Sex Trafficking Reduction Program Proposal

Vallejo Police Department Sex Trafficking Reduction Program Proposal Submitted by: Captain Jerome Bautista 1. Executive Summary Throughout the years, sex trafficking along with prostitution related activity has significantly increased in the downtown areas of Vallejo. The Vallejo Police Department’s POP (Problem Oriented Policing) Team will conduct operations to reduce this type of activity. These operations would span over the course of several months starting in October 2025 through March 2026. The POP Team will carry out this sex trafficking reduction campaign in a series of phases. Phase 1 Surveillance & Intelligence Gathering Operations: this phase will be used to identify potential sex buyers, aka. “Johns”, with the focus of enforcement on the “Johns.” These operations will assist in identifying known prostitutes and “Johns” who are frequenting the affected area and result in demand reduction police contacts pursuant to the new Penal Code 653.22. Technology will also be utilized to support intelligence gathering, enforcement engagements, and criminal prosecutions. Phase 2 Undercover Sting Operations: this phase will be focused on identifying prostitutes soliciting “Johns” for sex acts both on the streets and via internet solicitation sites. This will consist of using an undercover (UC) officer posing as a “John” to facilitate a transaction with a prostitute to obtain evidence for a violation of Penal Code 647(b). Phase 3 Reverse Sting Operations: this phase will target “Johns” utilizing undercover (UC) surveillance and UC officers posing as prostitutes These operations will occur 1-4 times per month depending on caseload, availability of resources, and other crime trends occurring throughout the City. There may be opportunities to conduct more operations during Phase 1, which do not require as much operational planning and resources as Phases 2 and 3. Upon completion of Phase 3, there should be a noticeable reduction in the amount of prostitution activity throughout the affected areas of Vallejo, allowing VPD to focus on and funnel support services for the remaining prostitutes and victims of human trafficking to find exit strategies out of the sex worker lifestyle. In addition to conducting covert operations, The POP team will also monitor social media and escort sites for potential human trafficking and pimping/pandering violations. Non-profit provider and Outreach Services In all of these cases, services and support will be offered. VPD will work with IHART (Integrated Health and Resource Team) staff who are actively collaborating with Community Based Organizations to assist victims of human trafficking with the following: • Relocation services • Temporary housing in a safe house or shelter • Family reunification • Travel Expenses • Hotel fees for temporary housing • Therapy • Assist with restraining orders • Health exams • Internal and external trainings and networking • Literature and flyers for awareness and resources, hotlines information, tips for victims of sex crimes (multi language) • Billboards, signage in affected areas, digital media campaign (YouTube, Tik Tok, etc.), pop-up banners, other associated literature (busses, convenient stores, shopping centers, etc.) • Expand Report John Program, administrative expenses (office and IT expenses) • IT support • Other non-profit administrative and operational expenses Additionally, VPD utilizes the Report John Program (RJP), which is facilitated though the South Bay Coalition to End Human Trafficking. VPD has an ongoing partnership with The South Bay Coalition to End Human Trafficking and will continue to leverage their support and resources. Their Coalition offers training, strategic development, outreach and advocacy with a focus on human trafficking. At the conclusion of this pilot initiative, VPD will re-evaluate the amount of prostitution activity still present to determine the efficacy of the program. This program will serve as a deterrence for prostitution activity and human trafficking and can be reinitiated, as necessary, throughout the year. 2. Background & Need Police in California have faced challenges related to law enforcement action around street sex work. There were previously two misdemeanor state laws that governed street prostitution activity: Penal Code 647(b) – which is the actual act of engaging in or soliciting the act of prostitution (which means you have to prove there has been an agreement to exchange money for a sex act). The other law was Penal Code 653.22 which made it illegal to loiter with the intent to commit the act of prostitution or solicitation thereof (this means you didn’t need to prove there was an agreement to exchange money for a sex act, but rather that the prostitute or buyer was merely loitering for that purpose). It is much harder