Exh 27STAFF REPORT
City of Atlantic Beach
Commission Meeting
AGENDA ITEM: Police Officer/Employee Retention Issues
DATE: December 27, 2003
SUBMITTED BY: David E. Thompson, Chief of Police/DPS
BACKGROUND:
Since 1999, the Atlantic Beach Police Department has lost fourteen(14) officers to other
law enforcement agencies in northeast Florida, and Atlantic Beach expects to lose several
more officers within the next six(6) months. Most of the officers were hired by the
Jacksonville Sheriff's Office, which is a continuation of a trend that started in the late
1980s. However,over the past four (4) years, Atlantic Beach has lost officers to the
Neptune Beach Police Department, Jacksonville Beach Police Department, Clay County
Sheriff's Department, and the State of Florida. Losses to these agencies have been
extremely rare in the past.
In attempting to reduce the loss of officers to other agencies,the solution is not as simple
as merely raising the pay for Atlantic Beach Police Officers. Several years ago when the
Palmer and Cay pay plan was implemented,the officers who received the highest pay
increases were also the officers who accepted positions with the Jacksonville Sheriff's
Office. The increases in pay did not appear to have any significant effect on the loss of
officers.
The issue of retention is complicated, and there are a variety of factors that have an impact on
the loss of personneL Some of factors can be addressed and altered,and some of those factors
are simply realities that are not subject to change. The purpose of this report is to discuss
some of the factors that impact officer retention, and to provide some realistic solutions for the
consideration of the City Commission. In the discussion below, the recommendations for
changes are in bold type.
Opportunities
When officers voluntarily leave the Atlantic Beach Police Department, exit interviews are
typically conducted to identify their reasons for leaving. In most cases, the officers have
said that the Jacksonville Sheriffs Office provides more opportunities for their
professional development.
In Jacksonville, there are numerous supervisory positions for which officers can compete.
In Atlantic Beach, supervisory positions are limited in number, and the organizational
structure is small. In Jacksonville, there are specialized units for officers to join.
Jacksonville has a Canine Unit, Air Unit, Marine Unit, Equestrian Unit, Traffic Unit, and
many additional areas in which officers can specialize. Jacksonville also has specialized
investigative units including Homicide,Narcotics, Robbery, Burglary, and Sex Crimes.
In Atlantic Beach, there simply is not enough demand to justify the creation of these
specialized types of groups in the organization.
These factors are not likely to change. Jacksonville will continue to expand in
specialization and size, and Atlantic Beach is not likely to make significant changes that
will alter this contrast in the two departments. There are some opportunities for
specialization in Atlantic Beach, and it would be beneficial to recognize these
assignments with additional compensation.
In the Atlantic Beach Police Department, there are a number of officers who have taken on
additional responsibilities beyond their patrol duties. Some of these duties require specialized
training and certifications, and the additional responsibilities often require levels of
commitment and performance that are significantly more challenging than general patrol
functions. Based on these factors, we believe that these officers should be compensated with
additional pay when they are performing these functions. Currently, the following special
assignments and compensation are addressed:
Detectives: An additional 10% is provided for an individual assigned as a detective.
Additionally, detectives receive a clothing allowance of$650 per year to be paid
quarterly.
Patrolman in Charge (PIC): A Patrolman in Charge (PIC) is an assignment of an
officer to perform sergeant or lieutenant functions for a period of four (4) hours of
more. Such officers are provided an"add pay"of 5%while assigned as PICS.
Field Training Officers: Officers assigned as Field Training Officers(Fl Os) must be
recommended by their supervisors, complete an FTO certification course, and
provide daily supervision and instruction for new recruits. Currently,FTOs receive a
5% "add pay" for these duties while the FTO is actively training a new recruit. We
recommend that this be raised to 10%. This is one of the most important duties
in the department, and it requires a high degree of commitment and
professionalism. The cost of this proposal is estimated at approximately $5,184
for 2003-04.
