Municipal Consulting Services LLC
CITY OF COVINGTON, LA
EVALUATION OF THE POLICE AND
FIRE DEPARTMENTS
3999 Albert Drive Ann Arbor, MI, 48105 Phone: 734.904.4632 FAX: 260.350.0305
Municipal Consulting Services LLC
October 26, 2011
The Honorable Michael Cooper
Mayor
City of Covington
317 N. Jefferson Street
Covington, LA 70433
Dear Mayor Cooper:
We have completed the evaluation of the Police and Fire Departments for the City of Covington. This
review has included an analysis of operational and procedural practices, budgetary and staffing issues,
service levels and the full scope of responsibilities and activities performed by the two departments. This
final report contains the findings and conclusions resulting from this review and recommendations for
improvement.
Our study has been intended to identify every potential opportunity for cost savings and productivity
improvement within the departments. Like other municipalities across Louisiana and the country more
generally, the continuing economic malaise is limiting available tax revenues and in turn, creating
budgetary challenges. Our study results will hopefully provide the means to preemptively and rationally
address this situation for public safety services in Covington.
In reviewing the recommended actions contained in this report, we ask that you remain cognizant of the
following:
We have proceeded from the assumption that public safety service levels and response should
not be compromised. This point is reaffirmed throughout the study and is considered in
formulating suggested changes to operating systems or personnel levels.
In regard to the latter, we strongly suggest that to the extent possible, staff reductions be
achieved through attrition – as opposed to the elimination of an incumbent’s position. While the
City may choose to pursue a more immediate cost cutting approach, it has been our experience
that a planned program of attrition can serve to foster organizational acceptance for change and
in turn, assure a higher level of morale and performance.
Our recommendations include some that are envisioned for immediate implementation and
others that are longer-term. In this sense, we have attempted to fashion a “road map” for
continuing cost containment.
In some cases our recommended actions must be considered within the context of Civil Service
law. In these cases it will be necessary to implement changes within the legal parameters. We
have added our thoughts regarding where this might apply, and how it might be achieved.
3999 Albert Drive Ann Arbor, MI, 48105 Phone: 734.904.4632 FAX: 260.350.0305
The Honorable Michael Cooper
Mayor
Page 2
We appreciate the cooperation extended to us by employees of the Police and Fire Departments,
particularly Police Chief Richard Palmisano and Fire Chief Richard Badon. In all cases we found
employees of the Covington Police and Fire Departments to be cooperative, candid and willing to offer
suggestions for improving operations.
We have sincerely enjoyed this opportunity to work with the City of Covington. If you have questions
concerning this report, please do not hesitate to contact me at 734.904.4632.
Very truly yours,
Mark W. Nottley, Principal
Municipal Consulting Services LLC
CITY OF COVINGTON
EVALUATION OF THE POLICE AND FIRE DEPARTMENTS
Table of Contents
Section Page
I. Executive Summary I-1
II. Police Department Findings and Conclusions II-1
III. Police Department Recommendations for Improvement III-1
IV. Fire Department Findings and Conclusions IV-1
V. Fire Department Recommendations for Improvement V-1
Appendix A: Police Vehicle Inventory
Appendix B: Illustration of Fire Platoon Staffing and Kelly Days
SECTION I
EXECUTIVE SUMMARY
I - 1
SECTION I
EXECUTIVE SUMMARY
In this section of the report we include discussion of the backdrop for the study, project
objectives and approach, the methodology used in conducting the study and the
recommendations that have resulted. Each discussion point is presented separately below.
BACKDROP: OPERATING AND FINANCIAL OVERVIEW
The City of Covington is a full service municipality serving a permanent population of
approximately 9,000. The City serves as the parish seat for St. Tammany Parish and as such, has
a much larger daytime population, estimated at 25,000. Quality of life is high, and the citizenry
expects and receives high-quality, responsive municipal services. The City has traditionally met,
or exceeded these service expectations – including the provision of police and fire services.
In providing these services, the City has traditionally preferred autonomous service provision
focused exclusively on the City of Covington. On the police side, the Covington Police
Department has limited interaction with the Sheriff’s Department despite the geographic
proximity of the two operations. On the fire side, the Covington Fire Department has limited
interaction with neighboring Fire District 12 despite the geographic closeness of the station
houses and sometimes overlapping service areas. Essentially, the City of Covington has viewed
the city proper as a unique public service area and allocated resources accordingly.
This service model has served the community well but has also required a fairly significant
financial outlay. Police and fire services consume a large portion of the general fund budget. In
FY 2010, total audited expenditures were $5,434,302 or roughly 50% of total general fund
outlay. Much of this cost can be attributed to personnel-related expense. Both departments
require “round-the-clock” staffing – an expensive, but necessary operational characteristic.
In regard to expenditures, both departments have experienced significant increases in operating
budget over the prior five years. This is illustrated in Exhibits 1 and 2, which present historical
trends for Covington’s police and fire operating costs. As seen in the exhibits, costs accelerated
significantly in 2006 and are now maintained at much higher levels. In comparison to 2006
budgeted expenditure levels for police and fire services, 2011 costs are higher by 54% and 63%
respectively. These increases can be attributed to a number of upgrades including a significant
increase in personnel for Fire Department staffing, multiple police-related upgrades, pension cost
escalation and other factors.
I - 2
$0
$200,000
$400,000
$600,000
$800,000
$1,000,000
$1,200,000
$1,400,000
$1,600,000
2006 2007 2008 2009 2010 2011*
$0
$500,000
$1,000,000
$1,500,000
$2,000,000
$2,500,000
$3,000,000
$3,500,000
$4,000,000
2006 2007 2008 2009 2010 2011*
Exhibit 1
Covington Police Department
Historic and Estimated Expenses
*Estimated fiscal year-end
Source: City of Covington
Exhibit 2
Covington Fire Department
Historic and Estimated Expenses
*Estimated fiscal year-end
Source: City of Covington
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$11,808,281$11,409,912
$10,203,109
$9,195,738
$5,442,428
$3,607,021
$0
$2,000,000
$4,000,000
$6,000,000
$8,000,000
$10,000,000
$12,000,000
$14,000,000
2006 2007 2008 2009 2010* 2011
Unfortunately, like other local governments, the City of Covington has been, and continues to be
impacted by the economic climate. Having increased public safety expenditures prior to and
during the 2008 economic collapse, the City is now faced with less certain prospects for
maintaining these spending levels. Heavily dependent on sales and ad valorum property taxes,
the City, in the current fiscal environment may not be able to produce the revenue streams
necessary to sustain increased service costs. This situation is illustrated in Exhibit 3 – a trend line
that tracks the year-by-year general fund equity balance. As seen in the exhibit, fund balance (i.e.
discretionary reserves) has been depleted at a relatively rapid rate since 2006. While the balance
is still substantial, the trend line is not positive. As the recession continues, rising costs, coupled
with stagnate revenue streams could pose financial challenges.
