if a person is suspected of one of the crimes included in the exclusion ordinance, they can be arrested or cited and then must appear before a judge. At that time, if the person is going to remain or be released from custody before going to trial, the District Attorney can request the judge to issue an exclusion order as part of the release conditions. And if the person pleads guilty or goes to trial and is found guilty then at the time of sentencing, the judge can order the person excluded as part of the sentence. The current exclusion program also circumvents due process by allowing exclusion based solely on a preponderance of evidence in a civil process that does not require an attorney be provided for those who cannot afford one. In spite of the efforts by our municipal court judges to provide a fair process they cannot represent or advise the people who come before them. Without access to a lawyer, many people do not fully understand how quickly they need to act, and what they must do to protect their rights to challenge a n exclusion order. Many of the people who receive these orders might not be as well equipped as all of us to understand what the exclusion order says, what it means and how to access and understand the system to defend themselves. Some have little or no education, some have serious disabilities or mental health hurdles that have nothing to do with any criminal activity. In fact at least one of our municipal court judges has stated she avoids imposing exclusion on those with mental health issues because they cannot fully understand the sanction or its implications. Lastly there is no way to track how many people were cited in error and chose not to challenge their exclusion either because they didn’t understand the process o r believed they had no chance of being given a fair hearing in court. This is another link in the chain of due process that is severed when we allow the use of this kind of street level justice where an officer can cite someone and essentially sanction them before they have had their day in court. It may be that a majority of Eugene residents are content to allow this program to continue given the support it has received from downtown businesses. But the fact that it popular does not make it right. The ACLU will continue to oppose this exclusion program and others like it on the principle that a free society does not banish people from the public square without due process of law. The downtown public safety zone does not provide adequate due process and should be abandoned. 2. Email received to alert commissi on of future correspondence to be received: From: Connie Bennett [mailto:connie@silvamgmt.com] Sent: Wednesday, September 01, 2010 10:33 AM To: ZIMMER Randi M Subject: testimony for DPSZ I am looking for an address tha t our downtown building owners and tenants can use to send written support for the DPSZ. I realize the public forum is tonight and have given building owners and tenants notice, but also wanted to provide them with a way that they could send written support for the ordinance. Thank you for your assistance. Connie Bennett, Property Manager Attachment C M I N U T E S DRAFT Eugene Police Commission McNutt Room—Eugene City Hall—777 Pearl Street Eugene, Oregon September 9, 2010 5:30 p.m. PRESENT: Tamara Miller, Chair; Juan Carlos Valle, Vice Chair; John Ahlen, Joe Alsup, George Brown, Mike Clark, Jim Garner, Tim Mueller, Marilyn Nelson, members; Police Chief Pete Kerns; Randi Zimmer, Linda Phelps, Lt. Doug Mozan, EPD staff; Police Auditor Mark Gissiner. Ms. Miller called the meeting of the Eugene Police Commission to order. I. AGENDA MATERIAL REVIEW AND MINUTES APPROVAL Ms. Zimmer reviewed the agenda attachments, which included two sets of commendations and Internal Affairs case summaries for July-August; a news release about the commission vacancy; and Police Auditor Mark Gissiner’s annual report. She deferred consideration of the July 8, 2010, minutes to the October 2010 meeting. II. PUBLIC FORUM Mr. Valle reviewed the rules for the Public Forum. Deborah Frisch complained about the work of a minutes recorder, shared a personal experience related to the events of September 11, 2010, and complained about the failure of Congress to enact legislation providing benefits to those injured that day. Mary Salinas shared a story about a man who attempted to evade the police and averred the police had set a police dog upon him while he was handcuffed. She asked why the “good cops” did nothing about the “bad cops.” She also spoke out against child pornography, terming it genocide. Claire Syrett of the American Civil Liberties Union (ACLU) reiterated the ACLU’s objection to the City’s Downtown Public Safety Zone (DPSZ) ordinance. She said such sanctions required proper due process and suggested there were sufficient processes in place already for repeat offenders that provided due process. It would eliminate