The following additional pay is being recommended:
Crime Suppression Unit (CSU) members: These individuals have been selected to
work on the Crime Suppression Unit with citizen groups, and to target specific
problem areas in the city. Although CSU Officers will be assigned to the patrol
division, they perform a number of functions that require them to dress in `plain
clothes." Their shift schedules will change frequently, and they will be involved in a
variety of investigations that will require additional training and skills beyond
tradition patrol duties. We recommend that we compensate CSU members with
an "add pay" of 5%, and a clothing allowance consistent with detectives ($650
per year, paid on a quarterly basis). Note: We recommend that the CSU
sergeant be paid consistent with the Palmer and Cay plan, and in addition,
receive the clothing allowance. The cost of this proposal is estimated at
approximately$5,000 for 2003-04.
Patrol Investigator/Evidence Technician: Last year, when we eliminated a detective
position, we said that we would help to offset the workload by assigning a Patrol
Investigator/Evidence Technician on each squad. These individuals would receive
additional training, and they would follow-up on criminal investigations for each
squad. We recommend that we provide a 5% "add pay" for two (2) officers
assigned to these duties. The cost of this proposal is estimated at approximately
3,700 for 2003-04.
SWAT: The Police Department has had a Special Weapons and Tactics Team for
many years. The members attend specialized training, and they participate in high
risk operations. They train with other agencies, serve search warrants, coordinate
major events (Air Show, Super Bowl) and respond to various types of high risk
situations. We recommend that we provide a 5% "add pay" for SWAT
members for all SWAT operations, not including training. The cost of this
proposal is estimated at approximately$1,000 for 2003-04.
Clarification: There are a number of officers who are simultaneously assigned to
more than one of these duties. It is our recommendation that the"add pays"be added
to the compensation when an officer is engaged in more than one of these duties at a
time.
Pay
The role of pay, relative to job satisfaction, has been discussed in a number of books and
articles, and although there is no universal agreement,there are some points of consensus
among researchers in this field.
Pay is not a"cure all" for employee retention. Simply raising the pay will not keep
employees from leaving an organization.
However, if pay is not sufficient, and people believe that they are not being compensated
commensurate with others who perform similar duties, then pay may become a
significant "dissatisfier." This means that if people believe that they are being
compensated too little,then they will certainly become dissatisfied with their
employment. It is apparent that the"perception" of pay is a significant factor in job
dissatisfaction and the loss of personnel in the Atlantic Beach Police Department.
Relative to Atlantic Beach, exit interviews have consistently demonstrated that the
reasons for leaving have typically included some consideration of the lack of a
competitive pay plan for Atlantic Beach Police Officers. The pay plan is consistently
identified as a significant factor in the loss of personnel.
The best way to understand the disparities and deficiencies in the Atlantic Beach pay plan
is to view current Atlantic Beach salaries as compared to other agencies' pay plans in the
area. The numbers below were effective October 1, 2003:
Years of Service Atlantic Beach Neptune Beach Jacksonville Beach JSO Annual
0-12 Months 31720 29812 31928 33840
1 33176 31005 32864 35760
2 33820 33534 34507 37644
3 36296 34824 35568 39324
4 37315 36114 36608 41220
5 38355 37404 37731 41220
6 N/A 38694 38833 48504
7 N/A 39984 39998 48504
8 N/A 41274 41308 49260
9 N/A 42564 42432 49260
10 N/A43853 43742 50016
11 NIA 45143 45032 50808
12 42889 46433 45947 51576
13 42889 47723 46862 52332
14 N/A 47798 53136
15 4124648755 53880
16 N/A 49753 54648
17 44595 55404
18 N/A
19 N/A
20 N/A
21 43555
At a glance, it is apparent that Atlantic Beach officers are competitive with area agencies
at the beginning levels of the pay system. However, the most experienced Atlantic
Beach officers' pay rates are not competitive with the higher pay rates in the area
agencies. At the higher experience levels,the Atlantic Beach officers are making
significantly less money than their counterparts in other agencies.
The Atlantic Beach pay plan does not include any"expectation" of movement up a pay
scale. Officers can see what more experienced officers are making, but there is no
expectation of advancement to higher pay levels. The top of the pay range for a patrol
officer in Atlantic Beach is approximately$48,000. However,the chart above shows that
the highest paid patrol officer is making $44,595. This reveals a problem with pay
compression that has resulted from Cost of Living Adjustments (COLAs), with no
additional differentials for progression in a pay range. This deficiency is often mentioned
when officers leave for employment with other law enforcement agencies.
