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HomeMy WebLinkAboutMINUTES - 06061989 - IO.1 TO: BOARD OF SUPERVISORS jv/vC FROM: INTERNAL OPERATIONS/FINANCE COMMITTEES DATE: May 25, 1989 SUBJECT: RECOMMENDATIONS PURSUANT TO MARCH 27 AND MAY 22, 1989 WORKSHOPS REGARDING "REPORT ON THE ANALYSIS .OF THE FEASIBILITY OF UTILIZING CORRECTIONAL OFFICERS IN THE DETENTION SYSTEM" Specific Request(s) or Recommendations(s) A Background & Justification RECOMMENDATIONS: 1. Accept County Administrator's reports of May 16, 1989 and March 27, 1989 to the Internal Operations and Finance Committees regarding the "Report on the Analysis of the Feasibility of Utilizing Correctional Offices in the Detention System", as modified by Recommendation 2 below. 2. Establish further goal within the Sheriff's Department of achieving annual savings of $500,000 or above by: a) increased civilianization of those sworn positions that can be civilianized, b) cost avoidance items with regard to staffing the West County Detention Facility (WCDF), c) a change in departmental policy with regard to patrol training of detention deputies, d) a broader recruitment and selection program of both sworn and non-sworn positions within the Sheriff's Department through the County Career Development Program. 3. Direct the County Administrator in conjunction with the Sheriff's Department to develop the savings program recommended above and report back to the Board by June 30, 1989. FINANCIAL IMPACT: The development of a savings plan by the Sheriff's Department consistent with Recommendation 2 above will result in significant savings over current anticipated expenditures and the avoidance of costs that otherwise would be associated with the WCDF. It is anticipated that these annual savings will significantly exceed $500,000. REASONS FOR RECOM!ffiNIDATION/BACKGROUND: The joint Internal Operations and Finance Committees were joined by Board Chairman Tom Torlakson, who chaired the joint meeting. Chairman Torlakson invited Supervisor Zoe Lofgren from Santa Clara County to talk about that County's situation. She briefly summarized that County's decision not only to utilize correctional officers but also a separate department of corrections to handle the county adult facilities. She stressed that each county is different and must decide what is best for itself in this regard. CONTINUED ON ATTACHMENT: X YES Signature: X Recommendation of County Administrator Recommendation of Board Committee X Approve Other Signature(s)- Action of Board on: June 6, 1989 Approved as Recommended X Other Vote of Supervisors: I HEREBY CERTIFY THAT THIS IS A TRUE AND CORRECT COPY OF AN ACTION TAKEN X Unanimous (Absent ) AND ENTERED ON THE MINUTES OF THE Ayes: Noes: BOARD OF SUP VISORS ON DATE SHOWN.Absent: Abstain: Attested: fe /f189 cc: CAO-Justice System Program Mil Batchelor, Clerk of Sheriff-Coroner the Board of Supervisors Deputy Sheriffs' Association, Local 1 and County Administrator Taxpayers' Association County Administrator By: DEPUTY Page 2 May 25, 1989 The County Administrator, Phil Batchelor, gave an overview of the purpose of the meeting and mentioned that a number of people present today wanted to speak further on the issue of correctional officers. He asked George Roemer of the Administrator's Office to summarize the seven issues and questions arising from the March 27 workshop. Mr. Roemer summarized the issues and indicated that Sheriff Rainey's response to the issues was contained in a letter dated May 8, 1989, which is part of the packet for today's hearing. The Board then asked the Sheriff to summarize his responses. The Sheriff reiterated his prior testimony that it is essential to maintain deputy sheriffs in direct supervision situations both for public safety and flexibility as well as cost reasons. He further testified that he was willing to work with the County Administrator and the Board to further realize savings through civilianization and other measures. Henry Clarke and Paul Katz of Local #1 reaffirmed their prior testimony of support for correctional officers and indicated their belief that significant savings would result from such a decision. Bruce Peaslee of the Social Service Department indicated that that department had had to reorganize to save on costs and believed that if correctional officers could save money for the County that that should be done. Deputy Bill Landis, President of the Deputy Sheriff's Association supported the retention of deputy sheriffs and indicated that he could not foresee that any savings could result from changing to correctional officers. He anticipated further costs from turnover. Chairman Torlakson then closed the hearing and the joint Committee discussed the various actions that could be taken with respect to this issue. The recommendations detailed above represent the agreement of all five of the Supervisors present. There