the confusing and separate process required by the DPSZ ordinance. She asked the commission to recommend to the council that the zone be allowed to expire. Majeska Seese Green questioned why the recent forum on the DPSZ had not been recorded. She did not think it was respectful of speakers’ comments, no matter how well the summary was written. Referring to the Agenda Item Summary for the DPSZ, she expressed concern at the staff recommendation, which was for the first or second option rather than the more neutral third option. She did not think staff should support a position before the commission discussed the issue and did not believe the commission’s staff should be representing Eugene Police Department (EPD) positions. Frank Switzer discussed the impact of the DPSZ on his downtown business, the Bean Buzz. He expressed concern that the exclusion zone had caused him to lose business. He believed there was a concerted campaign by Lane Transit District (LTD), the EPD, and the Eugene Area Chamber of Commerce to remove people from downtown and that they were using the zone inappropriately to do so. Mr. Switzer noted the recent public forum on the DPSZ and said that since he was probably going to be in litigation against LTD he had chosen not to speak at the forum, so the DPSZ was also impacting his First Amendment rights. He recommended that the City discard the DPSZ and instead bring together the neighborhood groups and social service agencies that served the populations the ordinance was attempting to address and deal with issues involved from a social services point of view rather than an enforcement point of view. Mr. Switzer observed that the issue of mental health was not even discussed in the staff report, and it was an important aspect of the issues surrounding the exclusion zone. Mr. Valle closed the Public Forum. III. COMMENTS FROM CHAIR AND ITEMS FROM COMMISSIONERS Ms. Miller welcomed new Police Commissioner Jim Garner and thanked Civilian Review Board (CRB) liaison Tim Laue for attending in Bernadette Conover’s place. Mr. Valle also welcomed Mr. Garner and encouraged him to attend a future EPD Citizens Police Academy. Ms. Nelson welcomed Mr. Garner and reported that during the commission’s recess she had participated in interviews for the new Police Commissioner and had been involved in the planning effort for the recent DPSZ forum. Mr. Alsup welcomed Mr. Garner. He reported on his participation in the bicycle ride held to honor late former Mayor Ruth Bascom, which he had found moving. Mr. Brown reported that he had attended the DPSZ forum and found it informative and worthwhile. He also welcomed Mr. Garner. Mr. Mueller had attended the DPSZ forum and reported he had been surprised when a participant pointed out the forum was being held inside the DPSZ and those who had been excluded from the zone could not attend to comment. That had not occurred to him when the forum was being planned, which made him question what else the commission had missed. Mr. Clark also welcomed Mr. Garner. In response to Ms. Seese Green’s comments, he said that City Council Agenda Item Summaries were done in the same format and included a staff recommendation prepared by the staff person in charge of the area in question. He thought it was appropriate that staff made such professional recommendations. Mr. Garner thanked the commissioners he had worked with to this point. He noted his attendance at the DPSZ forum and Use of Force Committee meetings. He said those meetings had raised many issues he had not previously considered and he was open to the coming discussion. Mr. Ahlen asked if the DPSZ forum had been recorded. Mr. Laue regretted Ms. Nelson’s departure from the commission. Ms. Zimmer announced the upcoming Neighborhood Summit on October 2 from 8 a.m. to 2 p.m. at South Eugene High School. She encouraged commissioners to attend. The Prevention Convention was scheduled for October 15 at Sheldon High School from 1 p.m. to 5 p.m. She also noted the commission had a vacancy and applications could be found on the City’s Web site. Ms. Zimmer also announced the departure of policy analyst Ellwood Cushman, who was leaving the City after 38 years of service. Speaking to Ms. Seese Green’s concerns, Ms. Zimmer noted the full range of the staff recommendation was reflected in the suggested motions continued onto the last page of the Agenda Item Summary. Ms. Zimmer noted that Ms. Conover and Mr. Travis were excused from the meeting. IV. DOWNTOWN PUBLIC SAFETY EXCLUSION ZONE ORDINANCE Ms. Miller reported that the statistical report on the DPSZ zone was posted on the Police Commission’s Web site. Ms. Phelps reported on the results of the City’s institution of the DPSZ ordinance, noting the department had collected 20 months of data. She first clarified that the statistical report mentioned by Ms. Miller was an activity report rather than an in-depth analysis of the DPSZ. She