Staffing Study for the Sheriff s Office and Communications Section COUNTY OF SHENANDOAH, VIRGINIA

Transcription

1 Staffing Study for the Sheriff s Office and Communications Section COUNTY OF SHENANDOAH, VIRGINIA 201 San Antonio Circle, Suite 148 Mountain View, California March 2013

2 TABLE OF CONTENTS March INTRODUCTION 1 2. ANALYSIS OF PATROL SERVICES 4 3. ANALYSIS OF THE COMMUNICATIONS SECTION ANALYSIS OF THE COURT SERVICES SECTION ANALYSIS OF ANIMAL CONTROL SERVICES ANALYSIS OF THE JAIL SECTION 53 ATTACHMENT DESCRIPTIVE PROFILE OF THE SCSO 65

3 1. INTRODUCTION Matrix Consulting Group was retained by the County of Shenandoah to conduct a staffing study of the Sheriff s Office Patrol, Animal Control and Court Services functions and the County Emergency Communications Center. The study also included analyzing options related to transporting arrested persons in relation the opening of a Regional Jail in The final report, which follows, presents the results of the study. This study, which began in the fall of 2012, was designed to provide an assessment of the staffing levels of the operations listed above. In reaching the concluding point of the study, the project team has assembled this final report, which summarizes our findings, conclusions and recommendations where appropriate. 1. STUDY METHODOLOGY In this Staffing Study, the Matrix Consulting Group project team utilized a wide variety of data collection and analytical techniques. The project team conducted the following analytical activities: At the outset of the project, the study team interviewed the Sheriff and his management team. The project team also interviewed the County Administrator and Assistant County Administrator. The purpose of these interviews was to develop an initial understanding of the issues and background, which led to this study. The project team conducted an intensive process of interviewing staff in every function being examined in the Sheriff s Office and Communications Section. These interviews included staff at every level in the organization managers, supervisors and line staff. While on site, the project team collected a wide variety of data designed to document workloads, costs, service levels and operating practices. The project team developed a descriptive summary, or profile, of each function within the Matrix Consulting Group Page 1

4 organization reflecting organizational structure, staffing, workloads, service levels and programmatic objectives. To obtain input from external stakeholders interviews were conducted with County Judges from the Circuit and District Courts and members of the Board of Supervisors. Throughout the process the project team reviewed findings, conclusions and recommendations with a project steering committee. work. This study was comprehensive in method to meet a comprehensive scope of 2. SUMMARY OF RECOMMENDATIONS The following recommendations are made in this report: PATROL Change Patrol Section operations from the current 10-hour shift schedule to a 12-hour shift schedule. Implement a Power Shift in the 12-hour schedule to maximize deputy availability during peak service demand times. Increase staffing in the Patrol Section by four (4) deputies, bringing the staffing from 16 to 20 patrol deputies. Annual cost of $215,787 in salaries and benefits. Develop a plan for deputies related to performance expectations during reactive and available time while on patrol. Reduce the current staffing of Sergeants from 5 to 4 upon implementation of the 12-hour shifts. Annual savings of $59,819 in salary and benefit costs. Eliminate one (1) Patrol Lieutenant position upon filling the vacant Patrol Division Captain position. Annual savings of $67,005 in salary and benefit costs. Total annual cost of Patrol recommendations: $89,963. COMMUNICATIONS Increase the staffing of the Emergency Communication Center by two (2) dispatchers. Annual cost of $82,585 in salaries and benefits. Total annual cost of Communications recommendations: $82,585 COURT SERVICES Assign two (2) staff members to provide entrance monitoring and screening during peak AM and PM Matrix Consulting Group Page 2

5 traffic times and one (1) staff member to monitor the entrance during low traffic times and when Court is not being held at the District Courthouse. Allocate an additional $39,920 to cover part-time salaries for the purposes of providing additional court security. We would recommend the addition of 4 part-time positions to cover the 2,045 hours of staffing required. Staff the positions in the monitoring rooms when Court is in session and prisoners are being held in the holding areas. Work with the individual Judges to determine staffing needs in the Courtroom by case type and schedule personnel to provide this base level of security. Conduct weekly meetings with the Judges to allow appropriate actions to be taken related to perceived staffing shortcomings in upcoming schedules. Retain the current staffing levels in prisoner transport until the relative roles and responsibilities related to the Regional Jail are clearly identified. ANIMAL CONTROL Continue with the current schedule of providing animal control services. Staff a part time ACO positions to provide coverage M-F during peak animal call times (9:00 am to 4:00 pm) and during scheduled ACO vacancies. Estimated annual salary cost of $29,636. JAIL SECTION Cease jail operations upon the opening of the Regional Jail Facility and require arresting agencies to transport prisoners directly to the Regional Jail. Savings of $1,714,571 compared to FY2013 Jail Section budget. Cost avoidance of $566,869 compared to operating a temporary holding facility. Matrix Consulting Group Page 3

6 2. ANALYSIS OF PATROL This report provides the project team s analysis of the Patrol services that are provided by the Shenandoah County Sheriff Office (SCSO). The workload information utilized in this section was obtained from interviews with Division management, supervisory and line personnel, lead administrative staff and a review of documents and information from the Department s varied information systems as well as the County based Computer Aided Dispatch (CAD) system. This chapter is organized as follows: Current organization of the Patrol Services Overview of Matrix Consulting Group s methodical approach Analysis of Patrol proactive time Analysis of Patrol staffing needs The first section, which follows, provides a brief overview of the organization and operations of the Patrol Division. 1. OVERALL ORGANIZATION AND ASSIGNMENT OF PERSONNEL IN PATROL SERVICES. The Patrol Division is composed of two sections, Patrol and Support Services. The Division is lead by a Captain, which is currently a vacant position, with two (2) Patrol Lieutenants and one (1) Support Services Lieutenant leading each of the sections. The Support Services section will be discussed separately from Patrol Field Services. There are 16 deputies scheduled to work in patrol field services. Patrol deputies work 10-hour overlapping shifts on A and B Squads to provide 24-hour coverage with Sergeants working from 7:00 am 3:00 am. Wednesday is an overlap day with 1 overlap day dedicated to training for each Squad per month. A total of four Matrix Consulting Group Page 4

7 (4) sergeants are assigned to patrol to provide field supervision. Currently there is a 5 th Sergeant assigned to patrol until promotions are made to staff the unfilled Captain position. Lieutenants work hours vary, but they typically work days and fill in on evenings if there is a Sergeant vacancy. The following table reflects the basic shift deployment program used to schedule personnel in the Patrol Section. SCSO Shift Deployment Shift # Sergeants Deployed # Deputies Deployed hrs hrs hrs hrs hrs hrs 0 1 A / 2 B hrs 0 1 A / 0 B As shown the start and end times vary for all personnel assigned to the patrol section. SCSO operates with three distinct patrol areas. Generally there is a North Area, South Area and Central Area. At times when staffing levels fall to two patrol deputies the County is divided into a North and South Area. Minimum staffing is two deputies at any given time. The town of Woodstock serves as the dividing area between the North and South sections of the County. 2. OVERVIEW OF THE MATRIX CONSULTING GROUP S PATROL STAFFING METHODOLOGICAL APPROACH. While it would be useful to identify a golden rule of law enforcement staffing needs, the utilization of comparative or per capita measures do not provide for an appropriate evaluation of field staffing needs, nor should it be used as the primary basis for a local government to measure the effectiveness of law enforcement services. As a result, the Matrix Consulting Group does not use a per capita or per 1,000 ratio as an analytical tool in assessing field staffing needs, for the following reasons: Matrix Consulting Group Page 5

8 Ratios do not consider the seriousness of the workload levels of the jurisdictions being compared. For example, the crime rate should be considered in any comparative analysis of workloads, specifically, the number of serious crimes in a community (e.g., homicide, rape, robbery, aggravated assault, burglary, motor vehicle theft, and larceny). Ratios do not consider a jurisdiction s approach to alternative service delivery or differential law enforcement response. The use of civilian personnel, or lack thereof, to handle community-generated calls for service and other workloads has great potential to impact the staffing levels of sworn personnel. The level / amount of civilians (i.e., community service officers, telephone reporting, online services, etc.) can be used to maximize the efficiency and effectiveness of sworn personnel handling higher priority calls in a community. These resources are not calculated in staffing ratios. Ratios do not consider the differences in service levels selected, or capabilities, which a jurisdiction may have for their law enforcement services (e.g., community-oriented or problem-solving oriented, a reactive versus proactive philosophy, the utilization of County-wide resources in solving problems, etc.). All of which add to the inability to compare the necessary number of field patrol personnel. Ratios do not consider other differences which have an impact on regular patrol staffing needs such as existence of special enforcement / support units as well as operational approaches (e.g., the use of field citations versus arrests, manual versus automated and field reporting systems, and whether patrol deputies are expected to follow-up on certain investigations). Ratios do not take into account topographical differences (i.e., square miles of a service area) and other response impediments, which can impact patrol staffing needs. For these reasons, the project team does not use per capita or per 1,000 residents ratios as a way for our clients to measure effectiveness in providing law enforcement services, or as a determinant in developing staffing needs. The project team s analysis of the SCSO considers the need for a balance of community-generated workloads and the availability of proactive time to generate activities; while considering the importance of deputy safety. The following subsections describe this analytical process. Matrix Consulting Group Page 6

9 (1) The Analysis of Field Patrol Resource Requirements Should Be Based on Actual Workloads Handled and Appropriate Targets of Proactivity. The Matrix Consulting Group utilizes a method in which the number of field personnel required is based on an analysis of the unique workloads and service level requirements of a community. In order to evaluate these resources and staffing issues, the project team conducted a data collection and analytical effort focusing on: Determining community generated workloads in the detail necessary to understand the work volume and the time required to handle it. Call for service workloads are a critical first element in this analysis while field personnel have choices in how calls are handled, they must be handled in some way. Targeting an amount of time to be proactive in a directed kind of way (i.e., special enforcement of high-crime areas, etc.). Proactivity is the centerpiece of our analytical method because without it, field services will not be effective in addressing the problems to which they are responding. The field resources used to handle calls for service and proactive workloads based on deputy availability levels (after taking into account personnel time for vacation, sick, etc.). Deployment and scheduling utilized by the Shenandoah County Sheriff s Office. Maintaining a deployment that would help reduce risk and maintain Deputy safety levels. The project team employed a model based on these decision points in evaluating field staffing for the SCSO, in terms of workload, service levels, and overall operations. The following section identifies and discusses the various characteristics and elements of the field-staffing model, and how reactive and proactive time is calculated. (2) Key Workload and Data Inputs Utilized in the MCG Patrol Staffing Model. Deputies dedicate time to responding and handling community-generated calls for service, as well as related activities, including reports, arrests / bookings, back-up assistance, etc., as well as the associated time commitments for these elements. Matrix Consulting Group Page 7

10 These elements are the foundation of deriving the total field staffing levels required, based on desired service levels. In effect, patrol-staffing levels are ultimately driven by the patrol deputy s time, which can be classified in two categories. These elements are described in the following subsections. (2.1) Calls for Service and Proactive Workloads. The initial critical data input required to evaluate field resources is to document the types and amount of work handled by patrol deputies in the field. There are two kinds of activity handled by patrol deputies: Reactive Workloads handling requests for service. Proactive Workloads The consequence of having uncommitted time in the field, time which should be directed and measured. Deputies can perform traffic enforcement, business and neighborhood checks, serve warrants and protective orders and focus on improving the perceptions of crime in Shenandoah County during this available time. The following points are noted with respect to response-oriented or reactive time. This is a primary mission of any law enforcement field patrol force. Clearly defined areas of responsibility (e.g., beats) and clearly defined back-up relationships are a core concept for consistent committed time service delivery. A Department should have clearly defined response policies in place this includes: prioritization of calls, response time targets for each priority, back-up policies, and supervisor on-scene policies. In the absence of such formal policies, common practice, or ideally best practice guidelines can be used. This Reactive or Committed time workload in many communities generally makes up an average of between 40% and 60% of each deputy s net available time per shift. This includes the time to prepare reports, transport and book prisoners, and provide field back-up. The concept of Reactive (and Proactive) time is widely acknowledged by various established bodies, including the International Association of Chiefs of Police, Northwestern Universities Police Allocation Model, etc. Response times should also be determined as an output metric linked to performance. Response time is reflective of the speed by which a unit is able to respond on-scene upon the citizenry requesting service. Matrix Consulting Group Page 8

