CHIPPEWA COUNTY

LEGAL & LAW ENFORCEMENT COMMITTEE

SPECIAL MEETING

FEBRUARY 15, 2021

WEBEX CONFERENCE CALL

4:30 PM

Chippewa County Page 1 Published 2/8/2021 12:00 AM Revised 2/12/2021 8:29 AM

District 9 (Chair) Mechele Shipman

District 4 (Vice-Chair)

Lee McMenamin

District 1 Harold Steele

District 12 Kari Ives

District 5 Tom Thornton

Legal & Law Enforcement Committee

Agenda February 15, 2021 Special Meeting Webex Conference Call 4:30 PM

Chippewa County Page 2 Published 2/8/2021 12:00 AM Revised 2/12/2021 8:29 AM

DUE TO THE COVID-19 PANDEMIC THIS MEETING IS BEING HELD VIA CONFERENCE CALL TO COMPLY WITH THE SOCIAL DISTANCING GUIDELINES. IF YOU ARE A MEMBER OF THE PUBLIC AND WISH TO SPEAK, PLEASE CALL THE DIAL IN NUMBER AND THE COMMITTEE CHAIR WILL ACKNOWLEDGE YOU AT THE APPROPRIATE TIME ON THE AGENDA.

IF YOU NEED TO EITHER MUTE OR UNMUTE YOURSELF DURING THE MEETING PRESS *6

MEETING PHONE NUMBER: 1-415-655-0001

MEETING NUMBER (ACCESS CODE): 182 592 9286

MEETING PASSWORD: 273 84 923

1. CALL TO ORDER

2. ROLL CALL

3. MEMBERS OF THE PUBLIC WISHING TO BE HEARD (Comments will be limited to 5 minutes per speaker)

4. REPORTS

1. Sheriff's Department Contracted Services - Jim Kowalczyk/Mark Bauman/Andy Clark

5. BUSINESS ITEMS

1. Sheriff's Office 2022 CIP Projects - Jim Kowalczyk/Chad Holum

6. COMMUNICATION

7. AGENDA ITEMS FOR FUTURE CONSIDERATION

8. ADJOURN

Chippewa County shall attempt to provide reasonable special accommodations to the public for access to its public meetings, provided reasonable notice of special need is given. If special accommodations for a meeting are desired, contact the County Clerk’s Office at 726-7980.

Members of the Chippewa County Board of Supervisors who are not members of this committee are entitled to attend this meeting. It is possible that the attendance of one or more such nonmember Supervisors may create a quorum of some other county board committee, board or commission. Such a quorum is unintended and the nonmember Supervisors are not meeting for the purpose of exercising the responsibility, authority, power, or duties of any other committee, board or commission.

Chippewa County Sheriff’s Office

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Chippewa County Sheriff’s Office

Police Contract Services

Providing increased individualized service that communities request without increased costs to

taxpayers outside those communities

n Sheriff James L. Kowalczyk

n Chief Deputy Chad V. Holum

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Chippewa County Sheriff’s Officen THE MISSION, VISION AND CORE VALUES OF THE CHIPPEWA COUNTY

SHERIFF'S OFFICEn Missionn It is the mission of the Chippewa County Sheriff's Office to serve the citizens of

Chippewa County as well as visitors to our county by providing a high-level of professional law enforcement that protects and preserves the Constitutional Rights of the people of which our Country is founded, which mandates the fair and impartial enforcement of the law.

n VISIONn It is the vision of the Chippewa County Sheriff's Office that this County continues to

be one of the finest and safest places to live and visit in the State of Wisconsin. Our vision includes that this Office be a leader in public safety which will ensure the quality of life in Chippewa County. We will achieve our vision by continuing the concept of collaborative problem solving within the law enforcement and legal community. We will continue to provide effect law enforcement by maintaining the appropriate levels of technology, staffing, training and community partnerships.

n CORE VALUESn We, the men and women of the Chippewa County Sheriff's Office, commit ourselves

to honorably perform our duties with integrity, with respect to all people, and with wisdom, common sense, fairness and courage. We pledge to maintain a strong sense of honesty, morality and ethical character. We pledge to honor and earn the Chippewa County Community's respect and trust by providing the highest level of professional and quality law enforcement. We pledge to treat those we serve and are sworn to protect with courtesy, respect, dignity and compassion to achieve that respect and trust.

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What is Contracting?§ The Chippewa County Sheriff’s Office provides a

fee based police service to towns and villages within Chippewa County.

