Georgia Department of Audits and Accounts Performance Audit Division

Transcription

1 Performance Audit Report No May 2014 Georgia Department of Audits and Accounts Performance Audit Division Greg S. Griffin, State Auditor Leslie McGuire, Director Why we did this review The turnover rate for Department of Juvenile Justice (DJJ) corrections officers was 49% (57% for the entrylevel position) in fiscal year The turnover rate increased drastically between fiscal years 2010 and 2012, before slightly decreasing in fiscal year This performance audit determines the extent and effect of turnover at DJJ s facilities. The audit also identifies the primary causes of turnover compensation, agency management, work conditions, facility leadership, as well as recruiting and hiring practices. About the Department of Juvenile Justice DJJ was established in 1992 to provide supervision, detention and rehabilitation to youth offenders in the state s custody. DJJ operates programs in the community and in secure facilities. It provides services to approximately 47,000 youth each year and maintains an average daily population of 1,700 youth in all 27 secure facilities. While DJJ s mission is primarily to hold youth accountable for their actions, it is also charged with providing education and rehabilitative services so that they will become productive, law-abiding citizens. Department of Juvenile Justice Security Staffing Several factors drive turnover of juvenile corrections officers What we found High turnover among the state s juvenile correctional officers (JCOs) has many undesirable consequences, including additional state spending on hiring and training, less experienced officers, and challenges in meeting officer-to-youth ratios. Department of Juvenile Justice (DJJ) officials have begun to take actions to address the various factors that drive the turnover rate. No one factor explains DJJ s 49% turnover rate among JCOs. Officer pay, frequently extended shifts, leadership issues, and poor hiring practices have all played a role. While the agency s pay structure is essentially the same throughout the agency s 20 Regional Youth Detention Centers and 7 Youth Development Campuses, the significance of the other factors can vary by facility, as vacancy rates and facility leaders change over time. The pay structure for JCOs has hindered the agency s ability to attract and retain quality officers, though changes will occur in fiscal year Officers have started at $24,322, and then receive a 5% increase to $25,538 after 12 months. A JCO1 would not receive another increase until promoted to Sergeant, which could only occur if one of a limited number of positions were vacant and the individual was selected through a competitive process. However, the 2015 appropriations act provided additional funding to adjust the pay structure. Officers will still start at $24,322, but will receive the 5% increase after completing basic training (within six months), then an additional 8% to $27,472 one year later. Extended shifts, coupled with a lack of overtime pay, were reported by many officers as a reason for low morale and officer 270 Washington Street, SW, Suite Atlanta, Georgia Phone: (404)

2 departures. While officers are scheduled to work 12-hour shifts, during a one-month period in 2013, we found that 22% of shifts 1 were extended to more than 13 hours. In seven facilities, the percentage of extended shifts exceeded 30%. Consistent with federal regulations, officers work 28-day work periods and may work up to 171 hours before qualifying for overtime pay or compensatory time. DJJ follows state policy that makes compensatory time (comp time) the preferred method of payment. However, DJJ officers noted the difficulty of using comp time, given staff shortages. In fiscal year 2013, officers earned more than 105,500 comp time hours but used about 36,500. DJJ purchased comp time balances at the end of the fiscal year for $1.3 million. The supervisors and senior leadership in DJJ facilities can have a significant impact on local turnover. In surveys and interviews, officers often expressed dissatisfaction with their managers. Many DJJ facilities have had significant turnover in leadership positions (director, assistant director, captain) in recent years. Six facilities had more than eight changes in those positions during a four-year period, with one having seven changes at the director position and another having eight changes at assistant director. More than 20% of those departing the positions were due to demotion or dismissal. Persistently high turnover within officer positions has reduced DJJ s available talent for promotions. In addition, the agency has provided limited training specifically for those managing officers and has not had a succession planning program. Reducing turnover begins as early as the hiring process. Some DJJ officers involved in the hiring process acknowledged that they sometimes hired those that met the minimum qualifications, with little regard for the individual s likelihood to remain on the job, to meet minimum staffing requirements. As a result, more than 30% of officers have departed within six months of their hiring and 50% have departed by the one-year mark (55% for 2013 hires). We found that, until recently, DJJ did not use a pre-interview screening method to identify candidates that are likely a good fit for the job. In addition, DJJ interview panels may not always be comprised of personnel most qualified for the role. What we recommend We recommend that DJJ track the impact of the new pay structure on its ability to recruit quality applicants, as well as its ability to retain quality officers. DJJ should also assess the cost-effectiveness of paying overtime to officers, especially since many are receiving comp time payouts anyway. We recommended that DJJ continue its planned development of additional training programs for supervisors and facility leadership and incorporate succession planning into its operations. Finally, DJJ should track the success of its newly implemented pre-employment screening methods and provide additional training and guidance to interview panels. See a full list of recommendations in Appendix A. Agency Response: DJJ agreed with our findings and recommendations and noted that it is already taking or planning to take a number of actions in the near future to address the issues identified. DJJ responses to specific issues are included at the end of each finding. 1 The percentage means that at the end a 12-hour shift, more than 1 in 5 officers were required to continue working for at least an additional hour.