11 The calculation of reactive or committed time is one of the cornerstones to patrol staffing level findings, conclusions and recommendations. The table, below, documents the distribution of citizen-generated calls for service by time of day and day of week from January 1, 2012 to December 31, The CAD system data was used to determine the number of CFS. All animal related calls occurring during normal Animal Control hours have been omitted from the data, as they will be evaluated separately in this report. After hour animal calls where a deputy responded are counted in the totals below. Shenandoah County Sheriff 2011 Community Generated Calls for Service Hour Sun Mon Tue Wed Thu Fri Sat TOTAL Avg. / Hour TOTAL Matrix Consulting Group Page 9

12 Shenandoah County deputies responded to a total of 7,208 community generated calls for service in The hourly distribution of the calls is shown in the graph below. As the graph indicates, community-generated workload varies significantly through the day from a low of 0.29 calls per hour during the early morning hours to a high of 1.4 calls per hour during the afternoon hours Average Calls Per Hour The next table displays the number of self-initiated activities by deputies by time of day and day of week from January 1, 2012 to December 31, Shenandoah County Sheriff 2012 Self-Initiated Patrol Deputy Activity Hour Sun Mon Tue Wed Thu Fri Sat TOTAL Avg. / Hour Matrix Consulting Group Page 10

13 Hour Sun Mon Tue Wed Thu Fri Sat TOTAL Avg. / Hour Total Shenandoah County deputies conducted a total of 46,495 self-initiated activities in The hourly distribution of the self-initiated activities is shown in the graph below. As the graph indicates, self-initiated workload varies significantly through the day from a low of 3.07 self-initiated activities during the 1600-hour and a high of during the 2300-hour. This is a positive trend as it indicates deputies are making good use of their available proactive time when engaged in a community generated call. Average Self-Initiated Activity All police service calls are not responded to equally in terms of urgency, speed or Matrix Consulting Group Page 11

14 resources. Typically agencies will develop and utilize a call prioritization system to manage field resources. The priority classification system is described below: Priority 1 High Priority Response (In progress calls; family fight; 911 callunknown nature; possible mentally ill person). Priority 2 Priority Response (burglary or robbery alarm; suspicious vehicle, person or circumstances; disturbance). Priority 3 Routine Response (loud noise or music; property damage accident; patrol check). Priority 4 Routine Response (petty theft; meet person in lobby; auto burglary). Priority 5 Delayed Response Low Priority Incident (barking dog; misc. info.). The CAD data provided from the County did not have a call priority listed for the community-generated calls for service. During interviews it was learned that dispatchers defer to the Sergeants to prioritize calls and assign a deputy. Deputies are unable to see stacked calls on their mobile data terminal (MDT) and must rely on the Sergeant to determine the highest priority call in the stack. This process should be replaced by developing a call priority system similar to the one above, which would allow dispatch personnel to assign calls to patrol deputies by priority. The following table shows the most common community generated calls for service in Shenandoah County. Calls for Service by Type SCSO Type Count % of Total Suspicious Person % Assist Citizen % Animal Case % Alarm % Disturbance % Traffic Complaint % Domestic Dispute % Larceny % Civil Matter % Mutual Aid % % Motor Vehicle Collision % Matrix Consulting Group Page 12

15 Fraud % Welfare Check % Vandalism % Other 2, % Total 7, % As shown above (highlighted) several of the most common call types responded to by deputies would be classified as a priority 1 or priority 2 call. (2.2) Call for Service Response Times While not directly an element in our methodology, the measurement of response time is a common and useful element in understanding the service delivery picture, including the adequacy of field resources and their effectiveness. During interviews the issues of lengthy response times and calls stacking were raised several times. The following table shows the percentage of calls for service that were dispatched and responded to within various time ranges. The Call Processing Time is the time from receipt of the call until a deputy is dispatched. Travel Time is from the time the call is dispatched until the arrival of the first deputy on scene. Total Response time is the time the call is received in dispatch until the arrival of the deputy and is often viewed by the caller as the true response time. Response Time Breakdown by Category 2012 Time in Minutes Response Time Category Call Processing % Travel Time % Total Response Time % 0:00 0: % % % 1:00 1:59 1, % % % 2:00 2:59 1, % % % 3:00 3: % % % 4:00 4: % % % 5:00 5: % % % 6:00 6: % % % 7:00 7: % % % 8:00 9: % % % 10:00 14: % % % 15:00 19: % % % Matrix Consulting Group Page 13

16 20:00 29: % % 1, % 30: % % 1, % No Time Recorded N/A N/A 1, %* 1, %* Total Number 7, % 5, % 5, % * No arrival time recorded in CAD. May have been disregarded prior to arrival. Removed from total As this table shows, SCSO units are responding to community-generated calls for service within 5 minutes to 9.88% of calls, within 10 minutes to 28.63% of the calls, within 15 minutes to 44.93% of the calls, within 20 minutes to 58.73% of the calls and over 20 minutes to the remaining 41.27% of the calls. The long call-processing times and overall response times indicate that the number of deputies on duty is lower than the number required to provide immediate and rapid response to emergency situations in Shenandoah County. (2.3) Call for Service Handling Times An important element in our patrol staffing analysis relates to call for service handling time the elapsed time between the deputy being dispatched and the completion of service for that call. The calculations for the call handling times showed that the average time a deputy took to complete a call for service was 59.1 minutes for the primary deputy. This is longer than the typical call handling time experienced by the project team, but is largely due to the long travel times associated with call response in Shenandoah County. # of CFS Average Call Handling Time 7, minutes Deputies also respond as backup units to assist the primary deputy on many calls for service. The CAD system used by the SCSO captures the number of calls where deputies respond as a back-up Officer and also the amount of time deputies Matrix Consulting Group Page 14

17 spend as a back-up Officer. The CAD data showed that there was a 61% back-up rate to calls for service in This means that an average of 1.61 Officers responded to each call for service in This average backup rate is near the back up rate the project team has seen in other departments. The project team uses an average time for the back-up Officer of 75% of the primary deputy s call handling time in Shenandoah this equals 44.3 minutes. (2.4) Analytical Elements Compiled The table, below, shows each of the time elements described in this report relating to the time spent by deputies responding to citizen generated calls for service: Factor in Call For Service Handling Time How Data Was Determined Benchmark SCSO Time Required Primary Unit Handling Time (dispatch to clear) Benchmark based on MCG experience. Data based on calendar 2012 calls for service minutes/call 59.1 minutes/call Average Back-up Units per Call for Service Average Time Back-up Unit(s) at Scene per Call Average Time All Units at Scene Report Writing Time Report Writing Calls for Service Allocation Jail Run Time Calls for Service Allocation derived from CAD data. Benchmark based on MCG experience. Data based on calendar 2012 CAD data. Benchmark based on MCG national experience of 50 ~75% of Primary Unit Time at scene. Data based on sampling indicates units spend approximately 75% of total primary unit time at scene. Sum of Primary and Average Back-up. Benchmark data based on other departments and SCSO interviews. Benchmark based on MCG national experience. Based on 2012 SCSO # of Report written. Based on 534 arrests allocated to each calls for service units/call 0.61 units/call minutes/call 44.3 minutes/call 45: min/call min/report 45 min/report 25%-50% of CFS will have report. 50 minutes per booking 26.1 min/call 7.56 min/call TOTAL FIELD TIME DEDICATED PER CALL FOR SERVICE Mins / Call Matrix Consulting Group Page 15

18 As shown above, the project team determined that the average handling time per call was minutes from January 1, 2012 to December 31, This includes time spent by all units and includes travel time, on-scene time, arrest time, and reporting writing time. (2.5) Deputy Availability The second important workload element is the amount of time available for field personnel. The table, below, provides the calculation of the net availability of patrol deputies together with the source of the data or assumption utilized. The project team defines net availability as the number of hours that a deputy is available to perform key roles and responsibilities after the impact of leaves and administrative responsibilities have been subtracted from gross scheduled hours. Calendar Year 2012 Est. Hours/ Patrol Deputy Gross Hours Scheduled 2,080 Payroll Source Use of Leave (i.e., vacation, sick, holiday) Time Sheet Total Unavailable Hours After Leave Above Calcs Net Hours Worked 1,825.5 Above Calcs % Annual Availability 87.7% Above Calcs Hours Lost (meals, briefing, fueling 1.5 hours/avail shift 211 Interview Training 96 Training Data Court 24 Interviews Reports 196 Interviews Arrests 534 Arrest Data Total Available Hours Per Year 1,242 Above Calcs % Net Annual Availability 59.7% Above Calcs The table, above, shows that the average patrol deputy in the SCSO is available for work in the field 1,242 hours during CY The points, below, expand on several key issues identified in the table: Matrix Consulting Group Page 16

19 The calculations related to patrol deputies time sheets shows that they are available on average 1,826 hours annually after all leave categories have been accounted for. This is equivalent to approximately 88% of the time. This includes the impact of the recorded leave types on the time sheets (vacation, sick, holiday, comp time, funeral, family, and overtime comp). The project team made a number of hypothesis regarding the impacts of administrative responsibilities, court, training as well as time off factors associated with meals, etc based on interviews and observations. These suppositions are described below: - Meals and Breaks were assumed to take a total of 45 minutes per shift actually worked (i.e., after regular days off, leave, training, meetings, and court time were accounted for) per deputy. This assumption was based on bargaining agreements. - Shift Briefing, Fueling, Shift Checks was observed and is implicit to take 45 minutes per shift actually worked per officer. - Training time was based on data provided by the department. Data indicates an average of 96 hours annually. Typically, training is scheduled for 8-hour blocks on overlap days. - Court is assumed to take 24 hours per year of on-duty time. This is in addition to overtime court time, not performed during on-duty hours. The next section describes how the preceding workload elements and deputy availability factors are utilized to evaluate patrol staffing and field deployment issues. 4. ANALYSIS OF PROACTIVE TIME LEVELS INDICATES THAT PERSONNEL EXPERIENCE VARIED LEVELS OF PROACTIVITY. This section provides the Matrix Consulting Group s analysis of proactive time calculation related to the SCSO patrol services. (1) Proactive Time Targeting The Matrix Consulting Group developed an analysis of proactive time to assist in the evaluation of current patrol deployment and determine staff resource allocation and, ultimately, likely staff requirements. The concept of proactive time is very important in law enforcement it is the amount of time available to field deployed deputies after Matrix Consulting Group Page 17

20 handling community generated calls for service and related workloads. The concept of Reactive (and Proactive) time is widely acknowledged by various established bodies, including the International Association of Chiefs of Police, Northwestern Universities Police Allocation Model, etc. The following points underline the importance of this: If field personnel are committed to calls for service response a large proportion of the time and have little unobligated time, they have little capability to undertake self-initiated activity, impact the root causes of crime and quality of life issues, or to work closely with citizens of the community. Field personnel with little uncommitted time find it difficult to produce response times that are within community expectations. This is particularly problematic for emergency responses where life is potentially endangered or property severely jeopardized. Police agencies that have developed a problem-oriented or community policing program based on effective use of proactive time typically have an average range of 40% - 45% uncommitted time, but can reach up to 50% or higher dependent upon the unique operating circumstances of the law enforcement agency. (2) Proactive Time Calculation The sections that follow show hourly proactive time levels and overall proactive time based on these deployment strategies. (2.1) Proactive Time Levels Calls for Service Workload by Hour/Day. Based on the data provided for 2012, the Matrix Consulting Group developed a table, below, showing the amount of time dedicated to handling community-generated calls for service by hour and by day of week. The data is founded on the previously noted minutes average handling time for a call for service. Matrix Consulting Group Page 18