briefly noted the geographic scope of the DPSZ and reported the DPSZ was an alternative to incarceration and an attempt to displace chronic violators from the downtown to improve safety and the perception of safety in the downtown core. In sum, Ms. Phelps reported that 96 exclusions were requested by the department and the courts approved 93 percent of those requests. The average exclusion involved three violations. Judges granted seven variances to individuals with a need to enter the DPSZ. Liquor violations and criminal trespass, two significantly disruptive minor offenses, far exceeded other violations. Ms. Phelps reported that there were 4,180 total charges involved in the exclusions issued; 377 were felonies and 2,872 were misdemeanors. Of the misdemeanor charges, 856 were for criminal trespass and 810 were for liquor violations or driving under the influence. A small group of chronic, multiple offenders who self-reported as homeless, contributed significantly to the crime occurring downtown. Enforcement downtown had displaced some criminal activity to nearby downtown neighborhoods, such as the West University Neighborhood. The EPD was working with the Oregon Liquor Control Commission (OLCC) and local merchants on a voluntary ban on malt liquor sales in that area. Ms. Phelps shared information on the demographics of those who committed offenses in the DPSZ and the larger downtown area. She noted that of the 94 people subject to exclusion, 59 had 734 charges against them in the previous 46 months; 35 had no prior criminal offenses. Ms. Phelps emphasized that the issues involved were not just police issues, but were social issues and included addiction and mental health issues not being addressed in the community. She said that was significant in regard to who was offending downtown and what resources they had available to them. Ms. Miller solicited commission questions and comments. Mr. Valle questioned how staff would analyze the data in the future given changing circumstances, such as the increase in officers serving downtown. Ms. Phelps agreed that things did not remain constant. She believed staff would be able to track patterns and noted that new officers would not be on the street until 2012, so the EPD would have three years of comparable data to review in terms of staffing levels. Mr. Mueller asked if the DPSZ ordinance or the increased police staffing downtown was responsible for the safer feeling downtown. Lt. Mozan believed no single thing led to the safer feeling. He said EPD’s increased presence downtown led to increased enforcement but officers also had the DPSZ as a tool, which allowed them to remove a core group of chronic offenders from downtown. The EPD had also spread officers out on different watches. Lt. Mozan also emphasized the importance of increased communication between downtown stakeholders, including police officers and security personnel, and said stakeholders compared notes on trends and issues, which led to improved outcomes. Lt. Mozan suggested the question to consider was what would happen if staffing was reduced and the ordinance eliminated. Although he believed improvements to the ordinance could be made, Mr. Clark said he had seen a real difference in downtown as result of the City’s extra efforts. At Mr. Clark’s request, Sgt. Fitzpatrick provided an example of a typical case that led to exclusion. Ms. Miller observed that the statistics indicated that adults over 24 years of age represented 71 percent of those excluded, although people often complained about the youth downtown. Ms. Miller reported a civil lawsuit had been filed regarding the constitutionality of the ordinance and expressed disappointment no one asked a question about the ordinance’s constitutionality at the DPSZ forum while the City Attorney was present. Speaking to the issue of funding social services and jail beds, Ms. Miller acknowledged a lack of funding for services in general. She reviewed some comparative data for Portland, Salem, Eugene, and Multnomah County related to those jurisdictions’ expenditures for public safety and social services that demonstrated Eugene’s lack of officers, district attorneys, and jail beds. She did not know how other communities were able to fund their services to a greater degree than Eugene-Springfield. Ms. Miller recalled Ms. Syrett’s comments at the forum that those concerned about public services should vote for public service funding measures. She agreed with those comments, but said in the meantime, the City must find other ways to deal with crime in the community. Mr. Mueller said the list of stakeholders appeared to lack representation from social service agencies and he was curious as to why they were not considered stakeholders. Lt. Mozan said they were considered stakeholders. He pointed out there were different interests in downtown and the list referred to by Mr. Mueller included security stakeholders. There