The city is governed by a mayor and a 9-member city council. In 2006, the city's form of government changed from a council–manager government to a strong mayor government. The change was brought about by a citywide vote in 2004. The mayor is in effect the chief executive officer of the city, while the council is the legislative body. The City of San Diego is responsible for police, public safety, streets, water and sewer service, planning and zoning, and similar services within its borders. San Diego is a sanctuary city, however, San Diego County is a participant of the Secure Communities program. As of 2011[update], the city had one employee for every 137 residents, with a payroll greater than $733 million.