21 Total (Average) Minutes Required to Handle Community Generated Calls for Service Workload Time/Day Sun Mon Tue Wed Thu Fri Sat (2.2) Proactive Time Analysis Indicates SCSO Current Patrol Operations Have Varied Levels of Proactive Time Available. The following table shows the amount of proactive time calculated based upon the modeling exercise: Matrix Consulting Group Page 19

22 Proactive Time Levels Based Upon SCSO Scheduled Deployment Levels Time/Day Sun Mon Tue Wed Thu Fri Sat AVERAGE % 48% 56% 56% 42% 60% 37% 43% % 64% 62% 62% 46% 69% 29% 50% % 75% 77% 77% 65% 69% 50% 69% % 83% 73% 73% 81% 71% 56% 71% % 85% 73% 58% 83% 64% 71% 71% % 67% 83% 75% 79% 69% 64% 71% % 83% 88% 90% 81% 88% 85% 85% % 74% 73% 73% 76% 59% 62% 71% % 21% 33% 31% 42% 27% 17% 30% % 16% 6% 35% 4% 35% -17% 14% % 19% -11% 35% 17% 25% -21% 10% % -13% 12% -8% 12% 6% -15% -4% % -19% 25% -25% -6% 25% -17% -4% % -19% 23% -4% -17% 2% -21% -2% % 24% 32% 35% 39% 40% 1% 27% % 35% 32% 18% 32% 22% 18% 24% % 5% 3% -2% -2% 0% 24% 7% % 12% 12% -4% 12% 18% 27% 16% % 8% 4% 33% 3% 22% 16% 14% % 40% 3% 27% 3% 7% 26% 19% % 58% 51% 55% 67% 42% 54% 55% % 58% 60% 56% 54% 52% 55% 58% % 69% 60% 65% 65% 55% 47% 62% % 75% 82% 79% 81% 54% 58% 72% Average 37% 40% 42% 41% 40% 41% 29% 39% Avg. 58% Avg. 75% Avg. 13% Avg. 11% Avg. 14% Avg. 62% The following is noted regarding the data in the table. Overall proactive time for the 24-hour period is calculated at 39% Slightly below the proactive targets noted previously. Proactive time levels are below the desirable time of 50% in the majority of time blocks. Proactive time levels typically fall below desired levels between 8:00 am to 8:00 pm. The proactive time model does not include the time available for Sergeants, as it is the opinion of the Matrix Consulting Group that these positions need to remain available to mentor deputies, provide supervision on critical calls and handle issues as they arise on the shift. Matrix Consulting Group Page 20

23 Based on proactive time modeling, there are not adequate SCSO Patrol resources available to perform the most effective policing in the County. Proactivity levels are often very high in rural areas with low call volumes, but this is not the case in Shenandoah County. 6. THE PATROL STAFFING FORMULA INDICATES ADDITIONAL DEPUTIES ARE REQUIRED TO MAINTAIN EFFECTIVE PROACTIVE AVAILABILITY IN SHENANDOAH COUNTY. This section provides our calculation of the total patrol deputy staffing needs for the SCSO based on community-generated activity and common proactivity targets. These calculations incorporate deputy availability as well as additional personnel needed to cover turnover (i.e., extra time needed to cover staff losses and time needed to recruit, hire, and train new deputies). 1. COMMUNITY GENERATED WORKLOADS SCSO Patrol Deputy Staffing Needs Calls for service (citizen only) 7,208 Handling Time 14, Back up Rate 0.61 Handling Time for Back Up Units (estimated, based on 75% of initial units) Total Time for Back Up Unit CFS Handling 1, Number of Reports 4,056 Total Time for Report Writing (Target of 45 Minute Average) 3,042 Number of CFS Arrests / Bookings (Actual, based on 2011 data) 534 Time to Process CFS Arrests / Bookings (Estimated) 1.7 Total Time for CFS Arrests / Bookings TOTAL TIME TO HANDLE COMMUNITY GENERATED WORKLOADS 19, TIME FOR PREVENTIVE PATROL AND DEPUTY INITIATED ACTIVITY 50% of Available Time 19, % of Available Time 16, % of Available Time 13, TOTAL TIME REQUIRED FOR REACTIVE AND PROACTIVE ACTIVITIES 50% of Available Time 39, % of Available Time 36, % of Available Time 33, Matrix Consulting Group Page 21

24 4. PER DEPUTY AVAILABILITY Net hours worked each year 1, PATROL DEPUTY REQUIREMENTS 50% of Available Time 27 45% of Available Time 24 40% of Available Time 22 As the table shows, based solely of call for service workloads and common proactivity targets, would require more deputies to deliver service to the community. In the following section we will examine the option of utilizing a different scheduling approach than is currently utilized by the Shenandoah County Sheriff. 7. THERE ARE OPPORTUNITIES TO IMPROVE THE UTILIZATION OF PATROL DEPUTIES. units. This section provides the project team s analysis of overall utilization of patrol (1) The Impact of Shift Schedules on Staff Utilization in Patrol. Various patrol shift schedules can be implemented in an agency, from a five-day / 8-hour work week, to the four-day / 10-hour work week currently in place for patrol at the SCSO, to a 12-hour deployment schedule. There are several advantages associated with the Department s current 10-hour shift schedule: A 4/10 work schedule s primary benefits are the additional days off provided to staff compared to an 8-hour schedule. The ability to have overlap coverage during peak workloads as well as to better accommodate shift briefing. The ability to have an additional staff contingent available during overlap days for training or other activity. There are several disadvantages associated with a 10-hour shift schedule, including the following: Matrix Consulting Group Page 22

25 All shift schedules that are not divisible into 24 hours in a day suffer from cost inefficiencies. A 4/10 plan requires three shift deployments totaling 30 hours of paid time to cover a 24-hour day. The daily overlaps often do not coincide with peak call loads and, as a result, excessive numbers of deputies are deployed compared to the work requirements. The weekly overlap does not always get utilized for training or other priority activity and, as a result, excessive numbers of officers are deployed compared to the work requirements. The current deployment in the SCSO results in no shift supervision from 3:00 am 7:00 am. The cost and service disadvantages of the 10-hour schedule outweigh the advantages for the Shenandoah County and the Department should move to a 12-hour shifting schedule. For comparative purposes, the table below takes a targeted staffing level average of four (4) officers, 24 hours a day, and shows the number of staff required for each of the common patrol work schedules. Shift Schedule Comparison Shift Schedule 8-Hour 10-Hour 12-Hour Staffing Target Teams / Day Staff Hours / Day (Shift Schedule x Teams) Shift Efficiency 100.0% 125.0% 100.0% Staff Hours / Year (Actual x Staff Hours x 365 Days per Year) 35,040 43,800 35,040 FTE 1,826 Net Hours per Position Current Regular Patrol FTE Authorization Matrix Consulting Group Page 23

26 Variance (4) (8) (4) While an 8-hour schedule would be difficult to implement (because of the loss of one day off per week compared to the 10 plan), a 12-hour shift should be evaluated for the Shenandoah County Sheriff s Office. This shift schedule has been successfully implemented in many places around the country. As this illustrates, it would require the SCSO to have a total allocation of 20 (rounding up 19.1) patrol deputies in order to achieve a minimum staffing level of four (4) regular Patrol deputies per hour using a 12-hour shift, as opposed to 24 deputies to provide the same staffing levels if the 10 hour shift is utilized. With respect to 12-hour shift programs, there are a wide variety of potential schedules that can be implemented, ranging from alternating time blocks off (3 days-on, 3 days-off), to flipped schedules 3 days on, 4 days off then 4 days on, 3 days off to what is known as the Pitman schedule (2-on, 2-off, 3-on, 2-off, 2-on 3-off), to frequently rotating shifts (regular movement between Day and Night shift). (2) The 12-Hour Shift Schedules Have Some Perceived Health Advantages The 12-hour deployment schedule that is receiving increasing popularity with many law enforcement agencies is a scheduling option worth considering. There has also been much interest relating to the potential impact of extended work schedules on the physical and mental well being of those employees subject to lengthier shifts. A recent study performed by Lincoln, Nebraska, included an officer survey of the Police patrol regarding potential issues associated with its implementation of a 3/12 schedule, focused on many health related questions. The survey noted: Matrix Consulting Group Page 24

27 100% of the respondents felt they were able to perform all police functions on the 3/12 schedule. 87% disagreed that they had become so tired during a shift that they were unable to function normally or safely. When asked about how rested they felt after returning from days off, 82% of officers said they were very rested, 9% percent felt somewhat rested, and an additional 9% found no difference from previous scheduling alternatives. When queried about their ability to work additional hours beyond a 12-hour shift, 42% felt there was no difference, 40% said they were somewhat less able to work, and 18% were significantly less able to work overtime. Positive mood and disposition changes had been noticed by the families of 77% of the respondents. 1 In effect, a very recent survey of a large metropolitan police department found overall positive physical as well as mental health benefits associated with implementing a 12-hour shift program. It should be noted, however, that the survey respondents were pre-disposed to a 12-hour schedule, as they were voluntarily participating in a pilot study. Nevertheless, the results are statistically favorable with regard to this program. (3) A 12-Hour Shift Program Would Operate on a Four Platoon Program with Start Times at 0700 Times for the Day Shift and 1900 for the Night Shift. Additionally a Power Shift would be deployed from 1100 to 2300 Because of the variety of 12-hour shift options, the project team has developed a 12-hour shift program within the following conceptual framework: Similar to the present 4/10 shift schedules, the same number of patrol deputies are scheduled throughout the week, regardless of day of week. The proposed 12-hour schedule will actually take advantage of the additional 104 hours per annum available to each staff member per year. In 12-hour shift programs, staff are identified to work 2,184 hours per year as opposed to 2,080 hours per year for a typical employee. Different organizations compensate the additional 104 hours differently, ranging from providing compensatory time off (thus not benefiting from additional work hours) to straight-time pay to other 1 All results found in the August, 2008 article from The Police Chief magazine. Matrix Consulting Group Page 25

28 recompense approaches. It is our recommendation that Shenandoah County elect to pay straight time for the actual hours worked by officers and use the additional hours for training time to offset the loss of the overlap day currently used for training. Using this approach will allow the current SWAT training to occur in eight (8) hour blocks each month. Paid straight time will result in an additional $29,882 in salary costs for the straight time paid as opposed to the need for an additional $215,787 in salary costs to stay on the 10-hour plan. Backfilling vacancies during the SWAT training will require approximately $7,500, as three personnel will be needed to cover for personnel engaged in training. Patrol personnel will also be required to attend 40 hours of State required training every two years or 20 hours annually. The budgetary impact of this training will amount to approximately $12,970 if officers are brought in during off hours to attend mandated training. The impact of like start times for patrol personnel will improve agency briefings and these briefings should include short training topics on an ongoing basis to ensure deputy training levels remain high. It should be noted that from a purely operational standpoint, 12-hour schedules that have rotating days off whether 3/3 programs, 4/4 programs, the Pitman Schedule, etc. will always have the same field deployment profiles, as one-half of the field resources are always scheduled for duty and one-half are off. It is those 12-hour schedules that have fixed days off (e.g., always Saturday/Sunday/Monday/Tuesday, with monthly make-up days) and thus different resources deployed based upon the day of week that require special resource planning and balancing. Given that the present culture at the SCSO is to have the same level of patrol resources scheduled for deployment regardless of day (except overlap day), this concept will be carried forward in the development of optional 12-hour schedules. The project team recommends the following 12-hour shift schedule to ensure employees are equally distributed and have equal numbers of days off. For illustrative purposes a two-week schedule is depicted. Matrix Consulting Group Page 26

