A BRIEF HISTORY OF SACRAMENTO COUNTY PARK RANGER SERVICES

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1 A BRIEF HISTORY OF SACRAMENTO COUNTY PARK RANGER SERVICES (Prepared by Gary Kukkola, past Director, Deputy Director, and former Chief Park Ranger for the County of Sacramento Department of Regional Parks, March 28, 2011) INTRODUCTION During the past four decades, the County of Sacramento regional park system has benefited greatly from the services provided by its park ranger program. Established in the early 1970 s and expanded in response to the demands of a burgeoning American River Parkway, the ranger program continued its evolution to become one of the strongest ranger programs in the state. It was clear to many key figures in the community and to park department administrators that the American River Parkway was a truly unique natural, cultural, and recreational resource of national significance. The idea of a 23 mile urban Parkway spanning over 4,000 acres on the banks of the American River was ahead of its time. It became a model for future parkways throughout the country. Since those early years when the Parkway was simply a vision shared by some very talented and forward-thinking members of the community, millions of dollars were spent in the acquisition, development, reclamation, restoration and operation of the Parkway... an investment worthy of the best protection available. So how was that protection achieved? At the program s inception, park rangers operated as generalists with the goals of the program reflected by a simple and traditional purpose statement:... protect the people from the park, protect the park from the people, and protect the people from the people... THE EARLY YEARS In the beginning, a small group of fulltime rangers supported by a much greater number of extra help staff took on the task. In the mid 70 s, there was a Park Ranger III (management), two Park Ranger II s (supervisors), and approximately six Park Ranger I s (entry level permanent positions) assigned to the Parkway. Supporting their efforts were approximately thirty extra help positions (Park Ranger Assistants). As a team, their work schedules collectively covered 7 day/week operations that extended up to 16 hours per day during the peak of the season. At the time, visitation to the American River Parkway was estimated to be nearly 5 million users annually... a number rivaling Yosemite National Park and Golden Gate National Recreation Area. They had no formal arrest or citation authority and depended on their communication skills to gain voluntary compliance for violations of park rules and county ordinances. Park rangers performed patrol duties and served as eyes and ears for local law enforcement agencies. Serious misdemeanors and felonies were referred to the Sheriff s Department, 1

2 Sacramento Police Department, or the Department of Fish and Game depending on the location and jurisdiction. During the 70 s and 80 s, a Sheriff s Department equestrian unit provided law enforcement services to the American River Parkway... primarily at Ancil Hoffman Park. During the mid to late 70 s, Ancil Hoffman Park was heavily impacted by excessive visitation and problems related to public drunkenness, drug use, and other associated behavior and criminal activity. Although effective at this park, the equestrian unit had limited availability and extended response times to the remainder of the Parkway. For serious events, beat units from areas outside the Parkway had to be called in to handle the problems. In the mid to late 80 s, the equestrian unit was eventually restructured to include deputies on motorcycles which provided greater geographical coverage. Park Rangers continued to work in cooperation with deputies, but focused primarily on infraction and misdemeanor violations of county, city and state codes and regulations. It should also be noted that almost half of the American River Parkway, although owned and operated by the County, lies within Sacramento City limits. This area includes high problem and high visitation areas such as Discovery Park, Tiscornia Park, Paradise Beach, and almost half of the Jedediah Smith Memorial Trail. By agreement (formal or informal) with the Sacramento Police Department, Sheriff s Deputies did not patrol areas within the Sacramento city limits. During a portion of the 70 s and 80 s, a single Police jeep patrol unit was assigned to the area of the Parkway within the city limits. Those services were augmented in response to specific incidents as needed by regular Police patrol units pulled in from adjacent patrol areas. Of the three patrolling agencies, Park rangers were the only enforcement entity that patrolled all Parkway areas irrespective of city/county boundary lines. THE PARK RANGER TRANSITION TO PEACE OFFICER STATUS From approximately 1976 to 1984, county park rangers operated as public officers as defined by Section 5380 of the Public Resources Code. Such officers, as designated by the Director, were granted misdemeanor citation and arrest authority after completing required training. Although the additional authority was a helpful tool to rangers enforcing park regulations and other misdemeanor codes, problems on the Parkway continued to escalate in number and severity. The personal risk to park rangers, who as public officers were unarmed, appeared to be escalating as well. Entry level patrol rangers were represented by the Deputy Sheriff s Association (DSA) bargaining unit in the 80 s. The DSA lobbied for peace officer status for park rangers in Sacramento County based in part on the history and types of enforcement situations they had encountered as public officers. Ultimately, the Department granted peace officer status to qualifying park rangers in Existing staff were required to meet the same criminal background, physical, and psychological requirements as all other peace officers in the state. Additional training was provided and additional equipment was approved for use by peace officer rangers including firearms, chemical agents, batons, and other defensive/protective equipment. Vehicles were equipped for Code 3 operation and later, for transportation of prisoners. As the park ranger program enjoyed success, it began extending services to other Sacramento County regional park sites including Gibson Ranch, Elk Grove Park, and several boating access sites in the Sacramento Delta. Additionally, services were contracted to several local park districts including Sunrise Recreation and Park District, Orangevale Recreation and Park 2