to prove the act of 647(b) because the traditional method to establish there is an agreement of money for a sex act is accomplished through undercover sting operation. This can be done either by utilizing an undercover officer posing as a “John” soliciting a prostitute, or using an undercover police officer to act as a prostitute. VPD has successfully conducted these operations many times over the years using our street crimes team that has recently been reconstituted in the form of our POP Team as of September 2025. Penal Code 653.22 was a better tool for law enforcement as it made it a misdemeanor to merely loiter with the intent to engage or solicit prostitution. This law allowed officers to detain suspected sex workers or “Johns” when they observed evidence of the crime (ie. standing in the street flagging down cars, a potential “John” circling the block in a vehicle and beckoning suspect sex workers, being present in a high prostitution area dressed in revealing clothing and/or leaning into a vehicle talking with a suspected “John”). In January of 2023, the Governor of California repealed Penal Code 653.22 through Senate Bill 357. With the repealing of that law, police lost the tool of enforcing loitering with the intent to commit or solicit prostitution. Officers were no longer able to detain a person if they suspect they are loitering with the intent to commit or solicit prostitution. In August 2025, California Assembly Bill 379 (AB379) was signed into law, bringing back Penal Code 653.22. The new law now made it a misdemeanor for “Johns”/buyers to loiter with the intent to purchase sex. This bill also increases penalties for adults who solicit sex from minors. 3. Program Objectives (Goals) 1. Reduce prostitution activity and sex trafficking throughout the City of Vallejo 2. Provide sex workers with resources and alternative choices/ exit strategies to their current lifestyle 3. Reduce the amount of visible prostitution activity in the affected areas of Vallejo 4. Empower the community to take an active role utilizing Report John program 5. Leverage relationships with federal partners, to include FBI, via VPD public safety partnership (PSP) to seek specialized assistance related to human trafficking 6. As an alternative to police enforcement, utilize IHART and other CBO’s to engage in conversation with sex workers and offer resources 7. Document and report all enforcement activities monthly to command staff, including hours served, duties performed, and measurable outcomes. 4. Staffing Structure Program Coordinator: Investigations Division Lieutenant (Lt. Caitham) Program Supervisor: POP Team Sergeant (Sgt. Samaniego) Enforcement: POP Team Officers (Cpl. Knowles, Ofc. McKenna, and Ofc. E. Diaz) Additional Officers/ Corporals on OT: TBD Human Trafficking Liaison: Sgt. Hollis and Katie Burns (IHART) Date Analytics and Tracking: Crime Analyst Allen Pigg Program Support: Police Clerk Christy Her 5. Roles & Assignments Program Coordinator: Investigations Lieutenant (Lt. Caitham) • Performs administrative duties and organizational tasks to support the Program Supervisor and Team Program Supervisor: POP Team Sergeant (Sgt. Samaniego) • Managing the operational details of duties assigned Enforcement: POP Team Officers (Cpl. Knowles, Ofc. McKenna, and Ofc. E. Diaz) • Carry out Additional Officers on OT • These type of operations are resource heavy, as well as expose UC officers to enhanced dangers. They require an ample amount of officers to provide adequate safety and prosecution capabilities Human Trafficking Liaison: Sgt. Hollis and Katie Burns (IHART) • Coordinate resources and services to victims of human trafficking • Report John Program Crime Analyst: Allen Pigg • Analyze data and crime stats to determine efficacy of program Police Clerk: TBD • Logistical support, documentation, scheduling meetings, tracking progress 6. Training & Risk Mitigation Preferred Training: ICI Human Trafficking Investigations – March 2026 – Folsom CA https://theacademy.ca.gov/event/ici￾human-trafficking-investigations-26/ Cost: $2000 Course, Lodging $1500= $3500 Total Safety in Motion: Combatting Human Trafficking, Exploitation, and Violence – October 2025/ Annually – San Jose CA https://events.humanitix.com/safety-in-motion-2026 Cost: $43.29 Course, 4 Attendees= $173.16 Total Orange County Course for first responders https://www.ochumantrafficking.com/law-enforcement-training Cost: Free Course Lexipol Human Trafficking – Operating a Task Force – Online Self-Paced course - https://www.policeoneacademy.com/ca-post-accreditation/ Cost: Free Online Training Additional training and networking for civilian and non-profit staff In House Training: • Human Trafficking Investigations • Surveillance Tactics • Plain Clothes Operations • Social Media Investigations Operation Plans and Briefings will occur prior