3 DJJ Security Staffing i Table of Contents Purpose of the Audit 1 Background 1 Overview of the Department of Juvenile Justice 1 Secure Programs and Facilities 1 Secure Facility Expenditures 3 Security Staffing Structure 4 JCO Turnover Rates 5 Fair Labor Standards Act 6 Findings and Recommendations 7 High JCO turnover negatively impacts the operation of DJJ secure facilities in several ways. 7 DJJ management has taken actions to address officer turnover, but information related to the turnover causes could be improved. 10 The pay structure for JCOs has been an obstacle in DJJ s recruitment and retention efforts. 11 The frequent use of holdovers, coupled with a lack of overtime pay, has negatively impacted JCO turnover. 15 Some DJJ facilities lack strong, stable leadership and supervising officers. 19 DJJ s hiring practices have often resulted in employees incompatible with the officer position. 23 Appendices 27 Appendix A: Table of Recommendations 27 Appendix B: Objectives, Scope, and Methodology 28 Appendix C: Turnover Rates by Facility, FY FY Appendix D: Estimated Costs to Hire and Train Officers, Fiscal Year Appendix E: DOAA JCO Survey Results 34 Appendix F: Local Government Salary Comparison 36

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5 DJJ Security Staffing 1 Purpose of the Audit This report examines the Department of Juvenile Justice s (DJJ) security staffing. Specifically, the audit determined: DJJ s turnover rate for security positions. Whether DJJ has an efficient and effective process for identifying and attracting qualified applicants for employment as juvenile correctional officers. Whether DJJ has an effective orientation and training program for new juvenile correctional officers. Whether DJJ provides career advancement opportunities for security staff. Whether work conditions significantly affect security staff turnover. Whether DJJ facilities are adequately staffed with qualified security personnel. A description of the objectives, scope, and methodology used in this review is included in Appendix B. A draft of the report was provided to DJJ for its review, and pertinent responses were incorporated into the report. Background Overview of the Department of Juvenile Justice The Department of Juvenile Justice (DJJ) was established in 1992 to provide supervision, detention, and rehabilitation of youthful offenders committed to the state s custody. The department admits youth to a program after arrest or after they have been through a Juvenile Court hearing. DJJ provides a secure environment for juveniles alleged to have committed a crime, and supervises the youth throughout the juvenile s sentence. DJJ operates programs in the community and in secure facilities. It provides services to approximately 47,000 youth each year and maintains an average daily population of about 14,700 youth in all programs. Most youth (80%) are enrolled in community programs; 12% are in DJJ secure facilities. The agency may provide counseling and/or therapeutic programs to any youth, and it operates an accredited and independent school district. Secure Programs and Facilities The Division of Secure Facilities is divided into four geographic regions northeast, northwest, southeast and southwest with six to eight facilities in each (see Exhibit 1). Regional and district administrators, along with other officials, ensure that each facility follows departmental policy and procedures and provides quality services in medical, education, behavioral health, nutrition and general programming. Security is maintained through facility design, video surveillance, and security staffing. Facilities contain multiple units that each house approximately youth; each youth has an individual cell. The facilities have separate units for classrooms,

6 DJJ Security Staffing 2 dining and physical activity. Each unit is secured from others, with movement across units restricted by locked doors. Doors can generally be operated from a central monitoring post, or control room, which is equipped with video surveillance screens that allow continuous monitoring. Exhibit 1 Secure Facility Locations and Average Daily Population Catoosa Fannin Whitfield Murray Dade Walker Gilmer Lumpkin Chattooga Gordon Pickens Dawson Floyd Polk Haralson Carroll Heard 27 Shaw/Dalton 50 Richards/Rome Bartow Paulding Marietta Cobb 64 Douglas Banks Cherokee Hall Forsyth Jackson Metro 183 Atlanta 74 Dekalb Towns Rabun White Habersham Stephens Barrow Clarke Gwinnett Rockdale Franklin Madison Hart Elbert Oconee Oglethorpe Lincoln Walton Wilkes Fulton Clayton Newton Greene Taliaferro Morgan 45 McDuffie Henry Warren Fayette Coweta Butts Jasper Putnam Spalding Hancock Glascock Glaze/Clayton DeKalb 64 Union Gwinnett Rockdale 1 N/A Gainesville Columbia Richmond Northwest Region Northeast Region Southwest Region Southeast Region YDC RYDC The number listed for each facility indicates the average daily population Augusta Augusta Troup Lamar Pike Baldwin Meriwether Jefferson Monroe Jones Washington Upson 58 Wilkinson Harris Bibb Talbot Crawford Twiggs 59 Muscogee Taylor Peach Muscogee Houston 62 Cohn/Columbus Bleckley Chattahoochee Macon Marion Pulaski 26 Schley Dooly Stewart Sumter Webster Sumter Quitman Crisp 39 Macon Macon Crisp Wilcox Dodge Telfair Johnson Emanuel Laurens Treutlen Eastman 194 Eastman 28 Sandersville Wheeler 143 Milan Montgomery Toombs Burke Screven Jenkins Candler Effingham Bulloch Evans Claxton 29 Bryan Tattnall Savannah Chatham 99 Clay Early Seminole Randolph Miller Calhoun Decatur Terrell Baker Dougherty 28 Grady Lee Mitchell Albany 29 Worth Thomas Colquitt Turner Tift Brooks Loftiss/ Thomasville Cook Ben Hill Irwin Berrien Lowndes Lanier Echols Coffee Atkinson Clinch Jeff Davis 29 Bacon Ware Appling Pierce Waycross Charlton Brantley Wayne Long Camden Glynn Liberty McIntosh 1 Data was collected prior to the Rockdale RYDC opening, therefore the average daily population was not available. Source: Agency data

