A newly released investigative report commissioned by the City of Riverside alleges that two former code enforcement officers engaged in years of misconduct targeting street vendors, many of whom were immigrants and members of vulnerable communities.
The report, obtained through the city’s public records system, details allegations against former senior code enforcement officers Mark Ilagan and Mark Hernandez. Investigators found evidence suggesting the pair may have engaged in improper conduct ranging from unauthorized property seizures and unlawful entry onto private property to confrontational encounters with vendors and residents.
According to the investigation, much of the alleged misconduct appeared to be directed toward individuals who were Latino or Asian, did not primarily speak English, or may have lacked legal immigration status. The report noted that such individuals are often less likely to report mistreatment due to fears of retaliation or concerns about interacting with government agencies.
Investigators also criticized city supervisors for failing to adequately address complaints raised by a subordinate who repeatedly questioned the officers’ actions. The employee later alleged she experienced retaliation after bringing concerns forward through official channels.
The report concluded that the conduct of the officers and their supervisors exposed Riverside to significant legal liability while undermining public trust in city government.
None of the individuals named in the investigation remain employed by the City of Riverside. Hernandez could not be reached for comment. Ilagan, who now works for the City of Chino, denied the allegations. Former Community and Economic Development Director Jennifer Lilley told the Los Angeles Times that portions of the report lacked context and contained inaccuracies.
Several current and former employees described Ilagan and Hernandez as working closely together and often responding to calls as a team. Witnesses told investigators the pair frequently adopted tactics that blurred the line between code enforcement and law enforcement.
Unlike police officers, code enforcement personnel do not have arrest powers, cannot carry firearms, and generally have limited authority to seize property. However, investigators found evidence that the two officers routinely pursued street vendors on foot, blocked vehicles from leaving, and confiscated merchandise and equipment beyond what regulations permitted.
The report describes what investigators called a long-running pattern of unauthorized property seizures. Vendors allegedly had merchandise taken without receiving receipts, making it nearly impossible to recover their belongings. Several employees stated that confiscated items were stored in City Hall offices and included products commonly sold by vendors such as flowers, toys, hats, and novelty items.
Investigators also documented multiple incidents involving physical confrontations. During Riverside’s Festival of Lights celebration in 2023, officers reportedly attempted to seize a vendor’s cart while the owners were briefly away making a sale. When the couple returned, a confrontation followed that drew a crowd and eventually required police intervention.
In another incident during Fourth of July enforcement operations in 2024, a dispute involving a taco vendor escalated into a physical struggle. Witnesses alleged one officer used a wrist-lock technique during the confrontation before police arrived at the scene.
The report further alleges that the officers sometimes entered or facilitated entry into properties under questionable circumstances. In one case, officers reportedly requested police assistance to force entry into a residence believed to be occupied despite ongoing probate and eviction proceedings. Another incident involved allegations that officers misrepresented the status of properties to law enforcement in order to have residents removed.
Investigators concluded that the officers repeatedly sought to project the image and authority of sworn police officers. The report notes they favored tactical-style gear, advocated for police-style identification, and pushed for equipment that would make code enforcement officers appear more like law enforcement personnel.
Some city employees expressed concern that such efforts increased risks for both officers and the public. The investigator warned that encouraging code enforcement staff to appear police-like could create confusion and expose the city to significant liability.
The investigation also examined workplace culture within the department. Several findings pointed to a hostile work environment, including allegations of inappropriate behavior, retaliation against employees who raised concerns, and failures by supervisors to properly investigate complaints.
A former code enforcement officer who reported the alleged misconduct told investigators she repeatedly warned management about what she believed were unlawful actions involving vendors and residents. According to the report, her concerns were largely dismissed, and after escalating her complaints, she was later identified as the source and publicly escorted from City Hall shortly before leaving her position.
The investigator concluded that the city’s response to the complaints sent a troubling message to other employees and may have discouraged future reporting of misconduct.
The report was submitted to city officials in August 2025. It remains unclear what actions, if any, were taken afterward. City leaders declined to discuss personnel matters when contacted by the Los Angeles Times.
The Los Angeles Times first reported on the investigative findings after obtaining the report through Riverside’s public records portal.
Credit: Original reporting and source material from the Los Angeles Times.