to every operation 7. Uniforms & Equipment Each POP Team Officer will be issued the following: Uniform • Outer vest carriers and attachments specific to undercover work: $400 Equipment • Duty bag: $100 • Binoculars: $600 • Laptops with air cards: $1500 • Trackers: $1200 • Medical kits: $200 8. Vehicles & Equipment • Rental Vehicle: $50-$100 Daily o Rental vehicles to assist with operational details • Hotel Rental: $100- $150 Daily o To conduct undercover sting operations of internet based prostitution • Personnel equipment needed to perform operations • Drone: Exterior $10,000 Interior $2000 o To monitor prostitution activity, undercover operation surveillance, and officer safety should an officer be taken against their will • Security Tower (currently funded, however additional future funding may be required to support this program) 9. Program Budget Estimate Item Quantity Unit Cost Total Uniform 4 $400 $1,600 Equipment 4 $3,600 $14,400 Training 4 $3,543.29 $14,173.16 Rental Vehicles 4 $100 as needed $1000 Hotel Rental 4 $150 as needed $1,500 Drones 2= 1 Exterior Drone ($9000) and 1 Interior Drone ($3000) $12,000 $12,000 Community Messaging: Community Flyers Billboard 500 Flyers $500 $500 Community Messaging: Billboards Size 14’ x 40’= $6000-$10,000 (4 weeks) Size 10.5’ x 22’= $1100-$1400 (4 weeks) $10,000 (4 weeks) $1400 (4 weeks $10,000 or $1,400 Overtime 4 Officers on OT to augment POP officers OT Rate for Corporal/ Officer: $118.92 per hour $28,540.80 per officer x 4 OT Corporal/ Officers: = $114,163.20 Total includes 4 operations per month for 6 months 10 hours/1day 240 hours total per officer Total — — $160,736 -169,336 Potential funding Sources: To be recommended by City Manager’s office, Public Safety committee or city council. General Fund, public safety grants, donations, and partnerships with local community-based organizations and businesses. 10. Legal & Liability Compliance All POP Team members will maintain ongoing training and comply with VPD policies and procedures as is standard practice. 11. Implementation Timeline Subject to modification based on date of approval by City Council Phase 1 – Surveillance and Intelligence gathering (Oct–Nov 2025) Phase 2 – UC Operations focused on identifying prostitutes soliciting “Johns” for sex, both street and internet solicitation (Dec–Jan 2026) Phase 3 – UC Operations focused on “Johns” (Feb–March 2025) Ongoing monitoring of social media and escort dating sites 12. Performance & Sustainability Key Metrics: • Crime stats (before and after operation periods) • Total hours logged monthly • Number of operations • Number of arrests • Number of services provided • Community meeting feedback Sustainability Plan: • Additional staffing for POP Team • Ongoing training • Annual program review with recommendations for scaling • Periodic program assessment • Integration of costs into VPD’s annual operational budget 13. Community Messaging Strategy Program Marketing: • Use of billboard(s) as mechanism for messaging no tolerance for buyer of street sex work. Provide information for sex workers on resources to leave the lifestyle and outline consequences for “Johns”. Size 14’ x 40’ billboard located at Sonoma Blvd./Georgia St. Size 10.5’ x 22’ billboards located at Sonoma Blvd./Florida St. & Sonoma Blvd./Capitol St. [approximate prices listed in budget proposal] • Distribution of informational flyer to local businesses and residents. Flyer should contain information on the campaign and what they can do to help, to include information on reportjohn.org. [approximate prices listed in budget proposal] • Signage in effected areas advertising Report John program or “No Sex Trafficking Zone” to be produced by Public Works Community Inclusion: • VPD and other stakeholders will hold a series of community meetings to seek feedback and identify gaps in the program as we enter into Phase 2 and/or 3. • Leverage the City’s block party program after Phase 3 to signify the undertakings of the program and allow the neighborhoods to demonstrate their commitment to having a peaceful community free of sex trafficking activity. 14. Conclusion Integrating a Sex Trafficking Reduction Program within VPD Operations will strengthen the Department’s connection to the community, give citizens confidence in VPD’s proactive enforcement against prostitution and human trafficking, and provide exit strategies for sex workers by offering support and services. Substantial costs will be necessary to fund uniforms, equipment and training; however, the program offers a high return on investment in both public trust and operational efficiency. We are requesting a motion from the Public Safety Subcommittee to the Vallejo City Council recommending approval to initiate the program for launch in October 2025 (Date subject to modification based on date of approval by City Council).