Exhibit 3
City of Covington
Historic Fund Balance
*A portion of the reduction is the result of the City moving its capital budget to a special unused capital outlay special
revenue fund. Balance was $2,836,000 as of 12-31-09.
Source: City of Covington
A pre-emptive approach to addressing the situation is certainly in order and this study is one
component of that initiative. As noted above, Police Department and Fire Department costs
consume roughly half of the general fund budget. In turn, 2010 personnel costs for these two
departments accounted for 82% and 86% of total costs respectively. Related to this, any serious
cost reduction effort must consider and scrutinize public safety staffing levels. Consistent with
this requirement, our evaluation has focused on finding methods for structuring the respective
operations for greatest efficiency, evaluating shared-services options and generally identifying
any and all opportunities for improving the “bottom line”. In many cases this may involve
restructuring operations with fewer personnel. Any such staff reductions would ideally be
achieved through attrition.
I - 4
OBJECTIVES OF THE STUDY AND QUALIFIERS
Based on the above, the identification of cost savings and productivity improvements have been
primary objectives of the study. However, the City recognizes the importance of police and fire
services to the residents of Covington. Related to this, the City will not entertain
recommendations that result in dramatic service reductions and decreased service quality. We
have been cognizant of this overall directive in conducting the study. Consistent with this, we
have proceeded from the assumption that police and fire protection should not be compromised.
The residents have come to expect a certain level of service quality and responsiveness. Our
study recommendations must assure that this service level is either maintained or enhanced.
To identify cost savings within this framework, we have focused on conducting a very thorough
evaluation of all police and fire service areas and related resources. Our objective has been to
examine virtually all aspects of public safety operations for the purpose of:
Determining appropriate staffing levels for administration, supervision, field
services, support services and clerical operations;
Identifying and implementing opportunities for improving the utilization and/or
coordination of personnel;
Determining new scheduling systems to achieve better coverage with available
staff in all field operations;
Specifying and correcting any procedural redundancies that are impeding
productivity;
Identifying opportunities for service and personnel sharing with other agencies;
Evaluating equipment assignment and use to realize any cost savings;
And ultimately, creating a “road map” that can serve as a long-range operational
plan for the City of Covington in managing these key resources.
SCOPE OF THE REVIEW
The evaluation of Covington’s Police and Fire Departments has been completed through the
following scope of review:
Volumes of statistical, operating and budgetary information has been requested, received
and reviewed;
Interviews of personnel have been performed including multiple interviews of a number
of administrative and supervisory personnel;
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All personnel have been offered the opportunity for personal or group interview or
confidential survey;
The facilities has been toured as well as the service area;
Representatives of some neighboring police and fire agencies have been interviewed
regarding service outsourcing or cooperative arrangements, or simply their perception of
Covington’s services;
Representatives of some other City departments have been interviewed or consulted
regarding financial or personnel issues;
Benchmark comparative surveys of other police and fire departments in Louisiana have
been conducted;
Expert sources have been consulted regarding particular operational issues;
Other tasks have been performed to increase our knowledge of the City of Covington’s
operations.
CONCLUSIONS AND RECOMMENDATIONS
Based on the above scope of review we have developed specific findings, conclusions and
recommendations. To facilitate review, the report is organized as follows:
Section II: Police Department Findings and Conclusions
Section III: Police Department Recommendations for Improvement
Section IV: Fire Department Findings and Conclusions
Section V: Fire Department Recommendations for Improvement.
In regard to overall conclusions, we have found both chiefs to be individuals of the highest
integrity. Each operation contains many dedicated employees and service levels are acceptable.
Inevitably a study of this type focuses on the negative aspects of an operation and/or areas where
cost savings can be achieved. What are understated are the positive aspects of the organization.
This is undoubtedly the case with our study and should be considered when reviewing the report.
In a number of cases our recommendations focus on staff reductions or service outsourcing.
These are difficult recommendations to implement, due to the impact on employees who, in most
or all cases, have served the City well, possibly through a long career. In recognition of this
concern, we are strongly suggesting that staff reductions be achieved through attrition, placement
of an incumbent to another open position in the City government, or in the case of outsourcing,
placement of employees into the outsource operation. Ultimately, this will be the City’s decision
and dependent on the City’s financial means. However, it would be the preferred approach to
organizational change.
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It must also be noted that some recommended actions will require adherence to Civil Service
guidelines or other situations that will impede implementation. In this sense, the report is
intended as a strategic plan – with cost savings to be achieved in both the short- and long-term.
We have listed below, the major recommendations that are included in the report. These are
listed separately for the Police and Fire Departments.
Overview of Police Department Recommendations
Our major recommendations for the Police Department can be briefly summarized as follows:
Two Captain positions should be eliminated and one Assistant Police Chief position
created;
The Lieutenant-Internal Investigations position should be eliminated;
The Training Sergeant position should be given additional duties and retitled
Administrative Sergeant;
Standard Operating Procedures, performance appraisal and information systems should
all be upgraded;
A part-time information technology person should be hired or the function should be
contracted to a local company;
The Public Relations Officer should be assigned to half-time traffic enforcement duty;
Rank should be diminished within the department over time – particular positions are
specified;
The Narcotics Officer should join the Sheriff’s drug team for a one-year trial period;
The City should consider utilizing the Sheriff’s SWAT resources;
The Evidence Coordinator should assume more responsibilities;
One clerical position should be eliminated;
If a long-term contract can be agreed-on, dispatch service should be outsourced to the
Sheriff’s Department;
Drive-home car privileges should be ended for nearly all current assignments;
Vehicle inventory should be reduced from 55 to 29;
A plan to renovate the police facility should be set in motion;
Police building maintenance should be assumed by the City’s central maintenance
operation;
A comprehensive compensation system should be developed for Police Department
employees and all other City employees.