29 Sunday Monday Tuesday Wednesday Thursday Friday Saturday Day / Night / Power B Day / Night / Power A Day / Night / Power A Day / Night / Power B Day / Night / Power A Day / Night / Power B Day / Night / Power B Day / Night / Power A Day / Night / Power B Day / Night / Power A Day / Night / Power A Day / Night / Power B Day / Night / Power A Day / Night / Power B As shown over the two-week period, each deputy will work the same days and have the same days off on a rotating basis. The twelve-hour shifting schedule would result in the following staffing levels by position to ensure adequate service levels and deputy safety is maintained by the SCSO. Proposed 12-hour Shift Staffing Levels Position Total Total / Shift Minimum / Shift Change Lieutenant Sergeant Patrol Deputy The Patrol Section would continue to be under the direction of a Captain. There would be one Lieutenant assigned to manage the Patrol Section due to the limited span of currently experienced using two (2) Lieutenants. A Sergeant would be assigned to each shift with the exception of the Power Shift as the on-duty day or night Sergeant would supervise this deputy. This would improve operations, as a supervisor would be available on a 24-hour basis. The shifts would have the following deputy staffing levels, with minimum staffing levels of three (3) patrol deputies on the night shift and four (4) patrol deputies on the day shift. The Power Shift would be staffed with one (1) deputy with no minimum staffing. The following table illustrates the improvement in available proactive time for SCSO patrol deputies utilizing the above staffing plan at minimum staffing levels of three (3) patrol deputies on the night shift and four (4) patrol deputies on the day shift. Matrix Consulting Group Page 27

30 Proactive Time Levels Based on 12-Hour Staffing Plan Time/Day Sun Mon Tue Wed Thu Fri Sat AVERAGE % 65% 71% 71% 62% 73% 58% 62% % 76% 74% 74% 64% 80% 53% 67% % 83% 85% 85% 77% 80% 67% 80% % 88% 82% 82% 87% 81% 71% 81% % 90% 82% 72% 88% 76% 81% 81% % 78% 88% 83% 86% 80% 76% 81% % 77% 83% 87% 74% 83% 80% 80% % 81% 80% 80% 82% 69% 71% 78% % 61% 66% 65% 71% 64% 59% 65% % 58% 53% 67% 52% 67% 41% 57% % 60% 44% 67% 59% 63% 40% 55% % 43% 56% 46% 56% 53% 42% 48% % 40% 63% 38% 47% 63% 41% 48% % 40% 62% 48% 41% 51% 40% 49% % 43% 49% 51% 54% 55% 26% 45% % 51% 49% 39% 49% 41% 39% 43% % 29% 27% 23% 23% 25% 43% 30% % 34% 34% 22% 34% 39% 45% 37% % 31% 28% 50% 27% 41% 37% 36% % 40% 3% 27% 3% 7% 26% 19% % 30% 18% 26% 45% 4% 23% 25% % 30% 33% 27% 23% 21% 26% 29% % 48% 33% 42% 42% 24% 12% 37% % 58% 71% 65% 68% 23% 30% 53% Average 54% 56% 56% 56% 55% 53% 47% 54% Avg. 72% Avg. 80% Avg. 56% Avg. 46% Avg. 31% Avg. 36% As shown above the proactive time available to patrol deputies is greatly improved when minimum staffing levels of three (3) on the night shift and four (4) on the day shift are incorporated into the 12-hour staffing plan. The hours of still have proactive levels well below the minimum desired level of 40%. The following table illustrates the proactive time available to patrol deputies when the Power Shift is staffed from each day. Day and night shifts maintain Matrix Consulting Group Page 28

31 the current minimum staffing as shown above, but there is one deputy above minimum staffing from Proactive Time Levels Based on 12-Hour Staffing Plan Time/Day Sun Mon Tue Wed Thu Fri Sat AVERAGE % 65% 71% 71% 62% 73% 58% 62% % 76% 74% 74% 64% 80% 53% 67% % 83% 85% 85% 77% 80% 67% 80% % 88% 82% 82% 87% 81% 71% 81% % 90% 82% 72% 88% 76% 81% 81% % 78% 88% 83% 86% 80% 76% 81% % 77% 83% 87% 74% 83% 80% 80% % 81% 80% 80% 82% 69% 71% 78% % 61% 66% 65% 71% 64% 59% 65% % 58% 53% 67% 52% 67% 41% 57% % 60% 44% 67% 59% 63% 40% 55% % 55% 65% 57% 65% 62% 54% 59% % 52% 70% 50% 58% 70% 53% 59% % 52% 69% 59% 53% 61% 52% 59% % 55% 59% 61% 63% 64% 41% 56% % 61% 59% 51% 59% 53% 51% 54% % 43% 42% 39% 39% 40% 55% 44% % 47% 47% 38% 47% 51% 56% 50% % 45% 42% 60% 42% 53% 49% 49% % 55% 27% 45% 27% 30% 44% 40% % 47% 39% 44% 59% 28% 42% 44% % 47% 50% 45% 42% 40% 44% 47% % 61% 50% 57% 57% 43% 34% 53% % 68% 78% 74% 76% 42% 47% 65% Average 60% 63% 63% 63% 62% 61% 55% 61% Avg. 72% Avg. 80% Avg. 59% Avg. 57% Avg. 45% Avg. 52% As shown above the incorporation of a Power Shift brings all the weekly averages at 40% or higher proactive time. While the agency has higher proactive times during the night shift, for the reasons of improving response times and ensuring the availability of adequate back up for deputy safety, it is the opinion of the project team that this is the right staffing decision for Shenandoah County. Matrix Consulting Group Page 29

32 Recommendation: Change Patrol Section Operations from the current 10-hour shift schedule to a 12-hour shift schedule. Recommendation: Implement the Power Shift into the 12-hour shift schedule. Recommendation: Increase the staffing in the Patrol Section by 4 deputies from 16 to 20 to ensure adequate proactive time is available to deputies, while improving deputy safety. (Cost of $215,787 in annual salary and benefits). Recommendation: Develop a plan for how deputies are expected to perform during their reactive and available time while on patrol. Recommendation: Reduce the current staffing of Sergeants from 5 to 4 upon implementation of the 12-hour shifts. Annual savings of $59,819 in salary and benefit costs. Recommendation: Eliminate one (1) Patrol Lieutenant position upon filling the vacant Patrol Division Captain position. Annual savings of $67,005 in salary and benefit costs. Matrix Consulting Group Page 30

33 3. ANALYSIS OF THE COMMUNICATIONS SECTION This Chapter of the report focuses on the analysis of the Shenandoah County Emergency Communications Center, which is managed as an operational section of the Shenandoah County Fire and Rescue Department. 1. EMERGENCY COMMUNICATIONS SERVICES PROVIDED IN SHENANDOAH COUNTY. The evaluation of dispatcher staffing needs in the Communications Section is directly related to the workload level, shift schedule and dispatchers availability. These facts are addressed are discussed in the following sections of this chapter. (1) Dispatch Unit Staffing and Work Schedule. Information regarding the Shenandoah County Emergency Communications Center (ECC) was obtained through interviews with personnel, electronic data from the CAD system and other documents provided by Center staff. A Section Chief, who reports directly to the Chief of the Shenandoah County Fire and Rescue Department, manages the center. The Center also employs a CAD Administrator, who also reports directly to the Fire Chief. The ECC is staffed 24 hours a day and 365 days a year with four Shift Supervisors, four Lead Dispatchers and eight Communication Officers. The organization uses four (4) teams to staff two, 12-hour shifts daily. The shifts run from 6:00 AM to 6:00 PM and 6:00 PM to 6:00 AM. All shifts have four staff assigned, including one Shift Supervisor, one Lead Dispatcher and two Communication Officers. Due to responsibilities for dispatching all public safety agencies in the County, the ECC maintains minimum shift staffing of two staff members. While four positions are Matrix Consulting Group Page 31

34 assigned to each shift, vacancies, training and compensated absences make that difficult to achieve. The staffing plan of the ECC is to have a minimum of three personnel scheduled to work each shift. This allows one unplanned absence before the section is at minimum staffing levels. All of the ECC staff members are trained in emergency call handling techniques and are able to process a wide array of emergencies that occur within and around Shenandoah County. Some of the staff members are certified as an Emergency Medical Technician; all staff members are certified for dispatch, emergency medical dispatch, Virginia Criminal Information Network (VCIN) access and maintenance, and are also trained in CPR. All staff members complete a 16-week training program after hire with sections on CAD, phones, radio and 911 operations. The staff members also complete a two-week basic dispatcher academy course for Fire, Rescue, and Law Enforcement Telecommunications to receive their certification. The ECC receives incoming calls via four (4) 911 land lines, eight (8) 911 wireless lines, four (4) public service phone lines, two (2) police department phone lines, one (1) overflow phone line, and one (1) VOIP line (total of 20 phone lines). The ECC has access to 18 radio channels including six (6) active law enforcement including SIRS (State Police), eight (8) fire / rescue radio channels (active), two (2) fire channels (monitor only), one (1) Virginia Department of Transportation (VDOT) radio channel (monitor only) and one (1) school bus radio channel (monitor only). The plan of organization for the Communications Section is presented below. Matrix Consulting Group Page 32

35 SCFR Chief CAD Administrator (1) Communications Section Chief (1) Shift Supervisor (1) Shift Supervisor (1) Shift Supervisor (1) Shift Supervisor (1) Lead Dispatcher (1) Lead Dispatcher (1) Lead Dispatcher (1) Lead Dispatcher (1) Communication Officer (1) Communication Officer (1) Communication Officer (1) Communication Officer (1) Communication Officer (1) Communication Officer (1) Communication Officer (1) Communication Officer (1) As shown the Communications Section Chief reports directly to the Fire Chief. This type of reporting relationship is not typical when a regional dispatch service is being provided as it tends to cause the service to be more focused on the agency it reports to, in this case fire. To alleviate this perception, the County may want to consider making the Emergency Communications section a stand-alone Department with the Section Chief serving as the Department head. No other changes in staffing would be required to achieve this. The table below shows the scheduled deployment of dispatching staff based on data provided by the SCECC. Matrix Consulting Group Page 33

36 Actual Staffing Levels (Scheduled) SCECC Hour Sun Mon Tue Wed Thu Fri Sat Hourly Avg. 0: : : : : : : : : : : : : : : : : : : : : : : : Hourly Avg The current scheduled staffing level varies from a low of 3.0 staff per hour to a high of 4.0 staff per hour, for an average deployment of 3.71 staff per hour per day. (2) Dispatch Minimums Have Been Established. The actual Dispatch staffing levels are always lower than the authorized levels, due to vacancies, employees off on leaves and away at training. To provide sufficient staff to meet a basic service level, the ECC has established minimum staffing levels. Minimum staffing levels take in account the minimum number of staff required to handle calls for safety to protect public safety personnel and citizens. Matrix Consulting Group Page 34

37 : 2 Public Safety Dispatchers : 2 Public Safety Dispatchers Whenever on duty staffing falls below the level listed above, management will schedule overtime or call in part-time personnel to fill the vacancy. (3) The Dispatch Section Has Experienced High Turnover Over the Past Three Years. The number of employees separating from an agency in a year impacts dispatch units across the United States. Nationally, attrition rates for dispatchers are typically 10% 20% annually, and in Shenandoah County over the last three years dispatcher turnover has been over 18%. The recruiting, hiring and training process for Dispatchers and Supervisors often takes over a year from the time an opening occurs, until the completion of their basic training program. The time it takes to hire and train new employees significantly impacts the ability to staff Dispatch Units without requiring a significant amount of overtime. The SCECC has been utilizing part-time dispatchers to help mitigate the effect of turnover on the overtime budget. (4) Dispatch Leave Hours Are Comparably Low. The number of hours of leave used by employees also impacts staffing levels. Dispatchers are scheduled to work 2,080 hours in a year but the hours actually worked are less, due to the number of leave hours taken by employees as well as training hours. The project team obtained personnel leave and training hours data from staff for FY The following table summarizes the availability of staff, after deducting the average leave hours used during the year training hours. Matrix Consulting Group Page 35