3 District, and Rio Linda Park District. At the same time, contract patrol services were provided to the Sacramento County Regional Sanitation District buffer lands. THE ELIMINATION OF SHERIFF S DEPARTMENT DETAIL IN THE AMERICAN RIVER PARKWAY In 1992, Sacramento County was confronted with a serious budget shortfall that threatened significant countywide services and programs. Among those programs considered for reduction were the parks department park ranger program and the Sheriff s Department American River Parkway Detail. During final budget deliberations by the Board of Supervisors, the decision was made to not fund the Sheriff s Department detail (approximately $600,000). The park ranger program was fortunate to receive continued funding. There were likely many factors considered by the Board of Supervisors in their decision to retain the park rangers as the only regularly scheduled enforcement patrol service in the American River Parkway and other regional park and open space areas. Although only the individual members of the Board of Supervisors know the reason for their choice, it is important to note that the following factors may have been considered. Park rangers... had been armed peace officers as provided under section (b) of the California Penal Code since During that time, the program had established itself as being a capable and professional public service designed specifically to address problems associated with the successful and efficient operation and management of regional park and open space areas. were a less expensive alternative for park and open space law enforcement activities. Deputies were paid a higher wage and typically received several layers of incentive pay (per their bargaining unit agreement) not available to park rangers. For example, deputies received incentive pay for a four year degree, where a four year degree was a basic requirement for park rangers. Consequently, rangers were a bargain by comparison. performed a wide variety of services typically not performed by Sheriff s Deputies. Park rangers : o performed a wide variety of duties related to park operations including minor maintenance and the identification and the timely elimination of public hazards. o performed pro-active enforcement by dealing with problems in their infancy before they grew to major problems requiring more staff resources, at greater individual risk. For example, rangers were able to use park regulations and misdemeanor laws to deal effectively with alcohol and drugs before they led to a plethora of other more impactful public safety issues including public intoxication disorderly conduct, DUI, and other drug/alcohol life threatening conditions. o operated and managed the parks department parking fee program generating approximately $1 million gross revenue annually. 3