§ Contracted services has been successfully implemented in South East Wisconsin for many years, including Dane and Waukesha counties.

§ Chippewa County is not creating a new concept, we are using established practices to provide increased services to individualized communities

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Why should Chippewa County contract?

§ Taxpayers in growing communities demand more service for their tax dollars.

§ Contracting offers quality professional law enforcement services at a reasonable cost, without increasing expenses to neighboring communities.

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Does contracted services help fulfill Chippewa County strategic plan?

n Effectively communicate information about programs, services, and resources to all residents and county employees

n Explore and use best practices for communicating information to rural communities

n Conduct face-to-face meetings with residents and county employees to listen to their concerns and clarify expectations

n Develop additional sources of revenue and funding to meet emerging needs

n Study strategies for revenue generation from other counties and municipalities

n Collaborate with other counties and municipalities to achieve cost savings through shared resources

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Benefits of contracting to Chippewa County

n Increased law enforcement presencen Generated revenue leads to increased Staffn Better police community relationships from more

positive interactionsn Decreased response time to emergencies in outlying

areasn Increased proactive policingn Liability reduction

“Mutual aid requests” will be officers trained to Sheriff’s Office standards

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What public entities does the Sheriff’s Office contract with?

n The Village of New Auburnn Contracting since 2017

n Lake Holcombe high school n Contracting since 2020

n The Town of Wheatonn Contracting since 2021

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Why did the Sheriff’s Office begin contracting with public entities?

n In 2017 the Village of New Auburn was having employee performance issues, these issues began to impact the safety of the public and also negatively impacted the Sheriff’s Office by causing us to use resources to assist an officer who was not making sound decisions. The Village was also having employee retention issues after the departure of a long time employee

n Management reached out to village officials to discuss issues that their employee was creating. The Village of New Auburn was at that time entertaining contracted services.

n The initial contract was a competitive process. The Bloomer police department also submitted a proposal to contract with the Village to provide law enforcement services, ultimately The Village chose to contract with the Sheriff’s Office.

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Why did the Sheriff’s Office begin contracting with public entities?

n In early 2020 the Sheriff’s Office was approached by the Lake Holcombe high school to provide services as a school resource officer.

n The school was able to secure state funding to pay for the deputies time at the school.

n In the Fall of 2020 Sheriff Kowalczyk was approached by members of the Wheaton Town Board to provide contracted services.

n The board had previously been attempting to hire a town constable and was unsuccessful. Discussions began and a contract was agreed upon where the County would provide 16 hours of service per month.

n All of the contracts take into consideration input from the customer and the county. Contracts are reviewed by DOA and corporation counsel and are legally binding.

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Cost Vs. Revenue

n Each contract has different terms, the goal is not to make a profit, rather provide a quality service at a reasonable cost.

n Village of New Auburnn The billed rate for 2021 is $39.42 per hour. This rate has been established

based upon the initial contract rate of $38.00 per hour. Deputy wages plus benefits range from $36.07-$46.50.

n Lake Holcombe high school n This operation is limited to two specific deputies, as such we bill at each

deputies exact wage and benefit rate which is currently $46.50 per hour

n The Town of Wheatonn The Town of Wheaton contract uses multiple officer and has a flat billing rate

of $45.00 per hour.

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Can the Sheriff’s Office handle current needs of county residence plus contracted services?

n The short answer is yes

n Around the time we began contracted services the Sheriff’s Office patrol division began working 12 hour shifts

n 12 hour shifts increased the number of officers working a given shift, this provided the opportunity for officers to be available to fulfill both the needs of county residents and contracted services

n Should another municipality request contracted services the Sheriff’s Office would likely need to add staff.

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Customer Satisfaction

n In line with The Sheriff’s Office mission, vision, core values, along with the county boards strategic plan; our goal is to provide the highest customer satisfaction

n Sergeant Clark regularly attends board meetings with both the Village of New Auburn and the Town of Wheaton.

n The Village of New Auburn has repeatedly expressed their satisfaction with the services provided.

n The Town of Wheaton has expressed their satisfaction with how we worked with them during the contract negotiation and with our performance during the initial month of the contract.

n The Lake Holcombe school district administrator has also reported that he is satisfied with the services provided to the school district.