38 FY Hours Scheduled Annual Work Hours 2,190 Average Leave Usage -273 Average Training -24 Total Unavailable Hours 297 Net Work Hours 1,893 % Annual Availability 86.4% Communications Section staff averaged 273 hours of leave used during FY This is below the hour range commonly seen by the project team. Communications Section employees attended an average of 24 in-service training hours to meet departmental and POST training requirements. In total, a Shenandoah County Communications Section employee is working on the Dispatch floor approximately 1,893 straight time hours per year. (5) Methodologies Utilized to Analyze Workloads. There are several approaches that can be used to assess the staffing needs of a public safety communications unit. These approaches include the following: Methods that are based on comparisons with other agencies. These methods are inconsistent because the workload, technology and service level requirements vary tremendously among agencies. Methods that are based on staffing a targeted number of fixed posts allocated on a functional basis (e.g., call taker, law enforcement radio, etc.) are unsound, because they do not tie staffing to actual workload. Analysis of workload based on the number of community generated calls for service and on the number of incoming telephone calls processed and the number of radio dispatches. The Matrix Consulting Group used a quantitative process for assessing communications staffing needs based on actual workloads in the Communications Section based on the number of calls for service in the County. Matrix Consulting Group Page 36

39 Communication Section workload expressed in the number of calls for service provides a straightforward and relatively simple method to determine required staffing levels. The tasks performed by a communications unit are relatively constant from one agency to another. These tasks include: Answering emergency, non-emergency and administrative telephone calls (wireless and land line), Processing community generated calls for service (a request for service from an outside source) and Officer initiated incidents, Radio transmissions, computer queries, related to the calls and Officer initiated incidents, Outbound telephone calls, and a variety of other information handling and processing. These workload tasks could be analyzed and calculated separately, however, few agencies are able to track the time spent on each of these tasks. The time to accomplish all of the above tasks is factored into the calculation of the total time required to handle a community generated call for service. These assumptions are critical because while most public safety agencies count community generated calls for service, many do not count, or are not able to count, other dispatching tasks, such as the number of radio transmissions and other activities. The Matrix Consulting Group utilized the APCO Project RETAINS staffing model to convert the time required for all of these other tasks, including the dispatching time related to Officer initiated activity, into total minutes of workload which are expressed on a per call for service basis. The workload standards utilized in this study include: The minimum staffing component of fixed positions was allocated at eight (8) positions. Matrix Consulting Group Page 37

40 The remaining eight (8) positions were allocated to being volume-influenced and would indicate if additional staffing were required above minimum staffing to handle the number and duration of call processing activities. These time standards are then applied to the staffing calculation on the Project RETAINS website to yield the workload and staffing requirements of the SCECC. To understand workload variations, calls and dispatch Unit workloads are calculated on a per hour basis. Finally, an allowance needs to be made regarding the proportion of time desirable to have a dispatcher actually involved in call handling and/or radio transmissions. There are several reasons why direct task allocation should not be 100%, including the following: Dispatch Units that have high utilization levels tend to "burn-out" staff and have high levels of sick leave usage and employee turnover. Dispatch Units that have high utilization levels experience "queuing" problems in which responses to incoming calls and transmissions are delayed because of the number of calls and units handled. Quality begins to suffer because dispatchers are not able to accurately track field units and cut calls and radio transmissions short. This impacts service to field units and the public. Therefore, the project team used a task-loading factor of 30 minutes of actual call/radio activity per dispatch employee per hour (50% utilization target) as a basis for the calculations on the Project RETAINS website. The basis of this assumption is that one-half of every working hour should be used for direct communications tasks (i.e., telephone calls, CAD case entries, radio dispatches, computer related queries). Remaining minutes per hour can be dedicated to administrative, follow-up tasks or other duties. This 30-minute factor is divided into the hourly workload in the Dispatch Unit. (6) Dispatch Workloads Were Analyzed. Matrix Consulting Group Page 38

41 The project team obtained call for service workload data from the CAD system for the 2012 calendar year. The call for service data included the CAD event number, date/time of initial call, location of the call, time incident entered into CAD, time unit was dispatched, primary unit dispatched, and type of call. (6.1) Dispatch Workload By Hour and Day of Week for All Calls. The project team calculated the workload for the SCECC a total of 96,607 events processed into the CAD system. Of these events 34,077 required the center to dispatch a unit to the call for service. The following table shows the number of events requiring dispatcher activity by time of day and day of week for SCECC. All Calls for Service 2012 Hour Sun Mon Tue Wed Thu Fri Sat Total Hourly Avg. 0: : : : : : : : : : : : : : : : : : : : : : : : Total 12,618 13,838 13,723 14,743 14,428 14,138 13,119 96, Matrix Consulting Group Page 39

42 The SCECC was required to enter 96,607 events into the CAD system in FY 2012, approximately 265 per day or per hour. (6.2) Staffing Requirements Based on APCO Project RETAINS Based on this number of activities performed by the Dispatch Section personnel and a 50% employee utilization factor, the following table shows the staffing that is required in the SCCC to handle the workload. Staffing needs based on Project RETAINS Staffing Model Position FTE Required Current Staffing Difference Center Manager Supervisor Lead Dispatcher Dispatcher Total As shown above, the analysis indicates that the recommended staff allocation given the existing demand for services and current operating practices is 19 FTE. This is greater than the current staffing allocation of the Dispatch Section by 2.0 FTE. It is the recommendation of the project team that the County of Shenandoah increase the staffing of the center by one (1) dispatcher during the daytime to improve service and assist with the administrative ancillary duties, which occur during this timeframe. Recommendation: The County should increase staffing of the Emergency Communication Center by 2 Dispatchers to improve service to the community and emergency service providers in Shenandoah County. Annual cost of $82,585 for salaries and benefits. Matrix Consulting Group Page 40

43 4. ANALYSIS OF THE COURT SERVICES SECTION 1. COURT SECURITY SERVICES PROVIDED IN SHENANDOAH COUNTY The Court Services Section reports to the Jail Division and is charged with providing officers to attend the courts within the jurisdiction when they are in session ( ). The Sheriff s Office is mandated under Virginia Code with providing for the security of the Courthouses and Courtrooms ( ). The Sheriff s Office is also charged with taking custody of all persons committed by the order of the courts. Shenandoah County had previously operated with co-located Circuit Court, General District Court and Juvenile and Domestic Relations Court in the same general location in downtown Woodstock. All courts had reasonable access to the Shenandoah County Jail for prisoner transport. The County has built a relatively new facility for the General District Court and the Juvenile and Domestic Relations Court at a location near the County Complex. Because of the distance, this new facility also has holding facilities on each of two floors designed for short-term use to support court operations. The multiple court locations will continue and the Court Services Section has adjusted its operations to accommodate and cover all courts as charged under Virginia Code. The Court Services Section operates under the direction of a Commander and Unit Leader. The function uses a mix of full-time and part-time Court Deputies (Bailiffs) to meet the varying scheduling needs of the individual courts and the building security as a whole. The function also uses part-time Transport Officers to move prisoners between the courts and the County Jail. Matrix Consulting Group Page 41

44 The exhibit below provides a summary of the staff reporting directly to the Court Services Section to support the operation of the courts in Shenandoah County. The exhibit also summarizes staff key responsibilities. Function Position Bgt Act Key Roles and Responsibilities Court Support and Direct Service Court Services Section Commander 1 1 Manages sworn staff members during assigned shift in all aspects of courthouse security and transport operations. Develops staff member work schedules to ensure adequate staffing levels are maintained for safety of court participants and staff members. Provide training and support to sworn staff members. Court Support and Direct Service Court Deputy 3 FT 2.25 PT 3 FT 2.25 PT Patrol the grounds and interior of both courthouses. Screen individuals entering courthouses for weapons and other prohibited items. Provide physical presence in courtrooms when in session to support security of judiciary and citizens. Monitor prisoners in courthouses in holding facilities awaiting court or transport back to jail. Supervise movement of prisoners in the courthouses. Provide assistance to citizens visiting courthouse and direct them to appropriate offices / services as needed. Court Support and Direct Service Transport Officer 2.5 PT 2.5 PT Transport prisoners from all parts of the Commonwealth to the required court in Shenandoah County. Provide prisoner transport to and from hospitals, doctor appointments, mental institutions and the Virginia Department of Corrections. Provide assistance in the courthouses as needed to cover vacancies or compensated absences. Serve civil papers as assigned. 2. WORKLOAD OF THE COURT SERVICES UNIT This section illustrates the workload of the Court Services Unit and the various Courts it serves. (1) Cases Handled by the Courts in Shenandoah County. The demand on the Courts and resulting service demands on the Court Services Section are directly linked to the volume of court cases and hearings being conducted in Matrix Consulting Group Page 42

45 the Courts. The following tables illustrate the caseload and hearing volumes in 2011 and Circuit Court Civil Cases Commenced Civil Cases Concluded Criminal Cases Commenced 672 1,019 Criminal Cases Concluded Total 2,049 2,489 As shown in the table above, there was an increase of 51.6% in criminal case commenced in 2012 as compared with The number of criminal cases concluded also showed an increase, but it was smaller at 6.3%. The Civil cases commenced decreased by 3.4%, but the civil cases concluded increased by 21.5%. According to interviews conducted with Judges and Court Services personnel the increase in Criminal Cases commenced was unexpected and had an impact on both caseload and building attendance. The following table illustrates the hearings held in the District Court in 2011 and General District Hearings Held Type Criminal 4,945 5,567 Traffic 8,423 7,821 Civil 3,340 3,311 Total 16,708 16,699 Matrix Consulting Group Page 43

46 As shown above, the number of hearings held in the General District Court decreased by 0.1% in 2012 when compared with The Court also experienced an increase in Criminal Hearings, but saw a reduction in both Traffic and Civil Hearings. It is important to note that Hearings held serves as a measure of the level of effort in that they reflect work associated with cases beyond the number of cases themselves, as any case may have multiple Hearings, which will drive building attendance and court security workload. The final table illustrates the number of hearings held in the Juvenile and Domestic Relations in 2011 and Juvenile & Domestic Relations Hearings Held Type Juvenile 3,499 3,826 Domestic Relations 2,558 2,834 Total 6,057 6,660 As shown above, the number of Hearings increased 10% from 2011 to The Juvenile and Domestic Relations Court is closed to the public as a matter of policy and practice. However, due to the emotionally charged nature and contentious manner of these cases require a court security presence of two or more officers. (2) Factors Influencing The Workload in Court Services Section The workload of the Court Services Section is driven by two factors: securing the courthouses; and, providing security to the individual courts when in session. Each courthouse has a controlled point of entry manned by Court Services Section staff when the buildings are open. The assigned staff members provide a consistent level of security screening regardless of whether a court is in session in the facility. Each Matrix Consulting Group Page 44