In regard to the Police Department, we have provided estimates of cost savings for some
recommended changes to operations (such as staff reductions, vehicle policy changes and
dispatch outsourcing) within the body of the report. We estimate these savings at approximately
$500,000 in total. Other recommended actions must be implemented before cost savings can be
accurately determined. Others, such as reductions in vehicle inventory, will require further
analysis to determine precise cost savings.
I - 7
Overview of Fire Department Recommendations
Our major recommendations for the Fire Department can be briefly summarized as follows:
Command should be reduced from three to two positions following the retirement of the
Fire Chief;
Standard Operating Procedures and other documentation should be upgraded;
Senior firefighters should be trained for, and assume command responsibilities as
opposed to creating new command positions;
Members of the volunteer contingent should be used in a part-time, paid-on-duty capacity
in a number of specified situations to reduce overtime;
The Northside Station should not be staffed at present, volunteers should eventually
handle this responsibility;
One Assistant Chief should assume additional responsibilities related to administration;
The commercial building inspection process should be modified to rely more heavily on
platoon firefighters;
The City should consider outsourcing dispatch services to Unifire;
Inter-jurisdictional coordination with District 12 should be improved to better service
some geographic areas;
Drive-home car privileges should be ended for most current assignments.
In regard to the Fire Department, we have provided estimates of cost savings for some
recommended changes to operations (such as one staff reduction, changes in vehicle policies,
overtime savings and dispatch outsourcing) within the body of the report. We estimate these
savings at approximately $325,000 in total. Other recommended actions must be implemented
before cost savings can be accurately determined.
______________________________________________________________________________
For both departments, we are recommending that the respective chiefs prepare an
implementation plan. The substance of the plan is outlined in the recommendations sections.
Organization charts depicting our recommended future staffing are also included at the end of the
recommendations sections.
* * * * * * * * * *
In the following section, we present our findings pertaining to the Police Department.
SECTION II
POLICE DEPARTMENT
FINDINGS AND CONCLUSIONS
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SECTION II
POLICE DEPARTMENT FINDINGS AND CONCLUSIONS
In this section of the report we summarize the findings and conclusions resulting from our
evaluation of the Covington Police Department. To facilitate review, the information is
organized in a number of subsections as follows:
A. Overview of Cost and Service Factors
B. Overall Command and Administration
C. Field Operations (Patrol and Traffic)
D. Detective Bureau and Special Operations
E. Support Staff and Dispatch
F. Vehicles and Equipment
G. Facilities and Other Issues.
Each area is discussed separately below
A. OVERVIEW OF COST AND SERVICE FACTORS
The Covington Police Department (CPD) serves a population of approximately 9,000 within a
service area of roughly nine square miles. The daytime population of the City is much higher
due to the "center city" character of Covington. The City contains ten schools, a branch of
Delgado Community College, the St. Tammany Parish Justice Center, St. Tammany Parish
Hospital and various other employers and attractions, including a number of restaurants. The
daytime population of the City is estimated at 25,000. Additionally, three major highways flow
through the City, carrying significant traffic counts.
By virtue of the day-time population, the community has different policing needs than a
similarly-populated small city with lesser activity. Most notably, traffic is a concern as is the
need to monitor and service a larger population. However, crime is fortunately low in
Covington. As an example, only 24 violent crime incidents were recorded for all of 2010 (i.e.
murder and homicide, rape, robbery and aggravated assault). As a result, CPD is able to
concentrate resources on more pro-active policing and crime prevention.
In conducting the study, we have included "benchmark" data comparing CPD’s operations to
other police agencies in Louisiana. In consideration of the day-time population of Covington, we
have opted to utilize communities that are larger and more comparable than smaller cities with
less activity. The benchmark police agencies that we have utilized are illustrated in Exhibit 4.
Our rationale for using this group includes the following:
The average round-the-clock population of 12,824 served by the group is 46% larger than
Covington. Note: Some CPD personnel suggested a comparison to communities of
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25,000 (such as Hammond). Having visited Hammond, Slidell and other larger cities
during the study, we consider this excessive.
As seen in Exhibit 4, the average crime rate is much higher in the benchmark group than
in Covington, indicating the need for these agencies to have (on average) at least as many
and likely higher numbers of personnel and related costs.
Exhibit 4
Comparison of Reported Crime in 2010
Police Agency
2010 Census
Population
Total Violent Crime
Incidents
Total Other Reported
Crime Incidents
Covington 8,765 24 546
Abbeville 12,257 123 856
Denham Springs 10,215 53 1,634
DeRidder 10,578 70 522
Gretna 17,736 89 1,290
Mandeville 11,560 32 679
Minden 13,082 27 506
Morgan City 12,404 89 1,134
Sulphur 14,758 269 2,001
AVERAGE 12,824 94 1,078
Notes:
Violent crimes include murder, non-negligent homicide, forcible rape, robbery and aggravated assault.
Other reported crimes include property crime, burglary, larceny theft, motor vehicle theft and arson.
Source: Federal Bureau of Investigation, Uniform Crime Reporting: 2010.
In regard to police cost, Exhibit 5 compares CPD's budget to those of the other agencies. As
seen in the exhibit, cost per capita in Covington is much higher (i.e. 31%) than the average of the
other departments. Some of this cost differential can be attributed to economy-of-scale. Simply
put, it is more costly to maintain a police agency in a smaller community since minimum levels
of personnel are required for different functions regardless of size. However, this level of cost
disparity also indicates a level of excess expenditures that should be identified, and ideally
eliminated.