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Summary

n Consistent with County Board strategic plan and Sheriff’s Office mission, vision, and core value statements the Sheriff’s Office has been providing contracted services to public entities.

n The Sheriff’s Office believes that these contracts improve the quality of life for Chippewa County residents both in the communities that contract, as well as, the areas surrounding those communities.

n Contracted law enforcement services: providing increased individualized service that communities request without increased costs to taxpayers outside those communities.

n Questions?

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Mr. David H. Raihle, 1986 WL 288962 (1986)

© 2021 Thomson Reuters. No claim to original U.S. Government Works. 1

1986 WL 288962 (Wis.A.G.)

Office of the Attorney General

State of WisconsinOAG 24-86

July 15, 1986

CAPTION: Under section 66.30, Stats., and subject to some limitation, a county may furnish certain supplementallaw enforcement services to villages and towns within the county. The county sheriff's consent to provide suchsupplemental services and the sheriff's approval of such a contract is required.

*1 Mr. David H. RaihleCorporation CounselChippewa County99 East Grand AvenueChippewa Falls, Wisconsin 54729

Dear Mr. Raihle:You have requested an opinion on the authority of local governments to enter into cooperative agreements under section66.30(2), Stats. Specifically, you ask: “May a town or village and the county enter into a contract, with the consent of the sheriff,wherein the local municipality would pay funds to the county in exchange for law enforcement services beyond that which thesheriff's department is presently providing?”

In answering this question, it is assumed that the county-wide law enforcement services, ‘which the sheriff's department ispresently providing’ the towns and villages involved, are legally adequate. Under section 59.24(1), the sheriff is responsible forkeeping and preserving the peace in the county. Those county law enforcement services are supported by county-wide taxes andadditional town or village taxes may not be raised or expended for expanded county law enforcement services. Sec. 59.07(5),Stats. Simply stated, “[t]he purpose of the tax must be one which pertains to the public purpose of the district within whichthe tax is to be levied and raised,” and town or village taxation is not an appropriate vehicle for insuring that the quantity orquality of county law enforcement services is improved. See Sigma Tau Gamma Fraternity House v. Menomonie, 93 Wis. 2d392, 412-13, 288 N.W.2d 85 (1980).

According to your letter, two municipalities in Chippewa County wish to enter into law enforcement contracts with the county.One municipality is a village with a population of 2,000, and the other is a town with a population of 4,200. You further describethe nature of the agreements as follows:The local municipal funding would not be payment for duties which the sheriff is required by law to perform. Rather, themunicipalities would secure additional patrol, visibility, physical presence and law enforcement not only of state law and countyordinance, but enforcement of town or village ordinances.

Officers patroling in local municipalities would be deputy sheriffs serving solely under the control of the sheriff. The towns andvillages would have no supervisory control over the officers or the sheriff. The sheriff, in his sole discretion, would scheduleand direct the officers assigned to the local municipalities. Costs of added services are to be solely paid by local municipal fundswithout fiscal impact or additional expense to the county.

The sheriff has been consulted in his matter and, if lawful, he would consider such a contract. Because of constitutional andstatutory limitations directed to the enlargement of sheriffs' duties, it may be necessary to consider a contract term only for theduration of the incumbent sheriff.

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Mr. David H. Raihle, 1986 WL 288962 (1986)

© 2021 Thomson Reuters. No claim to original U.S. Government Works. 2

*2 The subject of your inquiry has already been rather extensively reviewed and answered in several prior opinions of thisoffice. 65 Op. Att'y Gen. 47 (1976); 60 Op. Att'y Gen. 85 (1971); 58 Op. Att'y Gen. 72 (1969). For the most part, thoseopinions are still applicable. They point out that, subject to certain limitations stated therein, there is latitude for the executionof agreements, such as you describe under the joint exercise of powers statute. Sec. 66.30, Stats.

Section 66.30(2) states, in part:In addition to the provisions of any other statutes specifically authorizing cooperation between municipalities, unless suchstatutes specifically exclude action under this section, any municipality may contract with other municipalities, for the receiptor furnishing of services or the joint exercise of any power or duty required or authorized by law.

This section allows each municipality to contract to the extent of ‘its lawful powers and duties.’ Sec. 66.30(2), Stats. Thus,‘the service must be one that the receiving municipality is authorized to receive and the performing municipality is entitledto render.’ 56 Op. Att'y Gen. 69, 70 (1967). Our supreme court has pointed out that ‘[m]unicipalities, including towns andvillages, may contract with one another for the receipt or furnishing of law enforcement services or for mutual law enforcementassistance under sec. 66.30(2), Stats.’ Village of McFarland v. Town of Dunn, 82 Wis. 2d 469, 475, 263 N.W.2d 167 (1978).The term ‘municipality’ is defined by section 66.30(1)(a) to include ‘county.’