was a consensus that additional significant savings could be realized within the Sheriff's Department by civilianizing additional sworn positions and that prior studies had identified that this could be done. In addition, delaying field patrol training offered significant savings particularly during the first three years, as indicated in the Sheriff's May 8, 1989 reply to the March 27 workshop questions. Further savings could be realized by reorganizing the staff structure of the detention facilities in conjunction with the staffing needs of the new jail. The Sheriff agreed to work with the CAO and Board to develop a plan detailing these savings for presentation to the Board by June 30, 1989. TO: Internal Operations Committee Finance Committee Supervisor Tom Powers, District 1 Nancy Fanden, District 2 Robert Schroder, District 3 Sunne Wright McPeak, District 4 FROM: Phil Batchelor County Administrator DATE: May 16, 1989 SUBJECT: Response to Questions Raised at the March 27, 1989 Joint Meeting of Internal Operations and Finance Committees regarding the "Report on the Analysis of the Feasibility of Utilizing Correctional Officers in the Detention System." - Specific Request(s) or Recommendations(s) A Background & Justification RECOMMENDATION: Accept report from County Administrator presenting information requested at the March 27, 1989 joint meeting of Internal Operations and Finance Committees regarding , the "Report on the Analysis of the Feasibility of Utilizing Correctional Officers in the Detention System." REASONS FOR RECCHMENDATION/BACKGROUND: The Internal Operations and Finance Committees held a meeting on March 27, 1989 to hear comments from interested parties on a report presented to the Board of Supervisors (February 14, 1989) on the analysis of the feasibility of utilizing correctional officers in Contra Costa's detention system. All Board members received a draft Board Order (March 27, 1989) and a summary of testimony and copies of the full statements from speakers at the meeting (March 30, 1989). The workshop was continued to May 22, 1989 to allow parties who were not able to speak due to time restrictions to make their presentations. A number of issues and questions were raised by committee members during the workshop. The County Administrator's Office asked the Sheriff-Coroner to address the following issues that were raised at the workshop: 1. Proposal that reduces Sheriff's Department salary/benefit expenditures through civilization of sworn positions to achieve $374,000 savings annually by FY 100 CONTINUED ON ATTACHMENT: X YES Signature: Recommendation of County Administrator Recommendation of Board Committee Approve Other SiRnature(s): Action of Board on: Approved as Recommended Other Vote of Supervisors: I HEREHY CERTIFY THAT THIS IS A TRUE AND CORRECT COPY OF AN ACTION TAKEN Unanimou (Absent ) AND ENTERED ON THE MINUTES OF THE Ayes: Noes: BOARD OF SUPERVISORS ON DATE SHOWN. Absent:- Abstain: Attested: cc: Sheriff-Coroner Phil Batchelor, Clerk of CAO-Justice System Programs the Board of Supervisors DSA and Local 1 and County Administrator Taxpayers Association By: , DEPUTY Page 2 May 16, 1989 2. Percentage of new hires that go directly to detention; average length of time new hires remain in detention; number or percentage of officers who remain in detention for substantial periods of their careers because they choose to do so. 3. Proposal to delay patrol field training of new hires until after initial 30-36 months of duty in detention, including amount of savings to be achieved by this proposal. 4. How often and for what reasons were sworn officers assigned to detention called to response to emergency situations, mutual aid requests, etc. during the most recent two-year period. Indicate the number of officers from detention only sent on these occasions. 5. Number of new hires that fail detention field training and the number of new hires that fail patrol field training. Specify the time period for which you are presenting data. 6. Affirmative action statistics for deputies hired in most recent one-year period. 7. Proposal to provide training to persons who have potential to become deputies, but need certain skills upgraded. The Sheriff-Coroner provided a response to these questions (May 8, 1989). In addition, CAO staff contacted San Diego County regarding their new detention system staffing classification of "Corrections Deputy." SAN DIEGO COUNTY DETENTION STAFFING The San Diego Sheriff's Department has recently instituted a new personnel classification entitled Corrections Deputy. Corrections deputies work in all of the seven Type 2 jail facilities operated by the Sheriff. These deputies, generally speaking, work under the direction and supervision of a deputy sheriff. Corrections deputies have limited inmate contact and do not transport inmates. The corrections deputies receive only the eight-week