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Exhibit 5
Comparison of Police Cost Per Capita
Police Agency
2010 Census
Population
FY 2011 Year Adopted
Police Budget As Reported Cost Per Capita
Covington 8,765 $3,854,784 $440
Abbeville 12,257 $3,200,000 $261
Denham Springs 10,215 $3,740,405 $366
DeRidder 10,578 $2,550,300 $241
Gretna 17,736 $7,890,908 $445
Mandeville 11,560 $5,650,000 $489
Minden 13,082 $2,798,830 $214
Morgan City 12,404 $4,200,000 $339
Sulphur 14,758 $4,895,812 $332
AVERAGE 12,824 $4,365,782 $336 Notes:
Average population of other agencies is 46% higher than Covington in consideration of day-time population increase.
Covington budget is FY 2011 estimated year-end.
Source: surveyed agencies
Similarly, Exhibit 6 compares sworn officers per 1,000 population between the agencies. With
four officers for every 1,000 residents, CPD is more generously staffed than most of the
benchmark agencies. Moreover, in 2011 CPD was budgeted for 39 positions. If all positions
were currently filled consistent with the budgeted total, the ratio of police officers to residents
would increase to 4.4 per 1,000 population. The national average for all police agencies in 2010
was 3.7 sworn officers per 1,000 population.
Exhibit 6
Comparison of Police Staffing
Police Agency
2010 Census
Population Total Sworn Staff
Population per
1000 Population
Covington 8,765 35 4.0
Abbeville 12,257 43 3.5
Denham Springs 10,215 36 3.5
DeRidder 10,578 29 2.7
Gretna 17,736 73 4.1
Mandeville 11,560 40 3.5
Minden 13,082 70 5.4
Morgan City 12,404 36 2.9
Sulphur 14,758 57 3.9
AVERAGE 12,824 48 3.7 Average population of other agencies is 46% higher than Covington in consideration of day-time population increase.
Source: surveyed agencies
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Summarily, benchmark data must be interpreted with care. However, the simple comparisons of
budget and staffing presented above provides some indication that police service costs in
Covington, as well as staffing levels, are generous. Whether or not this is justified can only be
determined by more definitive analysis. Related to this, the remainder of the police portion of
the study focuses on an analysis of each division and operating area to determine where excesses
might exist, and where cost efficiencies might be realized.
B. OVERALL COMMAND AND ADMINISTRATION
The organization of CPD is illustrated in Exhibit 7 for sworn police officers and Dispatchers
(other civilians are excluded). As seen in the exhibit, there are 35 total sworn police officers, of
which 19 are ranked Sergeant or above. (A ratio of command to staff of more than 1:1.) The
large number of command staff is one issue that we have focused on in evaluating overall
command and administrative requirements. The effectiveness of the command structure is a
second primary factor that has been evaluated.
Exhibit 7
Covington Police Department
Current Organization – Sworn*
Chief of
Police
Captain
Operations
Lieutenant
Internal Affairs
Captain
Administrative
Support
Sergeant
Investigations
Public Relations
Officer
Shift
Lieutenant
Shift
Lieutenant
Shift
Lieutenant
Shift
Lieutenant
Sergeant
Training
Lieutenant
Traffic
Sergeant
School Liaison
DARE
Officer
Sergeant
(2)
Detective
(2)
Sergeant
Sergeant
Sergeant
Sergeant Sergeant
Traffic
Police Officer
(3)
Police Officer
(3)
Police Officer
(3)
Police Officer
(3)
Dispatcher
Dispatcher
Dispatcher
Dispatcher
*Civilian Dispatchers also included
Source: Covington Police Department
Specific findings and conclusions include the following:
1. OVERALL COMMAND APPEARS EFFECTIVE IN SOME AREAS AND LESS
SO IN OTHERS.
As seen in Exhibit 7, CPD’s top command is comprised of three positions: the Chief of
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Police, Captain-Operations and Captain-Administrative Support. The Chief of Police has
held the position for approximately 4.5 years and the two Captains have a combined 57
years experience with CPD. All appear to approach their respective positions in a
professional manner. In reviewing the command structure from an operational
perspective, we have noted both strengths and weaknesses in overall management. In
regard to the positive features of departmental management, we have noted the following:
The Chief of Police exhibits a high level of personal integrity and commitment.
His police credentials are well established and his professional demeanor conveys
the proper level of authority and accessibility.
Morale and internal satisfaction with the Chief of Police's leadership is at an
acceptable level. The vast majority of interviewees or surveyed personnel
responded positively to questions regarding internal morale.
Budget management appears to receive more than adequate attention. In regard to
police department expenditures more generally, overtime is an area in which
budgetary control is often weak. This is not an area of weakness for CPD.
Effective scheduling practices, the use of compensatory time and ongoing
attention to budget detail have served to limit overtime expense. In 2010 for
example, overtime cost totaled $113,640 – a miniscule amount within a $3.9
million police budget.
Apparently, a number of operational practices have been upgraded during the
Chief’s tenure. While we do not have first-hand knowledge of past practices,
many interviewees commented on the Chief’s efforts in upgrading areas such as
training and facilities. Vehicles and weapons have also been upgraded during the
Chief's tenure.
However, we also noted areas in which management practices require upgrade.
Specifically:
Standard operating procedures (SOP) are aged and in need of comprehensive
update. In our opinion, this should have been a priority that would be at least
underway at this point of the Chief’s tenure. Police departments have come under
increased scrutiny in recent years as an area of potential liability. In this regard
standard operating procedures are essential for assuring consistency and
accountability in a department’s performance and response. SOP, properly
conceived, contains the full range of written guidelines and instructions for police
officer response and duties. As such, they cover a multitude of issues and
situations, and provide a basis for training and evaluation.
For CPD, it appears that update has been a “patchwork approach”, with the
department responding to concerns as they have emerged. In this situation,
command and patrol officer discretion is heightened, rather than contained and
leadership is reactive. Moreover, the lack of documentation limits the ability of
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the department to train new officers into consistent response patterns. For
example, CPD’s field training program for new employees would ideally employ
concise SOP as the basis for instruction.
The department lacks a basis for performance evaluation. As of January, 2010,
there is a rudimentary system in place, but it measures only very general
qualitative factors (e.g. work quality, initiative, adaptability etc.) It is not
sufficiently definitive to have use as an effective performance evaluation tool. To
be effective, a police performance evaluation system must be structured to include
individualized operational measures such as number of arrests, calls-for-service,
citations, citizen requests and other statistical measures of output. This requires
activity-based reporting, an issue discussed in the following bullet. The lack of a
performance evaluation system hinders CPD in several significant ways.