47 entrance is equipped with a walk-through magnetometer to detect metallic objects. The General District Court House (includes Juvenile and Domestic Relations Court) is also equipped with a belt-fed x-ray scanner for bags and other parcels. Due to staffing constraints, this device is not currently used at any time. 3. THERE ARE OPPORTUNITIES TO REVISE THE COURTHOUSE SECURITY APPROACH ON DAYS WHEN THE COURTS ARE NOT IN SESSION. The Court Service Section staff members provide security services to support court operations at the two courthouse facilities. These services include: External security Entrance monitoring and staffing the security checkpoint Courtroom security Prisoner transport to the courthouses Prisoner transport within the facilities Holding area management. Additional services provided by the Court Services Section include civil paper service; and providing bank escorts to Court and County staff members. Current operational requirements exceed the current staff capacity to deliver services; some stations are not staffed consistently or at all throughout the year. The overall layout and inherent security features (locking doors, ballistic glass etc.) of the District Court Building make it unnecessary to secure the front entrance on days when the Courts are not in session. Recommendation: Assign two staff members to provide entrance monitoring and screening during peak AM and PM traffic times and one staff member to monitor the entrance for public presence and provide information and assistance as needed by the public during low traffic times and on days when Court is not being held at the District Courthouse. Matrix Consulting Group Page 45

48 4. PROVIDE VISUAL CONFIRMATION OF BAILIFF ACTIVITIES IN THE SECURE HOLDING CELL AREAS OF THE GENERAL DISTRICT COURTHOUSE. The General District Courthouse is equipped with holding cells on each of two floors to service the respective courtrooms. These areas are physically distinct from the courtrooms and access through dedicated locked doors. Bailiffs are charges with moving prisoners to and from the respective courtrooms from the holding facility. There is a control room with video monitoring capability on each floor in the holding areas. Currently there are no personnel assigned to staff the video monitoring rooms. This requires a bailiff to remain in the holding areas with prisoners. Staffing this position would allow the area to be monitored remotely while prisoners are being kept in a holding cell. The remote video monitoring will provide adequate prisoner and public safety as additional deputies can be called if an incident occurs in the holding area. The monitoring and recording of bailiff activity also ensures any issues or complaints that occur related to the treatment of prisoners are recorded and can be dealt with appropriately. While absolute caseloads have increased in each of the three courts to varying degrees, these counts do not factor in the amount of time used by the courts to manage and adjudicate these cases. The Court Services Section is responsible for securing each court when it is in session, regardless of the time required. The following table provides some information on the hours each court has been in session each year. Total Hours Court is in Session All Courts Change Court Hours Hours % Circuit Court 1,968 2, % Matrix Consulting Group Page 46

49 Juvenile & Domestic Court 4,051 5,061 1, % General District Court 3,749 4, % Total 9,768 11,813 2, % While the number of hearings has increased from 0% - 10% in the courts, the total time allocated to serving the caseload has increase from 18% to almost 25% in the courts between 2011 an PROVIDE ADDITIONAL RESOURCES TO SUPPORT ADDITIONAL COURTROOM SECURITY WHEN COURTS ARE IN SESSION. The Court Service Section staff members provide security services to support court operations at the two courthouse facilities. With the increase in court caseloads and absolute time that courts are in session servicing this caseload, the resources available for courtroom security are stretched leading to other operating impacts. The direct solution is to add staff resources in the most cost effective manner. Increasing the number of part-time staff for courtroom security will provide both additional hours of coverage as well as staff member scheduling flexibility to meet the changing court security needs. The increase in court service hours between 2011 and 2012 totals approximately 2,045 hours, or approximately one full-time equivalent. Using part-time staff will allow coverage of this number of hours without impacts from compensated absences that would require additional full-time staff members. Recommendation: Allocate an additional $39,920 to cover part-time salaries for the purposes of providing additional court security. We would recommend the addition of 4 part-time personnel to cover the 2,045 hours of staffing required. Recommendation: Staff the positions in the monitoring rooms when Court is in session and prisoners are being held in the holding area. Matrix Consulting Group Page 47

50 6. THERE ARE OPPORTUNITIES TO CLARIFY BAILIFF PRESENCE REQUIREMENTS IN THE COURTROOMS. The disposition of court security in the respective courtrooms is a subject of discussion between individual members of the Judiciary and the Sheriff s Office. According to the Virginia Code this is an appropriate method of determining courtroom security needs. The process, however, does make the determination of adequate courtroom security variable and dependent on the perceived needs of the presiding Judge, typically being based on the nature of the cases being heard and the current caseload being serviced. The Sheriff has a defined interest in meeting his Code requirements and providing security to all court participants including visitors and observers. All courts in session are required to have a minimum of one Bailiff assigned to the courtroom; additional bailiffs are at the discretion of the presiding Judge. It is acceptable, according to the Code, for the Bailiff to momentarily leave the courtroom in order to move prisoners to or from the holding area. During our interviews with the Judges as part of the study, the predominant opinion is that one Bailiff is adequate to serve the needs related to safeguarding Judges on most occasions, but there are times in high-risk cases where a second Bailiff should be staffed in the courtroom. Recommendation: Work with the individual Judges to determine staffing needs by case type and schedule to provide this base level of security. Recommendation: Conduct weekly meetings with Judges to allow appropriate actions to be taken related to perceived courtroom security shortcomings they may note in the upcoming schedule. 7. RETAIN EXISTING TRANSPORT STAFF CAPACITY UNTIL RELATIVE ROLES AND RESPONSIBILITIES FOR TRANSPORT ARE CLARIFIED WITH REGIONAL JAIL. Matrix Consulting Group Page 48

51 The Court Services Section also provides transport services using part-time staff members to move prisoners between the respective courthouses and the court locations. While the operating details are still under development, the general understanding is that the Regional Jail will provide transport of prisoners to and from the respective court facilities. Some of the existing part-time staff will be needed for transport in the future to include prisoner extraditions, mental health evaluations, picking prisoners up from other jurisdictions, etc. However, given the uncertainties associated with the Regional Jail launch, the cost effectiveness of the part-time staff members, the other duties that they perform and the relative difficulty in recruiting them, the Sheriff s Office may be best served by not taking action in this staffing area at this time. It is possible that some of these positions may be retained to offset costs associated with providing adequate security in the Courthouses as described above. Recommendation: Retain the current staffing levels in prisoner transport until relative roles and responsibilities related to the Regional Jail are clearly identified and the prisoner transport functions are fully developed. Matrix Consulting Group Page 49

52 5. ANALYSIS OF ANIMAL CONTROL SERVICES This chapter of the report discusses the animal control services provided in Shenandoah County by the Sheriff s Office. 1. ANIMAL CONTROL SERVICES PROVIDED BY THE SHENANDOAH COUNTY SHERIFF S OFFICE. The Shenandoah County Sheriff s Office provides animal control services to the County as a general public service as well as to comply with specific Commonwealth statutes and County ordinances. The County is the sole provider of these services to the incorporated and unincorporated areas of the county. The function is currently housed in the Shenandoah County Sheriff s Office. Two full-time Animal Control Officer (ACO) positions have been funded by the County and managed through the Sheriff s Department Patrol Services Division, Support Services Section. While these positions do not require a sworn officer, one position is currently filled with a sworn officer following a transfer. The Animal Control function provides the following mandated services: Enforce Commonwealth dangerous dog and livestock management laws; and, Enforce County ordinances related to required animal licensing and vaccinations. The Animal Control function provides services beyond its basic mandates under Commonwealth Statutes and County ordinances. The function provides all animal control services throughout the County. 2. WORKLOAD FACTORS IN ANIMAL CONTROL SERVICES Matrix Consulting Group Page 50

53 Number of Responders COUNTY OF SHENANDOAH, VIRGINIA This section describes the workload related to providing animal control services in Shenandoah County. A single unit can resolve most animal control calls, but some calls for service require a second responder to help to secure the scene and capture the animal. Since animal control issues primarily involve interaction between an animal and the public, these calls occur primarily during the day with calls tapering off throughout the evening hours. The following chart presents the Animal Control calls for service response by hour of day as well as the number of responders Hours of the Day Additional First As shown above, the peak hours for animal calls are between 0800 and 1700, with little to no activity between 2300 and The Animal Control Officers are assigned to either A or B Squad and work 10- hour shifts from 8:00 am 6:00 pm seven days per week. Friday is the overlap day, which is also the day typically set by the Court for animal cases. The following chart Matrix Consulting Group Page 51

54 Number of Responders COUNTY OF SHENANDOAH, VIRGINIA illustrates Animal Control calls for service by day of the week as well as the number of responders Additional First As shown above, the majority of the animal control calls occur during the workweek with fewer activities on the weekends. The Animal Control Officers each carry a pager and alternate 7-days on / 7-days off for on-call responsibility. This allows for a delayed response to issues as they arise after hours, which cannot be held until the regular work hours of the Animal Control Officers. 3. THE CURRENT SHIFT SCHEDULE PROVIDES COVERAGE FOR OVER 75% OF ALL ANIMAL CALLS. The County received 1,540 unduplicated animal calls for service during calendar year Approximately 76.7% of these unduplicated calls came in during the scheduled work hours for the two Animal Control Officers. Responses to animal calls for service at other times would require the response of an on-duty deputy, the assigned Matrix Consulting Group Page 52

55 off-duty ACO or the call to be held until an ACO returned to duty. The response of an off-duty animal control officer requires additional time as well as incurs an overtime expense for the County. The following table illustrates the calls per hour and day for animal control calls in Shenandoah County. Hour Sun Mon Tue Wed Thu Fri Sat Total Average 0: : : : : : : : : : : : : : : : : : : : : : : : Total As shown above, the majority of animal calls occur Monday Friday between the hours of 7:00 am and 5:00 pm. The following table illustrates the average call-handling time for animal related calls in Shenandoah County. As shown the total average time required to handle animal calls is approximately 1 hour 11 minutes. Matrix Consulting Group Page 53

56 Average 2012 Call Handling for Animal Calls Call Processing Travel Time Scene Time Total 14:28 20:16 36:06 1:10:50 As shown above, many animal calls require more than a single unit response to mitigate the situation. According to CY2012 records there were an average of 1.24 responders to each animal call in Shenandoah County. This brings the final average staff hours required to handle an animal related call to approximately 1 hour 30 minutes per call. Based on this information any two-hour time block averaging over.62 calls, there would be insufficient staffing to provide adequate animal control coverage. This analysis indicated that to adequately cover the call demand and additional 1,820 of staffing should be dedicated to animal control services during the workweek (9:00 am 4:00 pm). The project team recommends this be accomplished through hiring part-time personnel to staff these hours and fill in when the full time ACO is on scheduled leave. Recommendation: Continue with the current schedule of providing animal control services. Recommendation: Staff a part time ACO positions to provide coverage M-F during peak animal call times (9:00 am to 4:00 pm) and during scheduled ACO vacancies. Estimated annual salary cost of $29,636. Matrix Consulting Group Page 54

57 6. ANALYSIS OF THE JAIL SECTION While the Jail Section was not a focus of this study, it was important to analyze this function in order to provide options for whether the County Sheriff should provide temporary detention and transport services when the Regional Jail Facility becomes operational. 1. OVERVIEW OF THE JAIL SECTION. Virginia Code provides for specific duties and responsibilities of the Office of the County Sheriff. The Jail Section of the Shenandoah County Sheriff s Office is assigned with fulfilling responsibilities in two of these areas; court security and the county jail. The Sheriff has custody of and is charged with the duty of feeding and caring for all prisoners confined in the county jail. All individuals arrested in the County appear before a magistrate to determine whether their case will be held over for court disposition and whether a bond provision is offered to the accused. The Sheriff is responsible for the well-being of all individuals arrested in the County by the Sheriff s Office, State Police, Federal agencies or any town in the County pursuant to the magistrate s direction and pending their appearance before the respective courts. The Sheriff s Office is responsible for transport for court appearances and related needs (medical, psychological). The Sheriff is also charged with housing prisoners for periods of detention as may be established by the courts. Shenandoah County also supports judicial administration with a work release program managed by the Sheriff. Matrix Consulting Group Page 55

