Title
Recommendation to Authorize the City Manager to Execute a Two-Year Service Provider Agreement, with the Option to Extend for an Additional Two Years, with First Shield Security and Patrol, Inc. for Unarmed Security Guard Services at the Main Library for a Total Agreement Compensation Not-to-Exceed $400,000. (Library 21052300)
Body
To: Honorable Mayor and Members of the City Council
From: Jennifer Ott, City Manager
EXECUTIVE SUMMARY
Consistent with the Cooperative Purchasing provision of the City of Alameda’s (City) Purchasing Policy, the Alameda Free Library (Library) selected First Shield Security and Patrol, Inc. (First Shield) to provide unarmed security guard services at the Main Library based on the City of Hayward’s (Hayward) Request for Proposal (RFP) 2305-09052. Staff recommends approval of the Service Provider Agreement with First Shield for a total agreement compensation not-to-exceed $400,000 (Exhibit 1).
BACKGROUND
The Main Library does not currently have any regular security presence. On February 8, 2025, a library user physically assaulted a City employee at the Main Library, located at 1550 Oak St., after suspending the person for violating the Library’s Behavior Policy.
After the assault, the Library conferred with other City departments about the most effective ways to address the safety of staff and the community due to an increase in unwanted and disruptive behavior at the Library. Library staff also researched other libraries regarding security and learned that Alameda County Library, Contra Costa County Library, Berkeley Public Library, Hayward Public Library, Oakland Public Library, Richmond Public Library, San Francisco Public Library, and San Leandro Public Library have unarmed security guards. The latter two libraries employ security guards while the remainder contract those services. In addition to unarmed security guards, some of these libraries utilize social workers to address behavior issues as well as connect people with services. A consensus emerged that unarmed security guards combined with a more robust social service presence would improve the safety for the community and staff at the Main Library.
Additionally, Library management facilitated a discussion with departmental staff about ways to improve safety at the Main Library. One of the top two priorities staff recommended was unarmed security guards during open hours.
DISCUSSION
The frequency and intensity of unwanted behaviors at the Main Library have increased since reopening to the public following the closure during the Covid-19 pandemic. Because the Library is one of the last remaining spaces open to all, there is a diverse mix of people who are in the building at any given time including those who are experiencing mental health issues, addiction, or other challenges. While the diverse mix of people inhabit the Library harmoniously most of the time, there are instances when unwanted behaviors require intervention. Addressing the safety of Library staff and patrons is essential to ensure the Library remains a community anchor. Because there are multiple ways to address safety, the Library has adopted a multi-faceted and holistic approach to the issue.
The Library has offered de-escalation training to staff in the past and will continue to offer similar trainings in the future.
Further, case managers supervised by Housing and Human Services (HHS) began working at the Main Library for 12 hours per week in 2024. The case managers connect vulnerable and unhoused patrons with services. Additionally, the case managers assist library workers with interactions with patrons who are exhibiting unwanted behavior due to mental health challenges. Based on City Council direction during the Fiscal Year 2025-27 budget process, HHS is coordinating expansion of social services at the Main Library. A recommendation for a service provider agreement with Alameda Family Services will be brought to City Council on September 16, 2025 for consideration.
On January 9, 2025, the Library Board approved a revised Behavior Policy. The revised policy delineates both prohibited behaviors and the associated suspension for engaging in those behaviors as compared to the previous policy, which resulted in uneven enforcement and suspension. Additionally, the Library began using incident tracking software earlier this year to more effectively track incidents and patron suspensions.
Unarmed security guards at the Main Library are another component to holistically address the safety of staff and patrons. Similar to case workers, security guards will assist library workers when they deal with unwanted behaviors. Because the security guards will spend a portion of their time walking around the interior and exterior of the Main Library, they will also alert library workers to any issues that need to be addressed. Under the proposed agreement, one unarmed security guard will be present at all times when the Main Library is open to the public.
On September 6, 2022, Hayward issued RFP 2305-09052 for unarmed security guard services at various locations including the library. Hayward staff recommended approval of the agreement with First Shield based on the company’s experience, competitive rates, customer service, and performance during the interview process. The five-year agreement between Hayward and First Shield was executed April 5, 2023.
After speaking to libraries in the East Bay about their experience and satisfaction with security services, the Library selected First Shield to provide unarmed security guard services at the Main Library consistent with the Cooperative Purchasing provision of the City’s Purchasing Policy based on Hayward’s RFP. The City Attorney’s Office required First Shield to submit a proposal to the City (Exhibit 2) with similar terms to its proposal under the City of Hayward RFP.
Staff recommends City Council approve the Service Provider Agreement for unarmed security guard services at the Main Library.
Should the term of this Service Provider Agreement need to be extended, without changing any other provision of the Service Provider Agreement as approved by the City Council, staff further requests that City Council grant the City Manager the discretion to do so by amendment without returning to City Council for further approval.
ALTERNATIVES
• Authorize the City Manager to execute the Service Provider Agreement.
• Direct staff to not pursue the Service Provider Agreement and direct staff to issue a Request for Proposal for unarmed security guard services at the Main Library. This alternative will delay implementation of these services at the Library for four to six months.
FINANCIAL IMPACT
The total cost of the Service Provider Agreement is $400,000. The appropriation for unarmed security guard services at the Main Library is included in the Fiscal Year 2025-26 Budget and no additional funding is requested.
MUNICIPAL CODE/POLICY DOCUMENT CROSS REFERENCE
The unarmed security guard at the Main Library supports the City’s Fiscal Year 2023-26 Strategic Plan Priority to Enhance Community Safety and Services. This action is subject to the Levine Act.
ENVIRONMENTAL REVIEW
This action does not constitute a “project” as defined in the California Environmental Quality Act (CEQA) Guidelines Section 15378 and therefore no further CEQA analysis is required.
CLIMATE IMPACT
There are no identifiable climate impacts or climate action opportunities associated with the subject of this report.
RECOMMENDATION
Authorize the City Manager to execute a two-year service provider agreement, with the option to extend for an additional two years, with First Shield for unarmed security guard services at the Main Library for a total agreement compensation not-to-exceed $400,000.
Respectfully submitted,
Michael Eitner, Library Director
Financial Impact section reviewed,
Ross McCarthy, Finance Director
Exhibits:
1. Agreement
2. Proposal Response