7 DJJ Security Staffing 3 The Division of Secure Facilities oversees two types of facilities: Regional Youth Detention Centers (RYDC) and Youth Development Campuses (YDC). Generally, RYDCs are used for short-term stays or sentences and YDCs are used for long-term sentences. The facility types are described in more detail below: Regional Youth Detention Centers (RYDC) RYDCs provide temporary, secure care and supervision to youth who have been charged with crimes or youth who have been adjudicated by a juvenile court judge and are waiting for the disposition of their case from the Juvenile Court. In addition, youth who have been committed to the custody of DJJ may be held in an RYDC while awaiting placement in a special DJJ treatment program or placement in a long-term YDC facility. In FY 2013, the average length of stay in RYDCs was approximately 26 days. DJJ s 20 RYDCs house approximately 1,100 youth daily. One of these facilities is operated by a private company. Each RYDC has a capacity ranging from 30 to 200 youth, while the average capacity is 63. An RYDC may serve both males and females, but they are housed in separate units. DJJ opened one RYDC (Rockdale) and closed one RYDC (Paulding) in calendar year A second RYDC (Gwinnett) is slated to close in Youth Development Campuses (YDC) YDCs provide secure care, supervision, and treatment services to youth who have been committed to the custody of DJJ. YDCs generally house youth much longer than RYDCs. In FY 2013, the average length of stay for youth was 293 days. DJJ currently has seven YDCs, with an average daily population of approximately 700. One of the seven YDCs is operated by a private company. The total YDC capacity is 1,190 beds 1,040 male and 150 female. YDCs range in size from 60 to 330 beds, with an average capacity of 149. YDCs either house male or female youth. There is only one female YDC facility, located in Macon. One YDC (Savannah River Challenge) closed in Secure Facility Expenditures As shown in Exhibit 2, DJJ expended approximately $200 million for the operation of secure facilities in fiscal year Of that, DJJ expended $67 million for security staff. The average daily operations cost per resident was approximately $300 ($106,500 annualized). It should be noted that these are total costs for the operation of these facilities, not just security costs (e.g. education, counseling). Exhibit 2 DJJ Expended $67 Million for Security Staffing in Fiscal Year 2013 Category YDC & RYDC YDC RYDC All Facility Expenditures $199,301,080 $85,720,179 $113,580,901 Regular Operating Expenses 18,254,134 8,461,950 9,792,183 Other Operating Expenses 45,451,737 19,610,671 25,841,066 Personal Services 135,595,209 57,647,558 77,947,651 Security Positions 67,223,935 27,200,967 40,022,968 Average Daily Population 1, ,156 Cost per Youth per Day $292 $330 $269 Source: TeamWorks Financials data

8 DJJ Security Staffing 4 Security Staffing Structure DJJ employs approximately 1,500 Juvenile Corrections Officers (JCOs) across all secure facilities. As of June 30, 2013, approximately 75% (1,152) of JCOs were designated as JCO1. DJJ has 239 sergeants (JCO2), 132 lieutenants, and 16 captains. Officers generally start as a JCO1, with job responsibilities that include staffing posts in intake units, housing units, and facility entrances. When hired, JCOs begin a mandatory orientation and training program that must be completed in six months to complete. During this period, they are known as cadets and wear a distinctive uniform. Before they are fully trained and certified, cadets may only supervise youth with certified JCOs present and they may not physically engage with youth, except to defend themselves or in cases of life threatening events. For these reasons, cadets generally shadow certified officers. Cadets receive initial orientation and training at their facility. Cadets learn about facility policies and procedures, as well as general DJJ information, during orientation. During the Field Training Officer (FTO) program, a facility FTO gives cadets necessary information about the different posts in the facility, and introduces the cadet to the types of information they will be learn during Basic Juvenile Corrections Officer Training (BJCOT) Academy. This facility training totals 56 hours and is expected to occur in the first month of employment. Once orientation and FTO are completed, cadets attend the BJCOT Academy to become Peace Officer Standards Council (POST) certified. This five-week (200 hours) training program 2 is held in Forsyth, Georgia and prepares cadets to supervise youth independently. The Academy follows POST curriculum standards but is operated by DJJ staff. Several tests are administered during BJCOT and cadets must pass a certain number of tests to pass the training program. When cadets complete BJCOT, they return to their facility as a POST-certified juvenile corrections officer. Cadets must begin the BJCOT training within three months of their hire date, or the facility must ask for an extension. When BJCOT is completed, officers remain JCO1s but are no longer subject to the service restrictions placed on cadets. Under DJJ s new staffing organization, JCO1s that comply with job performance standards will be promoted to JCO2 one year after completing BJCOT. Formal job responsibilities do not change at the time of promotion. With two years of experience, JCO1s are eligible for promotion to sergeant. Like all supervisory positions, sergeant positions are limited and filled through a competitive application process. Sergeants may still serve similar roles as a JCO1 but may also serve as floaters, covering several posts during a shift, or serve as a shift supervisor. Lieutenants are frequently shift supervisors and may have additional administrative responsibilities, such as serving as a field training officer. Finally, captains serve as head of facility security and are responsible for all security staff. Staffing levels vary by facility as shown in Appendix C. 2 BJCOT was a four week (160-hour) course prior to 2014.