STC jail operations training. They do not receive firearms training. Corrections deputies are limited peace officers and have peace officer powers only during working hours in the jails. The statutory authority for this classification is P.C. 831.5 The Sheriff's total detention staff (as of the opening of the Vista jail expansion project) includes 427 deputy sheriffs and 115 corrections deputies. Clerical tasks including booking and release functions are handled by civilians. Corrections deputies receive a starting salary (after the completion of the Academy) of $2,000/month. Deputy sheriffs start at $2,103/month; five percent higher than a corrections deputy. The top step for a corrections deputy (step 4 after three years) is $2,315/month. The top step for a deputy sheriff (step 8 after 5-1/2 years) is $3,241/month; 29 percent higher . than a corrections deputy top step. There is no career ladder for corrections deputies. The attrition rate for corrections deputies after the first full year stands at ten percent (including those who have left to become deputy sheriffs). The attrition rate for deputy sheriffs is six percent. The San Diego County Probation Department operates five sentenced facilities in San Diego for minimum security adult offenders with no medical/mental health holds. The Probation Department currently has 75 "assistant deputy probation officers." These officers receive the eight-week STC jail operations course. ADPO's entry level salary (through December 1989) is $18,948 - 34 percent below the DPO entry level salary of $28,912. The benefit package for both classifications is about 23% of the salary, and neither classification receives safety retirement. The top step ADPO is a lead supervisor at $30,160 - 14% lower than a top step deputy probation officer. The ADPO's staff all the adult minimum security sentenced faciltiies in San Diego. ADPO's are supervised on each shift by DPO's or a higher level probation officer. Sheriff-Coroner Richard K. Rainey Contra Costa County SHERIFF-CORONER Waren E.Rupt P.O. Boz 391 Assistant Sheriff Martinez.California 94553-0039 Gerald T.Mitosinks (415)646- Assistant Sheriff 2402 q Rodger L.Davis To: Phil Batchelor (li Date. May 8, 1989 Assistant Sheriff i From: Richard K. Rainey, Sheriff-Coroder Subject: Board Request for Information re- civilianization This will respond to your memo of April 7th in which you request information on various issues regarding the civilianization efforts in my department. Reduction in Expenditures through Civilianization Your first request was for a proposal reducing my expenditures through the civilianization of sworn positions to achieve a 374,000 annual savings by FY 1990-91. In addition to the 27 positions already civilianized I am currently converting two sworn positions to non sworn status; the project deputy position at Marsh Creek and the emergency services coordinator in the Patrol Division. In my 1989- 90 budget request I have replaced a request for sworn personnel with a total of 20 Aides and/or Specialists. As these additional positions are approved, a savings of $250,000 will result. With regard to the West County Facility, while exact classifications have not yet been determined, I anticipated that at least five to ten sworn positions in the staffing pattern will be replaced with non sworn staff. This could represent a savings of $70,000. Finally, I would like to remind you of my previous record in complying with budget reductions. Last year my budget was reduced $500,000 for civilianization in my department and the merger of the Marshal into my department. Additionally, over $560,000 was reduced as part of a 1J% net budget reduction. I have met these reductions with increased frugalities and additional revenues. My budget remains balanced. Should you propose additional cuts in 1990-91, I'll make every effort to comply but I will need the flexibility to consider all areas of my budget. Assignment of New Hires Essentially all new hires report initially to the Detention Division; however, a new negotiated policy allows new hires to be considered for Court Services assignment in lieu of their Detention assignment. This may result in approximately 5-10% of new hires being initially assigned to Court Services. New hires assigned to Detention or Court Services are assigned for a period of 30-36 months. Approximately 5% of the officers (three officers per year) elect to stay in Detention beyond the 30-36 months. There are a small number of officers (5-12 total) who have spent virtually their entire career in the Detention Division. These officers were hired prior to 1982 and were not required to complete Patrol training prior to their probation period. They were later unsuccessful in Patrol training and chose to remain in Detention. The experience of these individuals has generally had a negative effect in the department. There