was also a Downtown Safety Committee that included several human services agency representatives. Mr. Mueller preferred that people be put into treatment as needed rather than be incarcerated, suggesting that it could be done at less cost. He pointed out the large number of alcohol-related offenses and suggested that rather than displacing them into other neighborhoods, people be put into treatment so they could change their ways and have a better life. He said research indicated people who had encounters with law enforcement had reduced participation in democracy because they felt abused and overwhelmed by authority figures. He said that was not a good thing for society and recommended the commission look beyond “its corner of the world” and consider the “bigger picture.” Although kicking people who needed help out of downtown might help the businesses of Mr. Clark and Mr. Brown, Mr. Mueller did not think it was the best thing for the community. He wanted to look more carefully at the bigger issues rather than merely accept that “things are better this summer.” Responding to a question from Mr. Laue, Ms. Phelps said a key difference between the DPSZ and the City’s former exclusion zone was that the former ordinance gave officers more discretion. In the case of the DPSZ, City staff worked with Municipal Court to develop an ordinance that included show cause hearings. Officers could not grant exclusions on their own, although she acknowledged there were questions about how the temporary five-day exclusion worked. She said 90-day exclusions and one-year exclusions could only be imposed by a judge. That included a show-cause hearing and the individual must appear in court. It was a civil process, so no representation was involved. Mr. Laue asked if Eugene continued to have a prostitution-free zone. Chief Kerns clarified that the City had a prostitution-free ordinance but no identified zone, which was determined by the number of arrests in a given area. Mr. Laue asked about existing court tests for similar ordinances and zones. He suggested that such a zone might be legal but was not necessarily constitutional, as laws were passed by legislative bodies and constitutionality was determined by the courts. Speaking to earlier comments about funding levels for social services and jail beds, Mr. Laue noted that Lane County had one of the lowest property tax bases in Oregon and lacked funding for basic county responsibilities, which led to the current crisis conditions in corrections and social services. Mr. Laue said he heard that the DPSZ was an effective tool in an area where problems had grown to crisis proportions. He suggested that the logical question was whether DPSZ would be an effective tool if adopted citywide, and if adopted citywide, would the DPSZ be constitutional. He recommended the commission focus on th the issues raised by the ACLU related to the 13 Amendment and due process. While he agreed that there were predatory individuals in downtown who made victims of unsupervised youth, there was the larger question of whether the City could, without due process, determine where people could or could not be. Mr. Valle, an organizer of the forum, said his focus had been not on the location of the forum but the balance on the panel, but he appreciated Mr. Mueller’s remarks about the location. Speaking to the crime categories on page 8 of the report, Mr. Valle asked for specific examples of disorderly/harassment crimes. Lt. Mozan emphasized the department’s focus on criminal behavior and indicated the most frequent offense involved in disorderly conduct was fighting. Physical harassment was generally when one was subjected to unwanted physical contact and was also a result of fights. Mr. Valle hoped the department’s focus was on crime and not behavior. Lt. Mozan said that the police could not issue an exclusion order in the absence of a crime. If an individual committed a crime that fell within the list of excluded violations, that person was eligible for the exclusion process. Mr. Valle averred that he had heard that the EPD was “de-policing” and asked if the zone could be a way for officers to “over police” the area in question. Lt. Mozan said the department was not talking about “de-policing” when it added staff to downtown. He defined “de-policing” as when officers chose not to take action based on a preconceived notion; in this case, the EPD deployed officers downtown to make downtown safer, address quality of life issues, and enforce the law. The courts had indicated to the EPD that the ordinance was used in a judicious and focused manner toward only the chronic and most predatory offenders in the core. Not everyone who received a ticket for an offense downtown received an exclusion order; only a few were handed out in comparison to the hundreds of arrests made by downtown officers. Mr. Valle asked if officers received training on the DPSZ ordinance. Lt. Mozan said yes. Sgt. Fitzpatrick described the training the officers received and noted the department’s consultation with legal counsel to ensure that officers were acting legally. Mr. Alsup shared Mr. Laue’s concerns about due process. He did not think the system was working for those being victimized because of the inability of the County to hold people in the jail. Low-level criminals were out of the jail in hours and there was no accountability. At-risk youth were in danger, and he thought those factors needed to be considered. Speaking to the ACLU’s recommendations, Mr. Alsup expressed interest as to how that those suggestions could be implemented. He asked if the City could track those with multiple offenses so after a certain number of offenses a judge could exclude them from downtown without the need for such an ordinance, or did such a system constitute double-jeopardy. He would support such a system if it could be put into place. Mr. Alsup doubted the constitutionality of a DPSZ if imposed community-wide. Sgt. Fitzpatrick agreed with Mr. Alsup that the system was failing victims. He said it was not uncommon for an officer to deal with the same person one day as a suspect, one day as a witness, and one day as a victim. He also pointed out that in some cases a police officer was the only adult a youth could turn to. Sgt. Fitzpatrick recommended that the ordinance be modified to include sex offenses. Ms. Nelson termed the forum location unfortunate but pointed out that those who had been excluded from downtown could speak on the DPSZ at a City Council meeting. While she agreed that funding for social services and addiction treatment was inadequate, people had the right to drink if they chose. However, they did not have the right to violate the law. Such violations were why people were excluded. Ms. Nelson said the data indicated many of those excluded from downtown were frequent offenders with long criminal records. Ms. Nelson found the DPSZ useful in reducing crime through removing such individuals from the area. She believed the DPSZ, in combination with social services, was necessary to increase public safety downtown. Ms. Nelson supported Sgt. Fitzgerald’s recommendation to add sex offenses to the ordinance. Ms. Nelson continued to have questions around the issue of due process and looked forward to court challenges to the ordinance as a means to answer some of the commission’s questions. However, given that the City lacked the ability to hold people before trial, there would be more failure to appear violations if the DPSZ did not exist. On balance, she thought the DPSZ was worth having in place. Mr. Ahlen suggested the commission’s discussion of the ordinance was an opportunity to communicate to the council that the City needed to find a way to fund more jail beds. He termed the DPSZ a temporary “fix” until that could occur. Mr. Brown said the City Council had recently had a chance to devote more resources to public safety or to social service and a council majority chose to devote more money to public safety, which he found unfortunate. He hoped the council did a better job of allocating resources in the future. Responding to a question from Mr. Brown about the core group of offenders, Lt. Mozan said the exclusion had a time window and when the time expired some offenders returned to the downtown. Some returned within the exclusion period and were charged with a criminal violation. Many were offending elsewhere. He referred the commission to page 9 of the report, which indicated that ten percent of all crime was taking place in a ten-block area of downtown. Mr. Brown commended increased communication with the stakeholders but pointed out that could occur without the exclusion zone. He did not support the ordinance and questioned whether the zone had been effective given that crime had only gone down in two categories and those excluded were free to commit crimes in other parts of the community. He thought the ordinance’s provisions were unclear and believed it violated the United States Constitution. He said the City already had laws in place, and needed more resources to make the system work. He did not think the ordinance improved anything. Mr. Clark suggested the commission was making assumptions about due process that might not be accurate. He asked how long an officer could hold someone following arrest. Chief Kerns said that a person must be arraigned within 24 hours but their movements could be restricted within that time period. He said it required the same evidence for a judge to exclude someone as it required for the officer to exclude someone. Lt. Mozan clarified that judges, not officers, excluded people from downtown. Mr. Clark believed that the DPSZ had resulted in the desired results. He also agreed with adding sex offenses to the list of offenses for which one could be excluded. While he understood the concerns