Section 60.56(1), enacted by 1983 Wisconsin Act 532, authorizes a town board to provide for law enforcement by establishinga town police department, by creating a joint police department with another town, village or city, or by ‘[c]ontracting with any

person.’1 ‘Person’ is not defined in chapter 60. However, section 990.01 construes words which are not otherwise defined in thestatutes. Section 990.01(26) defines person to include ‘all partnerships, associations and bodies politic or corporate.’ Section59.01(1) specifically provides that ‘[e]ach county in this state is a body corporate . . ..’ Accordingly, it appearas that section60.56(1) specifically authorizes a town to contract with a county for law enforcement services.

Section 61.65(1) requires certain villages to provide police protection. Under this section, all villages with a population of morethan 5,000 are required to provide police protection either by creating a police department, by creating a joint police departmentor by contracting with another municipality including the county. Other statutes provide specific authority for a village marshal,village constable and village peace or police officers. Secs. 61.28, 61.29 and 61.31, Stats.

The village you refer to has a population of only 2,000 and, therefore, it is not required to provide police protection under section61.65(1). However, as pointed out in 58 Op. Att'y Gen. at 76, ‘[i]t can be said, therefore, in general, that a village cannot drop‘police protection.” Moreover, section 61.34(1) provides that the village board has the ‘power to act for the government andgood order of the village . . . and for the health, safety, welfare and convenience of the public,’ which power ‘shall be in additionto all other grants . . . and shall be limited only by express language,’ and be liberally construed. Sec. 61.34(5), States. Based onthe foregoing, and subject to limitations discussed in our previous opinions on the subject, it may reasonably be concluded thatsuch smaller villages may also provide police protection for their inhabitants through cooperative agreements with their county.

*3 In 58 Op. Att'y Gen. 72 and 65 Op. Att'y Gen. 47, this office examined proposed law enforcement contracts similar tothe ones proposed in your letter. Specifically, this office determined that ‘the county has an interest and duty to provide lawenforcement in all of the villages and towns, and that the sheriff and his deputies can enforce village of town ordinances ifnecessary to maintain peace and order.’ 58 Op. Att'y Gen. at 74. It is apparent, then, that the sheriff's general county-wide lawenforcement responsibilities give him the authority to enforce state statutes and county and municipal ordinances within theboundaries of villages and towns. The county may contract for the sheriff to act to the limits of this law enforcement authorityto provide supplemental law enforcement to both the village and the town.

However, as indicated, the law enforcement contracts would be subject to certain limitations. One of these limitations is that thesheriff and deputy sheriffs may not serve as town or village officers as part of the contract. 65 Op. Att'y Gen. at 48 and 60 Op.Att'y Gen. at 86-88. In discussing the common law role of the sheriff in Andreski v. Industrial Comm., 261 Wis. 234, 240-41,

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Mr. David H. Raihle, 1986 WL 288962 (1986)

© 2021 Thomson Reuters. No claim to original U.S. Government Works. 3

52 N.W.2d 135 (1952), the Wisconsin Supreme Court stated: ‘No other county official supervises . . . [the sheriff's] work orcan require a report or an accounting from him concerning his performance of his duty. He chooses his own ways and meansof performing it.’ Another limitation is that the village and town may not use the contracts to abrogate their duties to providefor the safety and welfare of the public. 58 Op. Att'y Gen. at 76. Further, funding arrangements and reimbursement should becarefully considered and set forth in the agreement. See sec. 66.315, Stats.

Finally, as you appear to be aware, any contract between the county and a town or village should also be approved by the sheriff.Under Professional Police Ass'n v. Dane County, 106 Wis. 2d 303, 316 N.W.2d 656 (1982), a county may not limit a sheriff'sexercise of discretion concerning the performance of his or her traditional duties. Since the proposed contracts would affect theexercise of the sheriff's traditional law enforcement duties, the sheriff's approval is required. Sincerely yours,

Bronson C. La FolletteAttorney General

Footnotes1 The legislative council special committee note describing this enactment indicates that previous detailed law is ‘replaced with broad

authority of the town board to provide for law enforcement.’1986 WL 288962 (Wis.A.G.)

End of Document © 2021 Thomson Reuters. No claim to original U.S. Government Works.

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