are also a handful of individuals (approximately 10) who, after serving an assignment in Patrol, rotated back to Detention Division and appear satisfied to complete their career in Detention. AN EQUAL OPPORTUNITY EMPLOYER Phil Batchelor Page 2 May 8, 1989 Proposal to Delav Patrol Training A proposal to delay Patrol Field Training of new hires until their initial Detention assignment is complete would present a large short-term savings to the Department and a small permanent savings. Currently, approximately 50 officers are annually removed from Detention during their probationary period to complete the 11 week Patrol Training Program. During their assignment in Patrol additional overtime is required to replace the officers. Estimating that two-thirds to three-fourths of their training time would require overtime replacement results in a cost figure of $440,000 per year. If no new hires were sent to Patrol during their probationary period that amount would be saved each year for the next three years. However, at that point in time the savings would no longer occur as the 11-week training program would still be required for the persons transferring to Patrol. There would, however, be a permanent savings in that, currently, upon permanent assignment to Patrol, all new officers are required to undergo three week refresher training. The cost of this refresher training would be eliminated if Patrol training did not occur until the time of permanent transfer. The cost of the training represents $120,000 minus about $30,000 reimbursement from the State. Additionally, the one to two officers per year who are not successful in Patrol training would be returned to Detention for permanent assignment, as opposed to being rejected on probation. This might reduce turnover by 1-2 positions per year. Use of Detention Deputies for Emergency Situations During the past two years, Detention Deputies have been assigned to assist in two mutual aid situations, both at the Naval Weapons Station. On June 12-13, 1987, Detention Division provied 32 officers for each day of the demonstration (total of 1204 hours). On May 1, 1988, Detention Division provided 22 Deputies for the demonstration (total of 170 hours) . Detention Division Deputies also provide overtime relief in other Division and assist in special details such as Clean Street, SWAT, Patrol and Court Security. Probationary Failures It is extremely rare for a new officer to fail Detention field training; since 1985 less than 1% of new hires are rejected in the Detention Division. The failure rate in the Patrol training program has steadily decreased from a 30% rate prior to 1982 to a current rate of approximately 5%. Modifications in the selection process have allowed us to continually improve the quality of personnel hired. Affirmative Action Data The addition of band certification to our selection procedure has greatly improved our affirmative action efforts by allowing us to consider minorities and females with mid-range scores on the employment list. Since band certification became effective in mid-1988, 11 of 19 Deputy Sheriff hires have been either minority or female. The following are the affirmative action data for Deputy Sheriff hires from January 1, 1988 through April 1, 1989: Total Hired Male Female White Black Hispanic Other 42 35 7 30 8 3 1 Phil Batchelor Page 3 May 8, 1989 Proposal to Training Law Enforcement Candidates Currently my small staff is overwhelmed by the efforts required to track, test, and hire Deputy Sheriffs from among the 300 to 500 candidates per month who enter the system. A proposal to provide training to candidates who have the potential to become Deputies but need certain skills upgraded certainly has merit. However, I cannot be the lead agency in any such proposal as I simply have insufficient staff and resources to evaluate the several hundred candidates per month who fail a particular portion of the testing process. RKR:mg rF: 1 e " To: Internal Operations Committee Date: March 27, 1989 Finance Committee Tom Powers, District 1 Nancy Fanden, District 2 Robert Schroder, District 3 Sunne Wright McPeak, District 4 FROM: Phil Batchelor Subject: "Report on the Analysis of County Administrator the Feasibility of Utilizing Correctional Officers in the Detention System." Specific Request(s) or Recommendations(s) A Background A Justification RECOt4ffiIDATIONS 1. Accept report from County Administrator presenting information requested in the Board Order (2-14-89) on "Report on the Analysis of the Feasibility of Utilizing Correctional Officers in the Detention System." 