4 o as certified first responders and swift water rescue technicians, they were frequently the first to arrive at accident scenes and water related accidents to provide immediate life saving care and/or assist in recoveries. o provided patrol services to all regional parks and open space areas, not just the American River Parkway, and schedules covered 7 days/week, 365 days/year, for up to 18 hours/day. o opened and closed all American River access gates nightly to prevent damage and vandalism to park facilities, and to minimize negative impacts to adjacent residential neighborhoods and property owners. o monitored and enforced the policies and guidelines of the American River Parkway, a unique land use and park/resource management plan prepared in cooperation with the community, and adopted by the State Legislature. o managed the department s communications and radio dispatch center for support of the department s maintenance and ranger field activities. This service allowed the general public and others to reach field rangers and management staff during all operational hours. o served as department representatives to the media during and following events related to Parkway operations and public safety where a parks department perspective was important to the story. o worked with special event sponsors and promoters to ensure consistency with department rules, regulations, and policies. Rangers also monitored and coordinated field activities the day of the event including managing an increased allocation of staffing, traffic and crowd control, problem resolution, and collection of fees. Some events accommodated in excess of 10,000 people at Discovery Park. o developed operations policies and procedures in response to public concerns and interests. Representatives frequently worked with special interest groups and served on task forces to resolve public safety and resource management issues in a manner consistent with the interests of the department and broader community. o provided monthly and annual updates to the Board of Supervisors on the status of ranger activities and the American River Parkway. o adopted a law enforcement profile and demeanor appropriate in a park setting. Park visitors appreciate an enforcement style fitting the circumstances and the area. Heavy handed enforcement is not always the best method of achieving the enforcement objective... particularly in a park setting. If, however, the heavy hand is needed, rangers were prepared to take action as needed. o developed and enforced policies for the protection and preservation of flora and fauna native to the Parkway, and to protect park visitors from naturally occurring threats found in natural preserves (i.e. coyotes, mountain lions, rattlesnakes, poison oak, etc.). The somewhat one-dimensional services provided by the Sheriff s Department did not typically match the diverse needs of the American River Parkway. The services associated with traditional law enforcement did little to support the overall needs and mission of the Parks Department and its diverse recreational and natural resources. Additionally, Sheriff s personnel were... assigned only during peak use hours of the day and year, departing patrol areas in the late afternoon/early evening... hours before the public vacated park facilities and often 4

5 times when the greatest number of serious problems would occur. These services were pulled away for other non-park purposes in the early Fall and would not return until late Spring. assigned to the County portion of the American River Parkway only. Approximately half the Parkway lies within the City of Sacramento, and the City of Sacramento did not contribute much patrol service in that area either. not particularly interested in, nor did they have the expertise to contribute to the overall mission of the parks department. The Sheriff s Department... o lacked specific knowledge of the American River Parkway Plan. o did not engage in, or otherwise contribute to the appropriate management of park facilities and resources. o lacked the support of numerous cooperating associations that contributed greatly to the success of the Parkway. o would not typically engage in the enforcement of park rules and regulations, infractions and minor misdemeanors (i.e. dogs off leash, littering, etc.), nor clean a restroom in an emergency or remove garbage at a special event... all things very important to customer satisfaction. The bottom line was that park rangers provided more diverse services than deputies; had a much greater understanding of park management issues; contributed greatly to the overall purpose and mission of the parks department; had formal education related to park, resource, and visitor management; and did it all at a lower cost to the County than Sheriff s Department services. THE PARK RANGER PROFILE It is important to note that the American River Parkway and other open space/regional park sites in Sacramento County are not typical urban parks. The Parkway, by design, is a 5,000acre wilderness area surrounded by an urban core. The wilderness/urban interface requires a careful blend of skills to ensure protection of sensitive resources, and the public, under the pressures imposed by urban populations. These resources are more akin to actively used units of the California State Park System and other large open space and regional park districts. It is a mistake to characterize the American River Parkway as a typical urban park, and assume that the same management practices and staff resources that one might find in a city park organization, or an urban park district, could reasonably provide the service necessary for success. The typical entry level ranger comes to the position with the following skills and qualifications: A four year degree in Recreation and Park Administration, Natural Resources Management, Biological Sciences, Wildlife Management, Criminal Justice, Physical Anthropology, or related fields; Completion of a Peace Officer Standards and Training (P.O.S.T.) approved basic law enforcement academy (the same as any sheriff s deputy or police officer in the State); Usually at least two years of experience working in a related job or discipline; The ability to inform and educate park visitors and the community about the importance, value, and need to preserve and protect open space areas for the future; The ability to assess park facility needs and recognize adverse environmental impacts related to public use of sensitive areas. 5

6 Strong communication skills and the ability to successfully interact with members of supporting organizations, and to serve as needed on multi-jurisdictional task force assignments. The ability to serve as a field naturalist and interpret the historic, cultural, and natural history of the area of their assignment. The knowledge, skills, and abilities possessed and applied by park rangers should not be viewed as a low priority during times of fiscal crisis. These positions perform an important public safety function and more. Ranger services can ultimately be the vehicle by which Sacramento County can save and protect its irreplaceable natural assets for the enjoyment of future generations, while protecting and educating the very users that will grow to be proponents of parks and open space during the critical years ahead. 6