expressed regarding the lack of legal counsel at hearings, he pointed out that people could also complain to the Police Auditor about that issue without a lawyer present, and to date no one had. Mr. Mueller objected to the ordinance. He suggested that a homeless alcoholic person who was usually in a haze most of the time would be unable to stand in front of a judge and understand the proceedings without a lawyer. He did not see how someone could get due process in such a situation. Mr. Mueller regretted the commission lacked information about the exclusion zone passed in Portland and subsequently discarded. He suggested Eugene could face similar challenges to its zone. Mr. Mueller said if the commission was to recommend the continuation of the DPSZ to the council, he supported the addition of sex offenses and the elimination of public urination as reasons for exclusion. He called for more bathrooms in downtown. Mr. Mueller said that the mentally ill do not know what was going on and a mentally ill person should not receive an exclusion order. He noted that two people were excluded for marijuana possession and he thought that ridiculous, and called for the deletion of possession as a reason for exclusion. Ms. Zimmer reviewed the options developed in coloration by herself and Ms. Phelps. She anticipated the commission would assemble a list of outstanding issues to forward to the council. Ms. Nelson, seconded by Ms. Miller, moved Option B, to recommend to the council continued enforcement of the Downtown Public Safety Zone Ordinance 20419, and the council work with City departments to resolve outstanding issues in the ordinance. Mr. Valle offered as a friendly amendment, accepted by Ms. Nelson and Ms. Miller, that the motion be revised to read “. . .City departments and community members and stakeholders that may or may not include Police Commission and Human Rights Commission members to resolve outstanding issues in the ordinance” so that the motion then read: Ms. Nelson, seconded by Ms. Miller, moved Option B, to recommend to the council continued enforcement of the Downtown Public Safety Zone Ordinance 20419, and the council work with City departments and community members and stakeholders that may or may not include Police Commission and Human Rights Commission members to resolve outstanding issues in the ordinance. Ms. Miller solicited comment on the motion. Mr. Valle endorsed a multi-pronged approach that included partnerships with non-profit organizations and businesses that could bring additional resources to downtown. He wanted to ensure the council saw all the commission’s suggestions for revisions to the ordinance and for complementary efforts to help improve conditions downtown. He suggested the department find new ways to redirect the efforts of existing police substations toward assisting downtown. Mr. Mueller likened those who were being excluded from downtown to his children, and said when they had done something wrong or needed help, he had helped them and they learned from the experience. He suggested the City should take a similar approach and rather than focus on enforcement funding, do more to help people recover so they could do the right thing. Mr. Clark believed the City was trying to help people downtown. He said when it comes to helping people, Eugene spent more money per capita doing so than many other cities of comparable size. He thought that was commendable and the City should do more, but he still supported the exclusion zone as a tool. Responding to a question from Mr. Clark about use of the phrase “resolving outstanding issues,” Ms. Zimmer suggested that the commission could identify and forward ordinance revisions to the council. Mr. Garner indicated support for the motion. Mr. Ahlen maintained that Eugene and Springfield attempted to push criminals into each other’s communities and into surrounding communities. He said no one discussed that explicitly. He did not want to push the boundaries for people’s rights due to the City’s budget condition. He suggested the commission would prefer a funded jail to the zone, and he thought that was what the commission should communicate to the council. He did not support the motion because he preferred to see changes to the ordinance before further enforcement occurred. Ms. Miller recalled that at the public forum the commission heard the zone was an effective tool because it excluded those who wanted to be downtown because it provided them with a ready supply of victims and a customer base for drug sales. In regard to the constitutionality of the ordinance, Ms. Miller pointed out that those excluded received a hearing before a judge for their citation. She did not think the commission could determine the constitutionality of the ordinance as that was a job for the courts. The motion passed, 5:4; Mr. Ahlen, Mr. Alsup, Mr. Brown, and Mr. Mueller voting no. Ms. Miller called for a brief break.