2. Establish goal of further civilianization in Sheriff's Department with savings in the range of $374,000Iper year by FY 1990-91, and request Sheriff-Coroner to develop implementation plan for FY 1989-90 and 1990-91 by May 15, 1989. REASONS FOR RECOMMENDATICKS/BACYGHOUND: In 1985, at the request of the Board of Supervisors, the County Administrator's Office prepared a report entitled "Detention Staffing Analysis Study." That report wast considered by the Internal Operations Committee and by the full Board and resulted in a December 100 1985 Board Order that stated: I "Board does not support total replacement of deputy sheriffs in the County's detention facilities with correctional officers. . .and directs the County Administrator to do further analysis of feasibility of using non-sworn personnel in detention that do not have as their primary responsibility that of supervising inmates." CONTINUED ON ATTACHMENT R YES Signatu Recommendation of County Administrator Recommendation of Board Committee Approve Other Sixnature(s): -Action of Board on: Approved as Recommended Other Vote of Supervisors: I HEREBY CERTIFY THAT THIS IS A TRUE AND CORRECT COPY OF AN ACTION TAKEN Unanimous (Absent ) AND ENTERED ON THS KENUTESS OF THE Ayes: Noes: BOARD OF SUPERVISORS ON DATE SHOWN. Absent: Abstain: Attested: cc: Sberiff-Coroner Phil Batchelor, Clerk of CAO-Justice System Program the Board of Supervisors DSA and Local 1 and County Administrator Tazpayers Association By: DEPUTY Page Two As part of the requested further analysis, a report was prepared by Dr. Mark Morris in July 1987 entitled, "A Report on Detention Staffing the Contra Costa Jails." The consultant recommended against wholesale change in the staffing of the jails and proposed development of a technician classification in the Sheriff's Department. The Board of Supervisors continued with the policy of utilizing deputy sheriffs in direct supervision detention roles and approved in concept two new civilian classes of Sheriff's Aide and Sheriff's Specialist, and directed the County Administrator to continue to explore additional non-sworn positions as part of planning for the West County Justice Center (12-8-87). In October 1988, Hughes, Heiss and Associates were asked to update - the previous staffing studies and report on new developments in the area of detention staffing. Hughes, Heiss and Associates presented their report February 14, 1989 and concluded that the risks associated with conversion to correctional officers exceed the potential cost savings and that comparable cost savings could be achieved by continuing to civilianize support positions in the Sheriff's Department. The Board scheduled a joint meeting of the Internal Operations and Finance Committees for March 27, 1989 at 10:30 a.m. to receive testimony on the Hughes, Heiss report. The Board also requested additional information from the County Administrator to be available at that meeting. POTENTIAL SALARY RANG$ AND BENEFITS FOR COFM=ONAL OFFICERS IN CONTRA COSTA COUNTY The Hughes, Heiss report stated that correctional officers, on the average, were paid 85% of what deputy sheriffs were paid in the counties the consultants' studied. The Personnel Department was asked what salary range and benefits might be proposed for correctional officers in Contra Costa County. To determine the salary, personnel staff indicated that they would have to consider market data, internal salary relationship of other classes with similar or comparable duties and responsibilities, and the salary recommendation of the operating department submitting the request. They went on to say that if the 85% were applied in our agency, it would result in a salary range of $2143 to $2604 per month. They also stated that there is precedent for placing the correctional officer class in safety retirement because 11 of the 13 counties studied placed these officers in safety retirement. Personnel also reported that a recently negotiated contract with State correctional officers provides for matching the top of their pay scale to that of Highway Patrol Officers on January 1, 1991. TRANSITION TO CORRECTIONAL OFFICERS If the County were to transition to correctional officers in custody situations (including staff to be hired for the West County Justice Center), without layoffs of deputy sheriffs, the Personnel Department stated that it would take approximately seven years to complete the process. This estimate is based on information provided by the Sheriff-Coroner on the establishment of new positions and turnover statistics. It should also be noted, according to Personnel, that during the transition period correctional officers may be performing the same duties at less pay than their deputy sheriff counterparts in the detention facilities. This may increase the pressure for achieving salary parity and/or safety retirement for correctional officers. SANTA CLARA COUNTY AFFIRMATIVE ACTION STATISTICS The Personnel Department obtained affirmative action statistics from the Affirmative Action Officer in the Department of Corrections and the Director of Equal Opportunities in Santa Clara County. In FY 1988, Santa Clara County filled 386 correctional