9 DJJ Security Staffing 5 JCO Turnover Rates Nationally, correctional officer turnover rates are higher than many other professions. As shown in Exhibit 3, DJJ s turnover rate for all JCO positions was 49% in fiscal year 2013, compared to a turnover rate for all Georgia state agencies of 17.9%. The officer turnover rate did decline from a 2012 high of 55%. The DJJ turnover rate is driven by the entry-level JCO1 position, which has the largest number of employees and has exceeded 50% for the last three years. Exhibit 3 Turnover Rates Decreased in Fiscal Year 2013, but Remain High 1 70% JCO1 JCO2 Lt. All positions 60% 50% 51% 63% 55% 57% 49% 40% 37% 43% 30% 20% 32% 17% 19% 17% 17% 32% 28% 28% 20% 10% 0% FY 2010 FY 2011 FY 2012 FY Captains could not be identified in all years of data; therefore they were excluded from this analysis. Source: TeamWorks HCM data The 2013 turnover decrease was impacted by large rate decreases in several facilities. The turnover rates for JCO1s dropped significantly at the Augusta YDC (158% to 67%), Cohn RYDC (77% to 39%), DeKalb RYDC (102% to 73%), and Eastman YDC (87% to 59%). In the same year, several facilities experienced rate increases, with the most notable including Marietta RYDC (37% to 76%), Gainesville RYDC (48% to 81%), and Savannah RYDC (61% to 85%). Appendix C shows turnover rates by facility for fiscal years 2010 through As shown in Exhibit 4, DJJ s fiscal year 2013 turnover rate was higher than comparable positions at the Georgia Department of Corrections (GDC) and other states. GDC s turnover rate for all officers is 29%. Florida, Alabama, and South Carolina all have lower turnover for comparable juvenile corrections positions.

10 DJJ Security Staffing 6 Exhibit 4 DJJ s Turnover is Higher than Other States and Agencies 60% JCO1/CO1&CO2 SGT All Levels 50% 40% 30% 20% 10% 0% DJJ GDC FL DJJ AL DJJ SC DJJ Source: Agency data Fair Labor Standards Act The Fair Labor Standards Act (FLSA) is the federal statute that governs labor practices throughout the country. The act sets a 40-hour work week and generally provides for cash payment at 1 ½ times the standard rate for any additional hours worked. The act states, however, that employees in certain occupations such as law enforcement officers in public agencies 3 do not accrue overtime until they have worked more than 171 hours in a 28-day period. In addition, these employees do not have to receive immediate cash payment for the additional time; rather they may accrue 1 ½ hours of compensatory time (comp time) for every additional hour worked. Comp time is capped at 480 accrued hours (or 320 work hours); any time above that must be compensated with cash payment. Only JCO1 and JCO2 positions are subject to the provision noted above. Lieutenants and captains are designated as exempt; therefore, DJJ is not required to compensate them for additional hours worked. State policy recommends that non-exempt employees accrue comp time in lieu of overtime payments where economically practical. This time may be converted to cash if (1) the employee leaves the agency with unused time or (2) the agency decides to lower employees balances if they are close to reaching the maximum amount allowed (known as an FLSA payout). The policy also allows state agencies to immediately pay cash if the following criteria are met: (1) alternatives to payment such as granting time off in the same workweek for employees who work extra hours have been considered and found inapplicable; (2) funds are allotted in the budget or approval has been obtained by the Office of Planning and Budget; and (3) the agency has established a procedure whereby all overtime worked is properly authorized by supervisors. 3 FSLA regulations define a law enforcement officer as one who has arrest powers and statutory authority to enforce laws, protect life and property, and prevent crime and who has had comprehensive law enforcement training.

11 DJJ Security Staffing 7 Findings and Recommendations High JCO turnover negatively impacts the operation of DJJ secure facilities in several ways. DJJ s JCO turnover rate of 49% makes it difficult for DJJ to fulfill its mission to provide a safe, secure environment. In addition to resulting in higher hiring and training costs, turnover also makes it difficult for DJJ to maintain desired youth-toofficer ratios and forces JCOS to work extended shifts. Minimum staffing and inexperienced officers may also be factors in the frequency of reportable incidents. Costs of Hiring and Training We estimated that DJJ spends more than $19,000 to hire and train each new officer, with more than $11,000 of the total for salaries and benefits of cadets (not-yetcertified JCOs). Nearly one-third of the costs are fixed, meaning they do not change with each additional officer hired. The remaining costs are variable and could be saved if fewer officers were hired and trained. The breakdown of fixed and variable costs for hiring, orientation and training in fiscal year 2013 is shown in Appendix D and summarized below. Hiring costs are approximately $2,000 per cadet. Fixed hiring costs include DJJ Human Resources recruiters, as well as time spent by facility personnel processing applications, scheduling and conducting interviews, and processing other new hire paperwork. Variable hiring costs include fingerprint background checks and drug screenings paid for by the agency. Orientation costs are $12,595 per cadet. A large portion of these costs is the cadet salary and benefits from hire until BJCOT. The fixed costs include time spent on orientation by facility HR employees, as well as the time the Field Training Officer spends with each cadet. Training costs are approximately $4,500 per cadet. Fixed training costs include the Office of Training staff that administers the training. Variable costs include the students meals, lodging, classroom supplies and uniforms that are issued to each student. They also include the salary and benefits paid to the cadet during the four-week course. It should be noted that BJCOT was lengthened to five weeks in January Difficulty Maintaining Youth-to-Staff Ratios Staffing levels can lead to facilities struggling to comply with DJJ s desired youth to officer ratios of 10:1 (waking hours) and 20:1 (sleeping hours). We compared the number of youth and officers assigned to housing units for a two-week period in July 2013 and found that ratio requirements were not met in at least one unit for 32% of the shifts. 4 While youth are generally outside of their cells during waking hours, some are required to remain in their cells if a housing unit has too few officers. In addition, when ratios are not met, officers also can only move a portion of assigned youth at one time. 4 Other officers were in the facility during the shift. The other officers were assigned to non-housing units or functions, such as the control room, medical unit, kitchen, or the response team.