58 The Sheriff also has responsibility for providing security services to support court operations of the Circuit Court, General District Courts and the Juvenile Court. With the recent construction of a new District Court and Juvenile Court facility, this now requires support at two locations in the Town of Woodstock. Sheriff s Office staff members in the Court Services Section provide general building security and operate a controlled point of entrance at both buildings. The unit also provides security in the individual courtrooms as mandated by Virginia Code. The objective is to station one Bailiff in each courtroom when the court is in session. The unit is responsible for the care of all prisoners appearing before a court and manages associated holding areas as well as areas for meetings between attorneys and their detained clients. The plan of organization for the Sheriff s Office Jail Division is presented below. Matrix Consulting Group Page 56

59 Sheriff Chief Deputy Jail Division Chief (1) Court Services Section Commander (1) Jail Section Commander (2) Court Services Unit Leader (1) Vacant Jail Squad Leader (2) Court Deputy (3 FT) (2.25 PT) Transport Officer (2.5 PT) Jail Deputy (13 FT) (1.5 PT) LIDS Technician (1) Work Release Coordinator (1) Jail Nurse (1) Jail Cook (2) Support Staff (1 FT) (0.25 PT) The exhibit below provides a summary of the staff reporting directly to the Jail Division Chief to support the operation of the Shenandoah County Jail. The exhibit also summarizes staff key responsibilities. Under Virginia Code, the Sheriff shall be the Matrix Consulting Group Page 57

60 keeper of the jail unless the locality or county is a member of a jail or jail farm board or regional jail authority ( ). Function Position Bgt Act Key Roles and Responsibilities Division Management Office Management and Leadership Jail Support and Direct Service Jail Division Chief Jail Section Commander Jail Squad Leader 1 1 Serves as the overall manager of the Court and Jail Sections. Reports to the Major Directly Supervisors the Jail and Court section commanders. Serves as the liaison for the SCSO for issues related to jail and court services. 1 1 Manages and coordinates all jail services in the County to meet objectives set by the County Sheriff and the Courts. Manages and coordinates all court security services in the County to meet objectives set by the County Sheriff and the Courts. Represents SCSO jail and court security operations in regional and state law enforcement work efforts and projects. Coordinates and evaluates top Section and Unit command staff. Coordinates and evaluates support staff members and efforts. Performs routine administrative functions in the dayto-day management of the Jail Section. 2 2 Manages sworn and civilian support staff members during assigned shift in all aspects of jail operations. Develops staff member work schedules to ensure adequate staffing levels are maintained for safety of prisoners and staff members. Provide training and support to sworn staff members. Jail Support and Direct Service Jail Deputy 13 FT 1.5 PT 13 FT 1.5 PT Maintain control of assigned post during shift including required documentation and safety inspections. Control prisoner population and account for prisoners on and off assigned post. Control prisoner movement. Support investigations of possible criminal activities in jail. Attend court as necessary to support jail operations. Respond to emergency situations. Matrix Consulting Group Page 58

61 Function Position Bgt Act Key Roles and Responsibilities Jail Support and Direct Service LIDS Technician 1 1 Local Inmate Data System (LIDS) Technician responsible for accuracy of information gathered for LIDS reporting. Assists with maintenance of inmate records and file maintenance on each inmate at the jail. Completes required LIDS monthly reporting. Assures accuracy of LIDS data to support jail efforts to receive a satisfactory LIDS audit. Jail Support and Direct Service Work Release Coordinator 1 1 Manage inmates with short-term sentences for nonviolent offenses through alternative program. Screen candidates for eligibility. Conduct random drug / alcohol screens. Visits work sites to ensure that the participant is conforming to all Sheriff s Office program requirements. Jail Support and Direct Service Jail Support and Direct Service Jail Nurse 1 1 Provides basic medical services to prisoners. Coordinates external medical services when necessary. May conduct physical assessments, administer medications, support court ordered DNA blood withdrawal and emergency medical treatment. Jail Cook 2 2 Coordinate and provide three meals daily to jail prisoners in compliance with the standards set by the Virginia Department of Corrections and the Virginia Department of Health. Provide meals for prisoners with special dietary needs in consultation with Jail Nurse. Manage kitchen operations, sanitation and commodity procurement. Jail Support and Direct Service Support Staff 1 FT.25 PT 1 FT.25 PT Provide administrative support services for jail operations. Support central Sheriff administrative operations with staffing study for deputies, processing civil papers, administering vehicle maintenance, and administering time records and accounting for all Sheriff s Office staff members. 2. JAIL OPERATIONS IN SHENANDOAH COUNTY. The Jail Section provides jail facility and related services as mandated in the Virginia Code. The existing facility operates on three floors, increasing the staff required for the operation. Each floor is comprised of a front side with cells and a Matrix Consulting Group Page 59

62 back side with a day area. Two inmates per cell are housed in 12 cells on each floor yielding 24 beds plus room for two prisoners in isolation cells. There is also a booking area and booking cell on the ground floor. Showers are located on the top floor and ground floor but not in the basement, requiring movement of prisoners from the basement when showers are needed. There is a dorm setting for trustees and a separate holding area set up as a dorm for work-release inmates. The work-release area is physically separated with locked doors to ensure work-release inmates do not interact with other inmates in the facility. The Virginia Department of Corrections (DOC) regulations on jail staffing require one deputy for three inmates to meet rated capacity and one deputy for five inmates to meet over capacity rating. The Jail currently houses approximately 75 inmates. The facility was constructed to handle 52 but the facility is now double-bunked to bring the total capacity to 104. The facility capacity has peaked in the past at approximately 100 inmates. This was driven by State practices and the maintenance of prisoners in County Jails instead of transferring to State facilities due to State budget reductions. The Jail operates with staff members assigned to two operating squads (A and B) working on alternating schedules (2-2-3). Jail staff members are on 12-hour shifts; 6:00 AM to 6:00 PM and 6:00 PM to 6:00 AM. Average staffing for Jail Deputies is six staff members on during the Day Shift and three staff members on the Night Shift. The Jail receives additional services from support staff working Monday through Friday on 8- hour schedules including the Work Release Coordinator, LIDS Coordinator and the Nurse. Office space is also provided for these support staff members in the Jail. The Matrix Consulting Group Page 60

63 Jail provides three hot meals each day from its on-site kitchen facility and using two fulltime Cooks supplemented with trustee inmate labor to prepare and deliver meals. Jail staff members are also responsible for transports from the facility. In 2011, this effort included 118 transports requiring the services of 160 Deputies, 445 hours to transport prisoners approximately 8,200 miles. Medical transports accounted for a relatively high number of these trips at 71 but are local, accounting for 735 miles in total, or just over 10 miles for each trip on average. Temporary Detention Orders (TDOs) accounted for about one-half of the number of trips with 36 transports but accounted for more that 6,800 miles travelled for an average trip of 190 miles. The current staffing level assigned to the Jail Section is minimally acceptable. The potential for less than three staff members available in the evening for an operation spanning three separate floors should be avoided, particularly for a post operation. The support staffing levels are appropriate by type and number. 3. ASSUMPTIONS RELATED TO PRISONER TRANSPORTS AND THE REGIONAL JAIL This section provides the assumptions by the project team related to costs associated with transporting prisoners to the RSW Regional Jail Facility beginning in The opening of the RSW Regional Jail Facility will have profound impacts on the operation of the Sheriff as well as other municipal police forces in Shenandoah County. Under the regional jail approach, law enforcement agencies will now be required to transport prisoners to the Regional Jail facility. This is an approximate 51-mile roundtrip from the existing Shenandoah County Jail. Matrix Consulting Group Page 61

64 (1) Calculation of Per Trip Costs to the Regional Jail. The opening of the Regional Jail facility will have an impact on operating costs for the Sheriff s Office. While staffing reductions will occur related to operating the County Jail, there will be increases in mileage on agency vehicles and staff time related to the transport and booking of prisoners. The following table summarizes the assumptions related to transporting prisoners to the Regional Jail. Regional Jail Transport Cost Assumptions Factor Cost Assumptions Round-trip (Miles) 51 $35.70 $0.70 Total Cost per mile (AAA) Average speed (MPH) 40 Estimated average Drive Time (Hours) $57.38 Wait Time (Hours) $22.50 Estimated average Processing Time (Hours) $22.50 Estimated average Hourly Deputy Cost $45.00 Hourly rate with benefits and supplies. Total (Time / Cost) $ Per Trip Amount As shown above, the assumption for direct cost related to a deputy transporting a prisoner to the Regional Jail facility is $ per trip. (2) Calculation of Costs for a Temporary Holding Facility. The project team also developed assumptions related to the costs associated with the Sheriff s Office providing a temporary holding facility using one floor of the Matrix Consulting Group Page 62

65 existing jail and transport services being provided to the Regional Jail facility. The following table provides estimate costs related to the operation of a temporary holding facility. Holding Facility Cost Estimates Account FY 12 Budget Close Jail Holding Facility Base Factor Estimated 1100 Salaries (Regular) $953,112 ($953,112) $953, $333, Salaries (Part-Time) $92,758 ($92,758) $92, $32, FICA $80,009 ($80,009) $80, $28, VRS $142,921 ($142,921) $142, $50, Hospitalization Insurance $184,457 ($184,457) $184, $64, Group Life Insurance $9,531 ($9,531) $9, $3, Unemployment Insurance $2,946 ($2,946) $2, $1, Worker's Compensation Insurance $15,090 ($15,090) $15, $5, Contractual Services $9,344 ($9,344) $9, $3, Repairs & Maintenance $1,600 $1,600 $1, $ Maintenance & Service Contract $9,614 $9,614 $9, $4, Water & Sewer $30,849 $7,712 $30, $10, Telecommunications $6,407 $641 $6, $2, Miscellaneous Expenses $125 $125 $ $ Office Supplies $7,509 ($7,509) $7, $1, Food Supplies $128,309 ($128,309) $128, $12, Laundry / Housekeeping Supplies $4,427 ($4,427) $4, $ Linen Supplies $701 ($701) $ $ Uniforms and Wearing Apparel $3,224 ($3,224) $3, $1, Furniture & Fixtures $700 ($700) $ $ EDP Equipment $1,850 ($1,850) $1, $1, Repairs & Maintenance $8,500 $2,125 $8, $4,250 Total $1,780,821 ($1,701,909) $1,780,821 $562,454 As shown above, the estimated annual costs to operate a temporary holding facility is approximately $562,500. This calculation is based on existing operating costs Matrix Consulting Group Page 63

66 and assumption that a single floor of the existing jail would be utilized as the temporary holding facility. 3. OPTIONS RELATED TO THE TRANSPORTATION OF PRISONERS. This section of the report discusses the three options available related to the transportation of prisoners upon the commencement of operations at the Regional Jail facility. The project team identified three options available to the County in regards to transporting and/or holding arrested persons after the Regional Jail becomes operational. Option 1 assumes that the existing jail closes and all arrestees are transported to the Regional Jail facility at the time of arrest by the agency making the arrest. For costing purposes we estimated 600 annual arrests by SCSO deputies. Option 2 creates a Holding Facility to minimize transport issues related to arrestees who are typically held for a short amount of time and ultimately bond out in a few hours or the same day as arrested being transported to the temporary holding facility and other prisoners being transported to the Regional Jail at the time of arrest. Option 3 presents a variation of Option 2 in which all arrestees are brought to the temporary holding facility and prisoners are transported in a pooled format as opposed to single prisoner transfers. Arrestees held for a short amount of time would not be transported to the Regional Jail. Option 4 would present the viability for opening a temporary holding facility during limited hours when the number arrests indicated that cost efficiencies could be gained by limiting the hours of operation of the center. Analysis of arrest data did not indicate any peak arrest times where this was a viable option. The highest average hourly booking of prisoners was.257 prisoners per hour. The following table identifies the estimated costs related to each of three options available to Shenandoah County when the Regional Jail becomes operational and the Matrix Consulting Group Page 64