Specifically:
− There are several command positions that appear to have been created to
move people from other positions where they were underperforming
and/or poorly suited. Under Civil Service law, termination would not be
an option unless cause could be shown. Without an effective performance
evaluation system, it is extremely difficult to show cause, short of an
egregious offense. The result is that some individuals are retained in the
workforce at a less than productive level and add to staffing levels
unnecessarily.
− CPD is a rather young department at an average age of 40 with nearly half
the department under the age of 35. Younger officers are often more
aggressive and require more effective supervision. Properly structured, a
performance evaluation system can be used to identify behavioral issues
and mold behavior into acceptable parameters or simply “weed out” those
individuals not suited to police work.
Data management systems do not appear to be organized to support operational
decision making. While raw data is available regarding calls for service, crime,
investigative cases and other statistics, it is not organized in a succinct fashion or
integrated into a comprehensive management system, or annual report for public
release. As an example of limitations in the current system, a request for tickets
written per officer in 2010 could not be filled since data is not captured regarding
individual output.
The PTS Solutions software used by the department reportedly has the capability
to produce a multitude of reports regarding police activities, however it is not
clear if CPD has the necessary modules to create and manage the necessary
databases. The Chief of Police cites cost issues as the reason for this deficiency.
In regard to the above, as a small department it could not be expected that CPD
would be on the cutting edge in regard to technology. However, there is a need to
determine which information would be useful, how this data can be captured and
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what the system is capable of producing. As mentioned above, an activity-based
reporting system would be the best option for effective performance evaluation.
With a system of this type, each officer would record his/her daily activities
according to particular categories (calls responded to, time out of service,
citations written etc.). This information would then be summarized and used for
management decision-making as well as performance evaluation.
However, basic data collection systems must first be developed. The department
needs to determine a course and then assign an individual to work with PTS (or
another service provider) to upgrade data management capabilities. The capability
for instantaneous report generation for activities performed by the department
should be the norm rather than the exception. As a first step, information needs
will need to be identified. The department can then proceed to work with a
software provider to modify the police software for the appropriate report
generation. Additional reporting systems can then be established, including daily
reporting techniques.
In summary, CPD’s management appears to be strong in some areas but less pro-active in
others that are important to operational efficiency. In the current environment, it will be
necessary to initiate and embrace cost effective alternatives. Our findings and
recommendations offer suggestions for fairly substantial changes from the status quo in
some instances and will require strong leadership and a willingness to alter some
longstanding practices. The Chief of Police has shown a willingness to consider new
ideas over the course of this study. The implementation of these ideas will be a measure
of the Chief’s commitment to the ongoing need for fiscal containment and peak
operational efficiency.
2. THE DEPARTMENT COULD FUNCTION WITH ONE ASSISTANT CHIEF AS
OPPOSED TO TWO CAPTAIN POSITIONS.
As noted, CPD currently has two captain-level positions, including:
Captain-Administrative Support: The duties of this position include responsibility
for vehicle maintenance, management and inventory of property owned by the
department, minor computer and radio maintenance (e.g. computer down, camera
not working or needing installation, maintenance of car radios and lights, mobile
data system upkeep etc.), purchasing and contract management for vehicle or
technology services. The incumbent has no supervisory responsibilities.
These duties, in our opinion, do not require a command level position and present
the opportunity to eliminate one sworn position and return the incumbent to more
active police duty. Regarding current duties, responsibilities could be assumed by
others. One workable solution could be as follows:
− Hire a part-time civilian technology person to handle technology-related
responsibilities related to radios, cameras, mobile data systems etc. This is
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an approach used by many small police departments. Considering the
City’s information technology needs, this could also be a full-time
technology position shared with other departments.
− Assign responsibility for vehicle repair records and related contracts, as
well as department equipment inventory to another command position.
As discussed later in the report, the Traffic Lieutenant would be a logical
candidate and should have the work capacity to perform these duties,
assisted by clerical personnel.
− A day-time police officer could be assigned responsibility for transporting
vehicles for repair. The maintenance worker could also assist in this area.
The end result would be the elimination of one position at the Captain level.
Under Civil Service law the incumbent would be allowed to bump to a lower
classified position, setting that process in motion. Ultimately, the position at the
bottom should be eliminated, resulting in a departmental staff reduction of one.
This would ideally be achieved through attrition.
Captain-Operations: The duties of the position include responsibility for oversight
and management of patrol operations, Traffic Division and communications. The
Captain is also responsible for firearms and ammunition and is a part-time DARE
instructor and oversees that program. Patrol Lieutenants report through the
Captain, who has ultimate responsibility for shift scheduling, staffing, conduct
and performance. In some departments these duties would be the responsibility of
an assistant chief with broader job responsibilities.
In practice, the Captain-Operations does not appear to have the scope of
responsibilities listed above. The Chief of Police has a very active role in
supervising these operations and in turn, the Captain’s responsibility is lessened.
Ideally, this would change, with the number two position playing a more active
role in day-to-day management. This would allow the Chief of Police more time
and opportunity for activities such as participation and consultation with police
professional groups (and neighboring agencies regarding cooperative efforts),
policy development, grant identification and writing and public and civic
interaction.
The current command organizational structure has served the department adequately.
However, as noted, at least one of the Captain positions could be eliminated due to
workload. Ideally, both would be eliminated and replaced with an Assistant Chief
position. The duties of the Captain-Operations would be assumed by this new position
with full responsibility for operational management under the direction of the Chief of
Police. Additionally, the position could have responsibility for:
− Complaint resolution at the highest level
− Internal investigations
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− Operational and special events planning.
The elimination of the two Captain positions would ideally precede the creation of the
Assistant Chief position and selection of an incumbent. The current Captains would
certainly be viable candidates but the ultimate choice would be made by the Chief of
Police in accordance with Civil Service law. It is our understanding that Civil Service
stipulates that the selected candidate be a Sergeant or above rank within the department
with eight years seniority.
3. THE DEPARTMENT HAS OTHER SPECIALTY COMMAND POSITIONS.
ONE COULD BE ELIMINATED AND ONE MODIFIED TO ASSUME
ADDITIONAL DUTIES.