12 Years of Experience DJJ Security Staffing 8 Low staffing levels were also noted in surveys and interviews. At least 60% of 202 JCOs responding to our survey said their facility had insufficient staffing for day, night and weekend shifts (63%, 60% and 73% respectively) see Appendix E for all survey questions and results. During interviews, 82% of JCOs 5 stated that their facility was short staffed. It should be noted that DJJ plans to comply with the Prison Rape Elimination Act (PREA 6 ) ratio requirements of 8:1 during waking hours and 16:1 during sleeping hours by Years of Experience As shown in Exhibit 5, DJJ officers typically have fewer years of service than comparable GDC officers. JCO1s have 1.5 fewer years than GDC COs, and the experience gap increases among the supervising officers 3.7 years between DJJ and GDC sergeants, 5.5 years between DJJ and GDC lieutenants, and 8.3 years between DJJ and GDC captains. In addition, almost half of DJJ s JCO1s have been in the position for less than a year, compared to 28% of GDC s COs. Exhibit 5 DJJ Officers Have Less Experience than GDC Officers in Comparable Positions 1 20 DJJ GDC CO/JCO Sergeant Lieutenant Captain 1 This graph shows the median years of service fo each position. Due to thewide range of tenure among officers, the average was generally higher. Source: TeamWorks HCM data Frequent Use of Holdovers Holdovers, 7 or extended shifts, occur approximately 22% of the time at DJJ facilities. A holdover is defined as an officer being asked to stay after their regularly scheduled 5 The audit team conducted 133 interviews of officers of all levels, during site visits to ten DJJ facilities. 6 PREA provides for the analysis of the incidence and effects of prison rape in Federal, State, and local institutions and to provide information, resources, recommendations and funding to protect individuals from prison rape. The act also created the National Prison Rape Elimination Commission and charged it with developing draft standards for the elimination of prison rape. Those standards became effective in While DJJ utilizes 12-hour shifts, officers are generally on-the-clock for at least 12.5 hours. We considered any shift 13 hours or longer to be a holdover.

13 DJJ Security Staffing 9 shift ends. While DJJ utilizes 12-hour shifts, our analysis of one 28-day pay cycle in mid-2013 found that 22% of JCO1 and JCO2 shifts were at least 13 hours. As shown in Exhibit 6, 4% of shifts exceeded 14.5 hours. One-quarter (26%) of JCOs interviewed indicated that holdovers were a significant problem and 31% of survey respondents said they were held over six or more times per month. While holdovers occur because of turnover, the frequency of holdovers also causes turnover (see page 15). Exhibit 6 22% of Shifts were 13 Hours or More, June July % 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% 78% 18% 3% 1% hours hours hours hours Source: Employee timecard data Incidents at Facilities Turnover and the resulting number of inexperienced officers may contribute to the frequency and type of incidents that occur at DJJ facilities. Officers with more experience interacting with youth should be more capable of preventing incidents from occurring. Incidents that may occur in YDCs and RYDCs include youth-onyouth and youth-on-staff altercations, self-harm behaviors, employee misconduct, escape attempts, and others. Of the January-August 2013 incidents that resulted in a completed investigation, the role of officers was often noted. Just over half of the officers were exonerated, while one-third were disciplined or terminated. Agency Response: The Department agrees with this finding, and is taking steps to reduce officer turnover, as stated within the report, and in our responses (to other findings).