67 cost differences for single transports as compared with the temporary holding facility options. Prisoner Transportation Options Option 1 Option 2 Option 3 Holding Holding Facility w/ Pooled Close Jail Facility Difference Trips Difference Operating Costs $0 $562,454 ($562,454) $562,454 ($562,454) Transport Costs $82,848 $117,640 ($34,792) $39,213 $43,635 Total Cost $82,848 $680,094 ($597,246) $601,667 ($518,819) Lost Time (Deputy Hours) 1,365 1,938 1, ,455 As shown above, the most cost effective approach for the County is to cease jail operations entirely and require all agencies to transport arrested persons to the Regional Jail. The net result of this effort is an understanding of the relative costs associated with the three options. Option 1 is the least expensive option, but results in the most lost time for deputies expressed as hours due to transporting prisoners. The additional staff discussed in the Patrol Section staffing options would ensure adequate coverage for this lost time. Option 2 would create a holding facility using our derived holding facility operating cost presented earlier. There are estimated to be fewer transport costs in Option 2, as prisoners with an estimated hold time of less than 12 hours will not require transport to the Regional Jail to be processed and booked. Option 3 looks at a variation of Option 2 where the County operates a holding facility but also pools transport of prisoners in order to limit the number of trips required to the Regional Jail. Matrix Consulting Group Page 65

68 There is a negative impact in terms of the service currently provided by the Sheriff to municipal law enforcement agencies in the County by housing all prisoners in the centrally located Woodstock County Jail, but the increased costs associated with operating a temporary holding facility are not justified for the approximately 850 arrests made by the agencies located a greater distance from the Regional Jail as opposed to Woodstock. Based on the transport figures presented earlier, but increasing the average mileage to 75 miles roundtrip for municipal arrest transports the total impact on municipal budgets is approximately $110,000, far less than the $649,000 to $728,000 related to operating a temporary holding facility in Woodstock. Recommendation: Cease jail operations upon the opening of the Regional Jail Facility and require arresting agencies to transport prisoners directly to the Regional Jail. Savings of $1,714,571 compared to FY2013 Jail Section budget. Cost avoidance of $566,869 compared to operating a temporary holding facility. Matrix Consulting Group Page 66

69 DESCRIPTIVE PROFILE OF THE SHERIFF S OFFICE The pages, which follow, provide a Descriptive Profile of the Shenandoah County Sheriff s Office (SCSO) and County Emergency Communications Center (ECC). The purpose of the Descriptive Profile is to accurately document the project team s understanding of the organization, distribution of staff by unit and function, and key assigned responsibilities of staff. Data contained in the Profile was reviewed by the County and served as the factual basis for conducting this Study. This profile is organized into subsequent chapters that describe: The Office of the Sheriff Patrol Division Jail Division Profile of the Communications Section (Fire & Rescue) The staffing numbers used are the authorized positions as of December OFFICE OF THE SHERIFF (1) Introduction The Sheriff has overall responsibility for all Office functions and has direct responsibility for managing the overall operations of the Department. The Sheriff also has direct responsibility for each of the operating divisions compiled in this profile with the exception of the emergency communications, which reports to the County Fire Chief. (2) Organizational Structure The plan of organization for the Sheriff s Office is presented below. Matrix Consulting Group Page 67

70 Sheriff (1) Accrediation Mgr. (1 PT) IT Manager (1 PT) Office Manager (1) Support Staff (3 FT 1 PT) Chief Deputy Major (1) (3) Staffing The exhibit below provides a summary of the staff reporting directly to the Sheriff, by function and classification, and also summarizes their key roles and responsibilities. Note: the columns Bgt means budgeted/authorized SCSO positions; the column Act means the number of positions in each classification that are filled as of December, Function Position Bgt Act Key Roles and Responsibilities Office Management and Leadership Sheriff 1 1 Manages and coordinates all police services in the County to meet objectives set by the County Manager and Board of Supervisors. Provides overall leadership and guidance of Office personnel and police services. Provides overall management and administration of the Office; coordinates resources. Represents the Office to the public; develops relationships with business and neighborhood leaders. Develops and maintains good working relationships with other managers in the County and peers in the regional and state law enforcement community. Represents SCSO in regional and state law enforcement work efforts and projects. Coordinates and evaluates top Office managers. Performs routine administrative functions in the day-today management of the Office. Matrix Consulting Group Page 68

71 Function Position Bgt Act Key Roles and Responsibilities Major (Chief Deputy) 1 1 Direct reports include Patrol Captain (vacant), Investigations Captain, Jail Captain, Office Manager, Accreditation Manager and IT (indirect). Handles day-to-day administrative issues for the agency including personnel issues, budget development, purchasing oversight and management of non-dmv grants. Coordinates media relations for agency. Determines information releasable under FOIA. Office Manager 2. PATROL DIVISION (1) Introduction Serves as the agency training coordinator. 1 1 Reconciles Department budget against monthly reports provided by County. Handles basic finance and purchasing responsibilities for the Department. Ensures accurate timekeeping of hours worked for payroll purposes. Supervises the front office staff, which provides the following functions: telephone, walk in customers, data entry, report entry, warrant entry and fingerprints. Collect fees for civil papers and fingerprints. The work groups in the Patrol Division are managed by the Patrol Division Captain position, which is currently vacant. This position reports to the Major and supervises the Patrol Lieutenants. This Division is responsible for providing police patrol, response to calls for service, preliminary investigation of crime, traffic safety services, investigation of major injury traffic collisions, neighborhood resource services and a variety of other police services for all reporting areas in the County. (2) Organizational Structure The plan of organization for the Patrol Division is presented below. Matrix Consulting Group Page 69

72 Patrol Division Chief Captain (vacant) Patrol Section Squad Commander Lieutenant (2) Support Services Section Unit Leader Lieutenant (1) Patrol Services Section Squad Leader Sergeant (5) Support Services Section Unit Leader Sergeant (1) Patrol Deputy SRO/Dare Civil Processor Animal Control Officer Auxiliary Deputy (3) Staffing The table below provides a summary of the staff reporting to the Patrol Division Captain, by function and classification, and also summarizes their key roles and responsibilities. Matrix Consulting Group Page 70

73 Function Position Bgt Act Key Roles and Responsibilities Division Management Division Supervision Captain 1 0 Position is currently vacant Manages operations of patrol and support services. Direct reports are patrol and support services lieutenants. Serves as the liaison between the SCSO and the County EOC. Serves as the liaison between the SCSO and other law enforcement agencies. Serves as the Commander for tactical operations, search and rescue. Serves as the coordinator of the agency Field Training Program. Lieutenant Patrol (2) Support (1) 3 3 Lieutenants are responsible for the management of their assigned division. Patrol Sergeants are direct reports to the patrol Lieutenants. Patrol Lieutenants handle a variety of administrative duties including: scheduling, reviewing FTO packets, reviewing reports, handling complaints, conducting internal investigations, conducting squad training, attending neighborhood watch meetings, attending monthly staff meetings, conducting hiring interviews, taking disciplinary action, serving as incident commanders on critical incidents and serving as shift supervisor in the absence of the squad sergeant. Direct reports for the Support Services Lieutenant are SRO Sergeant, ACO s, Civil Process (PT), Property Room custodian (PT) and Auxiliary Program Coordinators (2 retirees). Support Services Lieutenant handles a variety of administrative duties for support services including: fleet, radio and purchasing related to fleet and radios. Also ensures towing contractors meet established requirements. Sergeant 6 6 Work 10-hour shifts (7a-5p and 5p-3a). Provide direct supervision of personnel assigned to their squad. Review reports written by subordinates. Take corrective action as required for personnel assigned to their squad. Answer community generated calls for service. Oversee career development of subordinates. Distribute watch lists for extra patrols, property checks and construction sites. Review stacked calls in Mobile Data Terminal (MDT) and determine priority for deputy response. Division Staff Matrix Consulting Group Page 71

74 Function Position Bgt Act Key Roles and Responsibilities Deputies Perform routine patrol of Shenandoah County. Enforce Commonwealth and local laws. Make arrests and investigate incidents. Prepare reports on assigned incidents. Transport prisoners. Provide assistance to the public and other departmental and County personnel as required. Dare/SRO 5 5 Responsible for the safety and security of staff, students and visitors at assigned campus. Provide instruction at schools on crime prevention and community policing topics. Conduct daily patrol of school facilities. Respond to incidents on campus, make arrests, conduct investigations and serve warrants. Attend special events and programs. Work with parents and students to provide information and counseling as needed. Serve as liaison for the SCSO on assigned campus. Present a number of community programs including Neighborhood Watch, Project Lifesaver, TRIAD, etc. Animal Control Officer Civil Process (4) Summary of Operations 2 2 Enforce Commonwealth dangerous dog and livestock management laws. Enforce County ordinances related to required animal licensing and vaccinations. 2 2 Part-time positions in the agency. Serve papers to individuals when issued by the Court. The table below provides a brief summary the workload and service levels provided by the Field Services Division. Function Description of Services Workload and Service Levels Patrol Respond to calls for service and conduct proactive patrols and other selfinitiated activity. Identify and pro-actively respond to community issues & incidents. Deputies responded to 6,239 community generated calls for service in the County in CY Deputies performed 46,495 self-initiated activities in the County CY Deputies responded to 1,806 community-generated calls in the towns in CY Deputies performed 6,673 self-initiated activities in the towns in CY Matrix Consulting Group Page 72

75 Function Description of Services Workload and Service Levels Civil Process Animal Control Serve papers to individuals when issued by the Court. Handle all animal control responsibilities throughout County; no towns provide this service. Range of service includes domestic pets, exotic pets, wildlife, livestock (fencing issues). State law mandates action to address dangerous dog and livestock issues. County ordinance requires enforcement of animal licensing and vaccinations. Two full-time Animal Control Officers work 8-hour shifts Monday Friday; 7:00 AM 3:00 PM and 8:00 AM 4:00 PM. CAD records indicated there were 167 Civil papers served in the County in CY CAD records indicated there were 92 Civil papers served in the Towns in CY There were 1,540 animal calls in the County in CY 2012 (unduplicated) received by the County and the Towns. Approximately 66% of these unduplicated calls came in during the scheduled work hours of the Animal Control Unit. Revising the schedule to provide coverage on Saturday and Sunday during regular hours would increase The percentage of calls coming in during scheduled hours from 66% to 79%. During interviews there was concern expressed about long hold times from the time a call is received until a unit is available to dispatch and respond to the call. The practice in the Shenandoah County Sheriff s Office is for the supervisors to see all calls with deputies and other staff members in the field only able to view the most recent dispatched call. This approach is intended to ensure that all calls receive a timely response regardless of the timing of the call or its relative desirability. Based on relative priority and the time they are received, some calls may stack in the system and await a response. The following table displays information on the time between call creation and unit dispatch for all community generated call types in CY As shown, approximately 58% of calls delayed less than 4 minutes, 26% from 4 10 minutes and 16% longer than 10 minutes. When applied to animal calls only, approximately 30% of the animal calls in CY 2012 had a delay of more than 10 minutes between call creation and dispatch. Further analysis will be conducted to determine if call stacking is an issue for high priority or in progress calls. Matrix Consulting Group Page 73

76 County Community Generated Calls Percentage of all CGCS Call Creation to Dispatch <1 Minute % 1 Minute 1, % 2 Minutes 1, % 3 Minutes % 4 Minutes % 5 Minutes % 6 Minutes % 7 Minutes % 8 Minutes % 9 Minutes % Minutes % Minutes % > 60 Minutes % The Field units experience the highest percentage of calls between 7:00 am 10:00 pm. The following charts illustrate the community-generated calls for service in the County and in the towns for CY 2012 by hour of day County Community Calls by Hour CY Matrix Consulting Group Page 74