As seen in Exhibit 7, CPD has numerous command positions. As noted, the ratio of
command to staff level positions is roughly 1:1. The primary reason for the large number
of command positions is the emphasis on specialization within CPD.
By way of explanation, small police departments typically strive to limit command staff
by assigning ancillary duties to more traditional command positions. Duties such as
internal investigations, training, weaponry, vehicles, purchasing and other duties are
assigned to shift command or other command officers as an additional responsibility. In
contrast, CPD has a number of specialized classifications that only perform specific
support functions.
In conducting the review, we have noted one position that could realistically be
eliminated with the duties assigned as supplemental responsibilities for other positions.
Secondly, there is a command position that could assume additional duties. They include:
Lieutenant-Internal Affairs:
The incumbent was formally the Lieutenant in charge of investigations but was
later slotted into the current position. The duties include responsibility for
internal investigations for serious complaints and juvenile investigations. In
regard to the former, internal investigations peaked at seven in 2009 and totaled
three in 2010. Internal investigations can be intense, involving interviews and
report writing but are not typically considered a full-time assignment, particularly
at this volume level.
In regard to juvenile investigations, CPD totaled 26 juvenile arrests in 2010.
While there are certainly more cases than arrests there are also resources in the
Detective Bureau that can handle this workload. The School Liaison Officer can
also assist in this area by performing minor case investigations and follow-up.
Summarily, the position is comprised of duties that could be performed by others.
Specifically, a Captain (or ideally a new Assistant Chief) could handle internal
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investigations within normal workload. Juvenile investigations could be assigned
to Detective Bureau personnel with assistance from the School Liaison Officer.
Sergeant-Training:
Police training appears to be competently administered by the Sergeant in charge.
The State of Louisiana does not require specific training after the basic police
academy with the exception of annual firearms requalification. However, each of
CPD’s police officers is required to complete 40 hours of minimum training
(CPR, firearms, taser, etc.) annually. Other discretionary training is determined
according to priority need. Training opportunities are limited by an annual budget
of approximately $25,000 but the Sergeant appears to do a competent job of
identifying training resources and keeping much of the training in-house.
Training records also appear to be well maintained. The Sergeant also assists in
the recruitment and hiring process by processing applicants and coordinating
background checks.
As noted above, this function is both necessary and well-performed. However, it
is a duty that, in other small police departments is frequently a portion of a
broader duty assignment. Related to this, one option for CPD would be to have
the Sergeant assume certain administrative duties that are now performed by the
Captain-Administrative Support (a position we are recommending for
elimination) or “falling between the cracks”. These would include:
Departmental property inventory and related records management.
Coordination of records management systems (including determination
of activity reporting requirements).
Oversight of contract or in-house part-time employee for radio, camera
and computer maintenance and software upgrade.
Research and development of performance evaluation tools and
process.
Coordination of processes for the systematic update of SOP, rules and
regulations and personnel policies.
Essentially it is being suggested that the position (and ideally the incumbent),
become the administrative command officer for the department, supporting the
above areas as well as the training function. Broadly speaking, the position would
be expanded to a higher level of administrative standing than simply training
officer. The position would provide key administrative input for some initiatives
that we are suggesting such as SOP update and performance evaluation.
Ultimately, the position would be elevated to the Lieutenant rank to assure the
necessary level of organizational support for assigned initiatives. This could be a
later promotion, after some level of documented success has been achieved.
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Summarily, three command positions could be eliminated entirely and one restructured with
greater workload and responsibility. A new Assistant Chief position would also be added.
C. FIELD OPERATIONS
For our discussion, field operations include the Patrol and Traffic Divisions (as illustrated in the
previous Exhibit 7). From an overview perspective:
Patrol is divided into four shifts of 12-hour duration
Each shift is staffed with three police officers, one Sergeant and one Lieutenant
A Dispatcher is assigned to each shift
A Lieutenant and Sergeant are assigned to traffic duty, with both scheduled on day shift.
In regard to shift staffing, actual head count on any given day is inevitably lower than the
numbers given above due to off-time, both scheduled and unscheduled. By practice CPD
maintains a minimum of three officers on duty as the minimum contingent for operations (one
being a command officer). When staffing falls below this number, call-in is triggered, resulting
in overtime or compensatory time provided to the employee that is called in for duty.
Key findings regarding patrol operations include the following:
1. THE 12-HOUR SHIFT EMPLOYED BY CPD IS AN EFFICIENT SHIFT
SCHEDULE.
Police agencies differ in how patrol resources are scheduled. Some utilize 8-hour shifts,
some use 10-hour shifts and others utilize 12-hour shift staffing. Under the 12-hour shift,
fewer police officers are typically needed to staff "round-the-clock." However, this cost
savings can be offset by the requirement that employees be paid for an additional 104
hours per annum in overtime expense that results from this shift schedule.
CPD's schedule avoids this expenditure by requiring patrol personnel to work eight fewer
hours in each 28-day cycle. These off-hours are typically scheduled during slow times,
thus minimizing the impact of the lost manpower. Personnel are scheduled only for an
annual total of 2,080 hours, thus satisfying Federal Labor Standards Act (FLSA)
requirements and avoiding overtime occurrence.
In essence, CPD's shift schedule is very simple, yet very cost effective. As seen in
Exhibit 8, it is a common schedule among small police departments in Louisiana, though
some of these agencies endure the higher costs associated with overtime within their
operating models.
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Exhibit 8
Comparison of Shift Staffing
Police Agency
Shift Type
(hours)
Minimum
Shift Staffing
Days
Minimum
Shift Staffing
Nights
Covington 12 3 3
Abbeville 12 4 6
Denham Springs 12 4 3
DeRidder 12 - 5
Gretna 12 7 7
Mandeville 12 4 4
Minden 12 4 4
Morgan City 12 4 4
Sulphur 12 4 4
AVERAGE 12 4 5
Dash indicates that response was not clearly stated
Source: surveyed agencies
It can also be seen in Exhibit 8 that minimum manning for CPD is less than the
benchmark average. These are larger agencies; consequently the differential is not
surprising. Moreover, when all resources are considered (i.e. heavy day-time staffing and
traffic resources) CPD does have the capability of putting additional resources into play,
particularly during the busier day-time hours. In reviewing workload and staffing, we
have concluded that the five person patrol shift and three person minimum is sufficient to
address the patrol, crime and service needs of the City of Covington. CPD does need to
staff-up for many special events and parades, but this can be accomplished with overtime
and compensatory time as well as the deployment of seven reserve officers. In conducting
the study, a number of individuals have commented on the excellent performance of CPD
in coordinating resources and handling these special events.