14 DJJ Security Staffing 10 DJJ management has taken actions to address officer turnover, but information related to the turnover causes could be improved. DJJ management is aware that high JCO turnover is a significant problem and has recently taken several actions to address it (see box below). To most effectively address a problem, however, the causes must be fully understood. We noted that the agency has not successfully utilized two common methods of identifying the causes for turnover employee satisfaction surveys and exit interviews. Employee Satisfaction Surveys Employee satisfaction is an indicator of turnover, making it important for agencies to regularly collect and analyze this information. Surveys should measure employee satisfaction levels and the underlying reasons, with enough information to determine responses for subgroups (i.e., security/education; supervisors/non-supervisions; facility names). They should also be delivered in a method to encourage participation, include a core set of questions that are asked in subsequent surveys, and results should be tracked and compared against turnover rates. While DJJ has conducted employee satisfaction surveys, the surveys have not been sufficient to provide information on the different reasons for officer turnover. A 2012 survey administered for DJJ by Georgia State University had very low participation among JCOs, making the results unreliable. The survey was administered via , and JCO1s do not have addresses. DJJ conducted its own survey in February 2013 that had higher participation among JCOs; however, the results do not include facility names. Considering turnover rates vary significantly by facility, locationspecific information is necessary to determine the reasons for the variation. Exit Interviews Exit interviews are typically conducted by Human Resources personnel just before an employee leaves an agency. The interviews can help determine the reasons that employees are departing and where the employees are going. To be most useful, exit interviews should be structured, with the responses compiled by location. We found that DJJ s exit interview process has not been effective. DJJ uses an online exit interview tool, but it has experienced low participation at facilities and among JCOs. During our site visits to ten DJJ facilities, we found that when exit interviews DJJ management has taken steps to reduce turnover Strategic Plan Goal: One of five goals in DJJ s Strategic Plan is to reduce turnover. These strategic plan items primarily relate to improving recruitment and retention policies. DJJ has also set measurable goals to increase employee satisfaction and reduce turnover by Transition to 12-Hour Shifts: In order to reduce holdovers at facilities, Secure Facilities management transitioned all facilities from 8-hour to 12-hour shifts. The transition began in 2012 and was completed by all facilities in May of The new schedule gives officers more days off in a row. Pre-Application Test: DJJ implemented pre-application test to screen out applicants in November The test evaluates reading and writing skills of the applicant. GDC uses the same test for corrections officer applicants, and GDC officials said it has been helpful to reduce the number of cadets that fail the academic portion of the basic training course. Salary Increase: DJJ is receiving additional funds in fiscal year 2015 to supplement officer pay. JCO1s will receive a 5% pay increase at six months of employment. Six months after obtaining certification and contingent upon a satisfactory performance review, officers will be promoted to JCO2 and receive an additional raise of approximately $2,000.

15 DJJ Security Staffing 11 were being conducted, they were informal and results were not documented. Staffs at some facilities have printed the exit interview and results are not captured electronically. The Georgia Department of Administrative Services (DOAS) Human Resources Administration (HRA) noted that many agencies struggle with implementation of exit interviews, and effectiveness depends on proper utilization of the data. DJJ s strategic plan includes the use of exit interview as part of the agency s attempt to reduce turnover. DJJ officials stated that the agency is in the process of developing an Applicant Tracking System that will include a revised exit interview system. RECOMMENDATIONS 1. DJJ should ensure that employee satisfaction surveys collect all needed information (e.g., type of position, whether the employee is a supervisor, and the facility name) and that it contain a core set of questions that remain consistent year to year so that data can be easily analyzed. 2. DJJ should conduct exit interviews for all departing employees. Facilities should set up a way for departing employees to fill out the interviews themselves or with assistance from the facility s HR staff. Data from exit interviews should be compiled and analyzed. Agency Response: DJJ will implement the recommendations associated with this finding. The satisfaction survey will be adjusted to include more demographic data, while still allowing participants to remain anonymous. Additionally, the questions will be standardized. The Department will also begin to revise the Exit Survey Program to increase participation to gain accurate and relevant data. Finally, the Department will also take steps to ensure accurate termination data is entered into the Human Resources Information System (HRIS) in order to capture accurate separation information. The pay structure for JCOs has been an obstacle in DJJ s recruitment and retention efforts. While not the only issue driving turnover, pay was frequently cited by JCOs as a source of employee dissatisfaction. Our survey found that 72% (142) of respondents did not feel they were paid fairly for their work, and inadequate pay was noted in 56% of JCO interviews. We found that JCO starting pay is lower than comparable positions in many other agencies, that JCOs have had limited opportunities for significant pay increases, and that officers do not receive overtime pay for the additional hours often worked. DJJ s pay structure will change in fiscal year As detailed below, more frequent and significant pay increases are planned for officers within the first two years. Starting Pay JCOs have a starting annual salary of $24,322, which is lower than the salaries of corrections officers serving many local governments, surrounding states, and the federal government (see Exhibit 7). Specifically:

16 DJJ Security Staffing 12 The average starting salary among 80 counties surveyed in 2012 was approximately $1,800 more than JCO1s, and the gap was greater in some counties housing DJJ facilities (see Appendix F). While South Carolina had a slightly lower starting salary, starting salaries for officers in Alabama, Florida, North Carolina and Tennessee are approximately $4,000 higher than Georgia s. The federal government starts correctional officers approximately $3,000- $8,000 higher than DJJ (depending on location in Georgia), though federal corrections officers must have a college degree or three years experience. It should be noted that DJJ and the Georgia Department of Corrections provide the same starting pay to corrections officers. Exhibit 7 Georgia Corrections Officers Starting Pay is Less than that of Officers Employed by Local, Federal, and Other State Agencies Georgia Local Government Contiguous States Federal Base 1 Federal Atlanta Private $35,000 $30,000 $25,000 $20,000 1 The federal goverment's general pay scale includes a locality supplement for the Atlanta metro area, which covers 33 counties. The supplement is a 19% increase over the base. Source: TeamWorks HCM data and web review; DCA Wage and Salary Survey According to DJJ officials, the starting pay hurts the agency s ability to recruit the best candidates for JCO1 positions. Several facility directors and supervising officers stated that most of their applicants or potential hires do not make it past the initial background check. DJJ does provide additional incentive pay that increases the starting pay for some JCOs. DJJ added an incentive for employees that have served in the military in fiscal year 2013; they receive 2.5% additional pay for each year of active duty, up to 10%. DJJ reported that it is in the early phases of evaluating the need to offer increased starting pay to those with correctional officer experience or college degrees. In fiscal year 2013, 27% of JCO1s hired received incentive pay.