officer positions (15 were filled by promoting existing staff). There has been a hiring freeze on deputy sheriffs during this same time period so there are no hiring statistics for deputy sheriffs in 1988. The deputy sheriff statistics presented here are for the class of deputy sheriff, not for any recent hiring period. (See Table 1). Page Three Table 1: Affirmative Action Statistics Santa Clara County Correctional Officers i D"aty Sheriffs *Hires Percent Tc t a 1 Percent Or' Sex Igoe Total 1988' Total Vhite Male 149 38.6 420 63.4 Shite Female 74 192 81 12.4 Hispanic Male 54 14D 91 13.8 Hispanic Female 26 6.7 16 2.4 Black Male 35 9.1 22 33 Black Female 15 3.9 5 0.8 Asian Male 15 3.9 18 2.7 Asian female 3 0.8 4 0.6 Filipino Male 10 3.0 — -- Filipino female 1 0.3 — -- American Indian Male 4 1 D 4 0.6 American Indian Female 0 — 1 0. Male Total 267 692 555 83.8 Female Total 119 1 30.8 107 1 162 j 1/ • - r Page Four VENTURA COUNTY MODEL Ventura County does not utilize correctional officers. The Sheriff's Department has a class titled Sheriff Services Technician (SST). Sheriff Services Technicians provide visual surveillance of inmates. At the Main Jail, the SST's remain in control pods and also work in areas such as the commissary. At the honor farm, SST's provide visual surveillance of inmates in the kitchen and laundry. SST's have no direct contact with inmates and are not members of safety retirement. The SST's can provide visual surveillance of inmates at the Main Jail because the jail is designed for indirect supervision of inmates. There are physical barriers between the inmates and the SST's at all times. If a situation arises that requires direct contact with an inmates, the SST's call a deputy. Contra Costa County's jails are all designed for direct supervision of inmates. In most other respects, the Ventura SST's and Contra Costa County's Sheriff Specialist and Sheriff's Aide are similar civilian classes. SHERIFF'S DEPAR7MERr CIVIIAIF TION UPDATE Since December 1987, when the Sheriff-Coroner agreed to civilianize 27 positions, 24 of those positions have been civilianized. The three remaining positions are in process. Twenty-three deputy sheriff positions have been cancelled. In addition to the original 27 positions, the Sheriff added two Specialist positions to the Work Alternative Program. The Sheriff also requested the civilianization of two additional deputy sheriff positions (Emergency Services Coordinator - approved- and Maintenance Specialist- in process). The Sheriff has made a request to replace five dispatch positions with the Sheriff's Aide position. Five of the 24 positions civilianized have been filled through the West County Career Development Program. One position remains to be converted to the Career Development Program which will allow the Sheriff to reach his goal of filling 25% of the positions through the West County training program. Of the 24 positions originally filled, 582 of the new hires were female and 462 were either Black or Hispanic. In providing the Department's status on civilization efforts, the Sheriff-Coroner indicated his commitment to the general concept of civilianization. He is not, however, in agreement with all of the recommendations contained in the Hughes, Heiss report. In reviewing the Morris and Hughes, Heiss reports, it appears that there are still further opportunities to civilianize. There remain between 30-35 identifed positions not yet civilianized. Some of these positions are part of the identified West County Justice Center staff. Eight are patrol positions, where it may be more appropriate to hire civilians rather than new deputies as needs arise in patrol. The civilians would take routine tasks now handled by patrol deputies, e.g., minor reports. Including the civilianization of at least two of the recommended command positions, the savings from further civilianization beginning in FY 1990-91 could be approximately $374,000 per year. COSTS ASSOCIATED WITH THE OPENING OF THE WEST COUNTY JUSTICE CENTER The current status of project FY 1990-91 staffing and operational costs for the West County Justice Center, including the Sheriff's Department, Health Services and General Services, total $12.6 million. Considering positions already funded, the total required in 1990-91 would be $9.8 million ($6 million in the Sheriff's Department). Page Five A letter was sent to the Contra Costa Employees Association (Local 1), the Contra Costa Tayxpayers Association and the Deputy Sheriff's Association indicating this Office would be preparing a report to the Board and asking them for comments and input regarding the Hughes, Heiss report and its findings and recommendations. Attached is a response from the Taxpayer's Association. The Correctional and Detention Services Advisory Commission also reviewed the report and their response is attached. Neither Local 1 nor ASA responded.