2. TICKET WRITING DOES NOT APPEAR TO BE EXCESSIVE, BUT
INDIVIDUAL OUTPUT IS NOT AVAILABLE TO THOROUGHLY EVALUATE
THIS ISSUE.
During project interviews we were informed of a public perception that CPD is overly
aggressive in traffic enforcement. However, as seen in Exhibit 9, the annual citation
count does not support this premise.
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Exhibit 9
Comparison of 2010 Traffic Citations
Police Agency
Total Traffic Citations
Issued Total DWI
Covington 1,864 83
Abbeville 1,327 65
Denham Springs 9,549 160
DeRidder 1,285 43
Gretna 17,071 -
Mandeville 2,803 82
Minden 1,500 -
Morgan City 1,024 11
Sulphur 3,963 163
AVERAGE 4,815 87 Dash indicates not reported
Source: surveyed agencies
As seen in Exhibit 9, CPD issued 1,864 citations for an average of roughly 5 per day.
The benchmark agencies average 13 per day and 8.4 if Gretna is removed – a much
higher level of activity.
In conducting the evaluation, we have attempted to collect data on individual output but
were informed that ticket writing data is not broken down in this manner. As discussed,
this is indicative of deficiencies in the current data management system. Without
individual output data, performance evaluation is simply not possible and operational
planning is hindered.
3. THE PUBLIC RELATIONS OFFICER IS A VALUABLE POSITION BUT
SHOULD ASSUME OTHER RESPONSIBILITIES.
The Public Relations Officer is a community-oriented position that serves as liaison to
neighborhood groups, coordinates the neighborhood watch program, leads the bike
program (currently limited to the incumbent) meets with business owners and generally
serves as the public relations arm for CPD.
The position is valuable in regard to community interface and should be retained.
However, like other specialty positions in CPD, there are further efficiencies that could
be achieved. More specifically, we question the need to have one entire position
dedicated to this task. In reviewing options for a combined position, we have concluded
that one viable option would be to have the incumbent assigned a broader responsibility
that includes traffic enforcement. More specifically:
Traffic is now lacking an afternoon position.
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The Public Relations Officer is currently scheduled 8am-4pm despite having a
number of evening commitments related to community groups and meetings. The
current work schedule is “flexed” to accommodate these changes.
If scheduled on a day/afternoon overlap shift, the Public Relations Officer could
also function as a member of the Traffic Division – assisting in peak time traffic
enforcement. Both traffic and public relations responsibilities could be rationally
scheduled within one overall job assignment. In turn, operational productivity
would be improved.
D. DETECTIVE BUREAU AND SPECIAL OPERATIONS
As seen in Exhibit 7, CPD's Detective Bureau is currently staffed by five sworn officers; three of
whom are at the rank of Sergeant. Due to space constraints, the Detective Bureau is housed in a
separate facility that is located near the water tower. Key findings and conclusions regarding the
Detective Bureau include the following:
1. DETECTIVE BUREAU STAFFING APPEARS TO BE APPROPRIATE BUT
RANK IS UNEVEN.
As previously discussed, the City of Covington does not have a high crime rate.
Moreover, a civilian staff employee is assigned responsibility for delivery of court
documents – relieving the investigators of this duty. Additionally, arraignments are
handled at the jail without the need for Detective Bureau input. Within this framework,
investigative staff can allot minimal time on typical court and administrative duties, and
in turn, more time to the investigation of reported crimes – to the benefit of the
community.
In regard to staffing levels, it is difficult to establish ideal staffing levels for an
investigative unit, since each agency and investigator will differ concerning the
thoroughness and quality of case processing. In regard to CPD, we have examined the
historic caseload and closure rate and interviewed several members of the investigative
team. Based on these inputs, we have concluded that the Detective Bureau is well
managed and motivated under the direction of the current Sergeant in charge. Also, that
the current staffing level should be sufficient to manage caseload in the City of
Covington, even with the addition of the juvenile crimes caseload that is currently
assigned to the Lieutenant-Internal Investigations.
However, as with other areas of the organization, rank is uneven, with three Sergeants
and two police officer/investigators comprising the unit. Ideally, staffing would be as
follows:
Lieutenant – Investigations (1)
Sergeant – Investigations (1)
Police officer/investigator (3)
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With Civil Service restrictions, this change will be difficult to implement. However, it
should be a future objective as turnover occurs.
Additionally, it should be noted that many police departments have rotation policies for
investigative, narcotics and School Liaison/DARE positions. For narcotics, the rationale
is that an individual should not be subjected to the street environment for too long a
period of time. For DARE and School Liaison Officers, it typically concerns the
argument of whether a police officer should be rotated back to more active police duty
and share these more educational-oriented positions among the work force. To our
knowledge, CPD does not have policies restricting any assignments.
The School Liaison Officer and DARE officer are scheduled into the patrol rotation
following the school year. This is a cost effective practice that allows the department to
staff-up during a time of year when vacations are more frequent. Overtime is avoided
when these two individuals boost staffing levels and coverage for officers taking time off.
It should be noted that the School Liaison Officer is also at a Sergeant level. This is an
assignment that does not require a command position, a situation that would ideally
change in the future, similar to investigative staff.
2. ONE INVESTIGATOR IS ASSIGNED TO NARCOTICS DUTY. PLACING THIS
INDIVIDUAL ON THE SHERIFF'S DRUG TASK FORCE COULD BE
BENEFICIAL UNDER THE RIGHT CIRCUMSTANCES.
At present, one of the five investigators is assigned to narcotics. This Narcotics Officer
may be assisted by other investigators on particular cases or assignments as time allows.