17 Total Salary DJJ Security Staffing 13 Opportunities for Pay Increases While there are opportunities for pay increases within a JCO s first few years of employment, they have not proven effective at retaining officers. Based on 2013 data, 55% of hires have left by their one year anniversary. Under the current system, DJJ provides an automatic 5% pay increase at one year of employment (to $25,538) and is not eligible for another increase for at least two years. With two years experience, a JCO1 can apply for a competitive promotion to JCO2, a supervisory position of sergeant, if a position is open. As Exhibit 8 shows, under the new salary system, JCO1s will see a higher increase in salary during the first two years. DJJ has moved up the 5% increase to six months, rather than one year, after hire. In addition, JCO1s will be promoted to JCO2 (but not considered a sergeant) one year after graduating from basic training, if they ve received satisfactory performance reviews. The promotion will include a raise to the new JCO2 base salary of $27,472. Under the existing plan, a JCO1 would receive a pay increase of $1,200 in the first two years. Under the new plan, a JCO1 should receive an increase of $3,150. Under the new system, JCOs will earn an additional $2,500 in their first two years of employment. Since the increase targets employed officers, the additional income most directly addresses retention. In order to also aid recruiting efforts, DJJ would need to note the pay increase opportunities in position advertisements/marketing materials. Exhibit 8 New Plan will Provide Earlier and Larger JCO Salary Increases $28,000 $27,500 $27,000 $26,500 $26,000 $25,500 $25,000 $24,500 $24,000 $23,500 $23,000 $22,500 Current System New System Years of Employment Source: TeamWorks HCM data and planning documents In addition to the starting salary and scheduled increases in the first two years, DJJ has provided supplemental pay and retention bonuses to certain officers. Supplemental pay DJJ offers a salary supplement of up to $100 for officers in behavioral management units, and 5% for maximum security/special populations. Additional training is required for the special management

18 DJJ Security Staffing 14 units. As shown in Exhibit 9, almost two-thirds (60%) of JCO1s received supplemental pay in FY Retention bonuses DJJ issued retention bonuses to experienced officers at the end of fiscal year Officers with at least two years of experience received $200 plus $100 for each additional year, up to 10 years (or $1,000). Approximately 75% of the JCO1s, sergeants, lieutenants and captains who were with the agency during the entire year received a retention bonus. Exhibit 9 Most JCOs Employed throughout Fiscal Year 2013 Received Supplemental Pay or Retention Bonuses Supplemental Pay Retention Bonuses Title Total Officers 1 % of Officers Median % of Officers Median JCO (61%) $ (64%) $600 Sergeant (59%) $ (90%) $700 Lieutenant (55%) $ (91%) $1,000 Captain 13 9 (69%) $ (100%) $1,000 Total (60%) $808, (73%) $472,300 1 Officers who received a full year of regular earnings in fiscal year These represented approximately 36% of all DJJ JCO1s who were employed at some point in the year and over 75% of sergeants, lieutenants, and captains. 2 Median of recipients Source: TeamWorks Financials data Overtime/FLSA Compensatory Time Payments DJJ generally awards FLSA compensatory time to JCO1s and JCO2s that work more than 171 hours in a 28-day work period. The employee is awarded 1.5 hours for each additional hour worked. If an officer leaves DJJ employment before using those hours or if the agency chooses to lower an employee s FLSA comp time balance, DJJ can pay the employee for those additional hours. For a portion of fiscal year 2013, DJJ paid overtime at two facilities. Further discussion of DJJ s overtime and compensatory time payments is included in the next finding. RECOMMENDATIONS 1. DJJ should assess the quality of the new pay structure to determine if it is positively impacting both the quality of applicants and the agency s ability to retain officers. To attract quality applicants, DJJ should ensure that the new salary structure not just the starting pay is communicated to potential applicants. 2. DJJ should continually assess the type and level of supplemental payments to ensure they are most effectively targeted. Agency Response: DJJ will implement the recommendations associated with this finding. Additionally, DJJ is planning to implement a change to the pay structure for JCO1s in order to increase base pay within the first year of employment.

19 DJJ Security Staffing 15 The frequent use of holdovers, coupled with a lack of overtime pay, has negatively impacted JCO turnover. YDCs and RYDCs frequently require officers to work beyond their scheduled shifts. These extended shifts, which result in FLSA compensatory time (comp time) instead of overtime pay for JCO1s and JCO2s, were frequently cited by officers as a source of low morale and a reason for departures. Many officers also stated that using comp time was difficult. Frequency and Cause of Holdovers Most officers are scheduled to work 12-hour shifts, though an additional half hour is required for shift debriefings. Holdovers occur when officers are required to remain at an assigned post beyond their scheduled departure time, resulting in shifts of 13 to 16 hours. Some facilities have scheduled holdovers because of a high number of vacancies, officers at BJCOT, or officers on extended medical leave. Other holdovers occur because an officer on the following shift does not report when scheduled. Due to mandatory staffing needs, officers cannot leave an assigned, mandatory post until replaced by another. In both surveys and interviews, officers reported they were routinely held over, and our analysis of time records confirmed the frequency. Sixty-one percent of officers responding to our survey reported being held over 1-5 times per month, and 31% reported being held over 6 or more times monthly. (Most officers work shifts in a month.) Our review of a 28-day work period in mid-2013 found similar results, with 46% held over 1-5 times and 23% held over 6 or more times. Our review also found that holdovers occurred for 22% of the all officer shifts. However, holdovers are not equally distributed across facilities (see Exhibit 10). More than 40% of officer shifts ended in a holdover at the Marietta RYDC, and six other facilities had a rate of at least 30%. Conversely, nine facilities had holdovers for fewer than 10% of officer shifts. Exhibit 10 Facilities with Highest and Lowest Percentage of Holdovers, June-July % 40% 30% 20% 10% 0% Source: Employee timecard data