An additional concern is the absence of police officers with six(6) to eleven(11) years of
experience. Clearly, officers are leaving for other departments after Atlantic Beach has
helped to train and educate them. When officers are reaching their.highest potential for
productivity and expertise, they leave for other job opportunities.
The other agencies have a pay plan that allows officers to visualize and anticipate pay
increases in the future. This allows officers to look at a pay plan and identify the pay rate
that they may expect at various points in their careers. When officers are planning for
their futures, it is beneficial for them to identify what they can expect to be paid in the
future. This has been a significant factor in the loss of personnel to other agencies.
The problem with these factors is primarily one of perception. The Palmer and Cay study
that was adopted by the City of Atlantic Beach,recommended annual increases above the
cost of living. The purpose of the increases is to avoid pay compression at the bottom
end of the pay scale, and to recognize experience and longevity. Although it is apparent
that the City of Atlantic Beach intends to advance police officers through the pay plan,
this is not readily visible or understood by the officers. As a result, officers leave for
other agencies that have clearly established expectations for advancement and pay
increases.
If a pay plan was constructed that showed the intent to elevate pay beyond a cost of living
adjustment,then it would allow officers to make informed comparisons with the pay in
other departments. This would probably help the Atlantic Beach Police Department
retain some of the personnel that they have been losing.
BUDGET: The total budgetary impact of the Add Pays for specialized assignments is
estimated at slightly less than$15,000 for the year. It is anticipated that this can be
absorbed into the existing 2003-04 budget.
The adoption of the recommendation to identify pay increases of 3%per year, in addition
to any cost of living adjustments, will not have an immediate impact on the 2003-04
budget. However, it will result in the expectation of future pay increases for police
officer pay rates. It should also be anticipated that such a commitment will probably be
requested next year for all city employees, not just the police department.
SUMMARY OF RECOMMENDATIONS:
To approve the Add-Pays for Field Training Officers, two (2) Crime Suppression
Officers, a Crime Suppression Sergeant, two (2) Patrol Investigator/Evidence
Technicians, and SWAT team members as discussed in the report above.
To approve clothing allowances for Crime Suppression Unit members including one
sergeant and two (2) crime suppression officers.
To articulate the expected or anticipated salary increases by adopting language
establishing the"intent to provide annual pay increases in the range of 3% per year,
in addition to a cost of living adjustment." This will allow officers to "visualize" a
pay plan that will be competitive with other agencies. The Commission may also
want to include language to the effect that such increases could be deferred,
postponed, or altered by the City Commission based on future funding/budgeting
considerations.
ATTACHMENTS: Pay Comparison with 3% Differential Proposal
REVIEWED BY CITY MANAGER:
AGENDA ITEM NUMBER:
2003-04 Pay Comparisons
Actual) 3% Midpoint)
Patrol Offices Years of Service Atlantic Beach 3% Proposal Neptune Beach Jacksonville Beach JSO Annual
0-12 Months 31,720 91720 71` 29812 31,928 33,840
1 33,176 32;905:w 31,005 32,864 35,760
2 33,820 34,091,- 33,534 34,507 37,644
3 36,296 35,276 -. 34,824 35,568 39,324
4 37,315 P36462 ' 36,114 36,608 41,220
5 38,355 Pier46, 37,404 37,731 41,220
6 188834' 38,694 38,833 48,504
7 x'40,019-.. 39,984 39,998 48,504
8 4.1,205. 41,274 41,308 49,260
9 42,390 -. 42,564 42,432 49,260
10 4,3,576 .:,, 43,853 43,742 50,016
11 - 44,762 45,143 45,032 50,808
1 42,389 45,947.. 46,433 45,947 51,576
3 42,88 \ 47,133 4 ,723 46,862 52,332
14 1 48,318 47,798 53,136
15 41,246 \ S' °``"`' 48,755 53,880
16 49,753 54,648
17 44,595 ' 55,404
18
19
0
1
2\_,.,.__
21 43,555