20 DJJ Security Staffing 16 While frequent holdovers were routinely mentioned by officers as a reason for turnover, the potential impact on the effectiveness of security should also be noted. Especially long shifts, or minimal time between shifts, 8 make it less likely that they can remain attentive and effective at their job. We noted that some facilities had a system to notify officers, prior to their shift, that they were either going to be held over or were on the list of potential holdovers (depending on the number of sick call-outs or no shows on the following shift). Officers in these facilities stated that this system provided them with information to attempt to address work-life balance issues, such as child care. Other facilities did not have a system to notify officers of the likelihood of being held over, and the notification could occur as late as the end of the officer s scheduled shift. Compensation for Holdovers Holdovers can result in additional compensation for JCO1s and JCO2s; however, the compensation is in the form of compensatory time instead of overtime pay. Officers repeatedly noted a preference for overtime pay and added that compensatory time is difficult to use. As previously noted, JCO1s and JCO2s are non-exempt employees that must be compensated for hours worked in excess of 171 in a 28-day work period. FLSA allows public employers to provide FLSA compensatory time (instead of overtime pay), though the balance is limited to 480 hours. Whether FLSA comp time or overtime pay is provided, the employee receives 1.5 hours for each additional hour worked. DJJ provides compensatory time instead of overtime pay, consistent with the preference noted in state policy. 9 The officers preference for overtime pay and the ability to use FLSA comp time are discussed in more detail below. Officers prefer overtime pay During interviews with officers at 10 facilities, officers indicated a preference for overtime pay instead of FLSA comp time. While many did not want to be held over, they noted that it would be more tolerable if accompanied by additional pay at the end of the month. One pointed to the fact that holdovers prevent officers from having a second job to supplement DJJ salaries. The Eastman YDC had approval to pay overtime for a portion of fiscal year Eastman officials noted that some officers volunteered to be held over when additional pay was included. Without overtime pay, officers generally do not volunteer. While granting FLSA comp time is expected to save money, the savings are unclear. DJJ must pay departing officers for comp time balances, and the agency also buys down officer balances at the end the fiscal year. DJJ had FLSA payouts of $1,306,506 to 1,296 JCO1s and JCO2s in fiscal year 2013 (see 8 Officers can be held over for up to 16 hours. If scheduled to work the following day, they have only 8 hours between shifts. 9 Policy #7 issued by Governor s Office of Planning and Budget and the State Personnel Administration, effective January 1, 2009.

21 DJJ Security Staffing 17 Exhibit 11). Most payouts occurred at the end of the fiscal year ($1,025,378 or 78%); payments in other months averaged $12,223. Exhibit 11 FLSA Comp Time Pay vs. Overtime Pay in Fiscal Year 2013 Total Officers 1 FLSA Overtime % of Officers Average 2 % of Officers Average 2 JCO1 1,866 58% (1,076) $904 6% (110) $542 JCO % (220) $1,519 6% (22) $546 Total 2,226 58% (1,296) $1,306,506 6% (132) $71,621 1 Any JCO1 or JCO2 that received regular earnings in FY Average of recipients Source: TeamWorks Financials data The cost-effectiveness of the current policy of avoiding overtime payments is unclear. While the cost of paying overtime for all additional hours worked in one 28-day work period during fiscal year 2013 would have been approximately $125,000, 10 DJJ could limit the number of hours per facility or officer that would be paid as overtime (hours over that limit would result in comp time). In addition, since the current policy appears to be a factor in turnover, the costs of hiring and training new officers and of additional hours worked by remaining officers can be partly attributed to the policy. Finally, FLSA comp time payments must be at the officers salary when the payment is made, not the salary in effect when the additional hours were worked. When officers receive a raise in the interim (which may occur under the new payment plan), the agency s costs for those additional hours worked increases. Inability to use FLSA comp time Seventy-one percent of officers responding to our survey said it is difficult to use their earned comp time. It should be noted that FLSA and state policy both require that employees be granted FLSA compensatory time off within a reasonable time of making the request, provided that the time off does not unduly disrupt agency operations. It seems likely that facilities with persistently high turnover and holdover rates would be disrupted by granting of leave. Data from fiscal years 2012 and 2013 indicate that officers are earning more FLSA comp time but appear unable to use it. Officers earned approximately 105,500 hours in fiscal year 2013, compared to 67,000 in the prior year. The 1,042 officers who earned comp time in 2013 took only 36,500 hours (34%). Over half of the officers (551 or 54%) used less than one-quarter of the comp time they earned during the year. Thirty-one percent did not use any of their earned comp time. As shown in Exhibit 12, regardless of the number of hours earned, many officers are using a small percentage. Only officers who earned less than 100 hours (including those with only a few hours earned) are likely to use a large portion of their earned time. 10 Calculated using the average hourly rate of $12.69.