He also works cooperatively with a State Trooper on drug enforcement as well as
informally with other agencies. But essentially, he constitutes a one-person unit.
There are distinct limitations on what can be accomplished by one officer. For example,
a drug buy should be staffed with one officer inside and two out. Active surveillance
cannot be properly performed without four to five individuals. Consequently, drug
enforcement in Covington is generally limited to what can be accomplished in the 40-
hour work week of one employee, working with informants, monitoring drug arrests and
working with other investigative personnel when they are available.
In contrast, the Sheriff's Department has a large and active drug task force comprised of
18 assigned officers, including three from federal agencies and one from the City of
Mandeville. Reportedly, the City of Slidell may soon be adding resources to the task
force.
One issue pertaining to any multi-jurisdictional drug task force is the distribution of
forfeiture money – an issue which the Sheriff's task force has apparently addressed. At
present, the Sheriff's task force is reportedly realizing between $100,000-$200,000
annually in forfeiture revenue. It is our understanding that under the Sheriff's distribution
formula, forfeiture funds are allocated as follows:
II - 16
District Attorney and Judges (by State law): 40%
Lead detective's agency: 40%
Other participating agencies (divided equally) 20%
In contrast, CPD receives approximately $5,000 per annum in drug forfeiture revenue. If
CPD were to join the task force, it would appear that there would be potential opportunity
to increase forfeiture funds revenue to the City.
More important is the issue of service impact. The Chief of Police notes that CPD was
represented in the Sheriff’s task force in the past, but withdrew because Covington’s drug
issues were seldom, if ever targeted. Essentially the City of Covington was not receiving
a fair share of task force resources. If this assertion is true, it poses an issue that would
need to be addressed prior to any serious consideration of adding CPD manpower to the
drug task force.
In reality, much of the burden of assuring equitable resource allocation typically falls on
the officer that is assigned to a drug unit. That individual must monitor local drug arrests
and warrants and aggressively push for more information from arrestees and local
informants. He/she must then propose targets to the task force and make a strong case for
specific drug enforcement initiatives within his/her home territory. Essentially, this
individual(s) must play a key role in assuring that his/her jurisdiction receives its fair
share of the task force’s resources.
Related to this, any agreement to assign CPD personnel to the Sheriff’s task force should
be dependent on several factors:
An up-front articulation of Covington's expectations and general consensus by
both parties on what is an acceptable approach.
Assignment of an individual who can and will advocate for the City of Covington.
Ongoing management reporting and communications with the Sheriff’s
Department to document task force accomplishments – regionally and for the City
of Covington.
Properly structured, multi-jurisdictional drug units can be very effective, since drug use
and related crimes do not recognize and conform to municipal boundaries. As seen in
Exhibit 10, this is a relatively common concept in Louisiana, as well as nationally.
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Exhibit 10
Comparison of Drug Unit Participation
Police Agency
Officer(s) in Multi-
Jurisdictional Drug Unit?
Covington No
Abbeville Yes
Denham Springs Yes
DeRidder Yes
Gretna Yes
Mandeville Yes
Minden No
Morgan City No
Sulphur No
Source: surveyed agencies
At present, there is no dialogue between CPD and the Sheriff's Department on this, or any
shared-service issue. The result is a lost opportunity to identify initiatives that could
benefit both the City and Parish proper. If acrimony exists, it should be resolved. There is
simply too much at stake not to explore common needs and potential solutions.
3. THE SHERIFF'S SWAT TEAM COULD BE USED FOR CRISIS SITUATIONS
IN COVINGTON.
CPD has historically maintained a SWAT (special weapons and tactics) team to respond
to crisis situations such as hostage rescues, counter-terrorism operations, barricaded
suspects and high-risk arrest situations. Since 2001, CPD has called out its SWAT team
for response to 21 different recorded events. Many have been related to high-risk drug
searches and barricaded gunmen, with seven defined as relative/hostage situations.
For FY 2012, the City has eliminated the SWAT budget from the larger police budget.
The Chief of Police disagrees with this action. He notes the large number of schools
within the City proper and the potential for a shooter or other incident requiring a rapid
SWAT response. For CPD, this rapid response would be achieved by trained SWAT
team members on each shift as well as call-ins. The Chief estimates full response at 30
minutes or less. However, at present (due to turnover) there are only seven SWAT team
members of the 35 officers on the CPD roster.
The Sheriff's Department also has a SWAT team with a reported 24 total members.
Similar to CPD, it is comprised of officers from all shifts, allowing for a more rapid on-
duty response. The Sheriff's Department estimates full response to a Covington situation
would be 30-45 minutes. The Sheriff would also reportedly be amenable to servicing the
City of Covington if that is assistance was desired. However, in this event, scene
command would shift to the Sheriff's Office. CPD would still perform the initial response
as well as containment efforts prior to SWAT deployment.
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The ability of the Sheriff’s Department to respond en masse to serious incidents is
impressive. One example was a recent bank robbery in the Covington area in which CPD
also participated in the manhunt. Reportedly, dozens of officers were rapidly mobilized
with the result being a quick arrest of a suspect.
Presuming that response rates and manpower levels are valid as presented above, the
Sheriff's Department would appear to be a viable option to provide this valuable service
to the City of Covington. As seen in Exhibit 11, Covington would not be unique in such a
shared-service arrangement – five of the eight benchmark agencies depend on a larger
agency or regional approach for SWAT services.
Exhibit 11
Comparison of SWAT
Police Agency Have Own SWAT Team?
Covington Yes - In FY 2011
Abbeville Yes
Denham Springs No
DeRidder No
Gretna Yes
Mandeville No
Minden No
Morgan City No
Sulphur Yes
Dash indicates not reported
Source: surveyed agencies
As with other shared services or joint initiatives, dialogue is a necessary perquisite to any
decision on such an important issue. Statistics should be examined, resource level
confirmed, procedures discussed and all other aspects of SWAT response examined.
This should be done jointly at the command level with later presentations to elected
officials with recommendations grounded in fact. Properly structured, an agreement on
SWAT intervention could bring greater resources to a potential crisis. As such, it
warrants serious investigation.
E. SUPPORT STAFF AND DISPATCH
CPD's support staff includes eleven full-time positions and one part-time position assigned to the
following functional areas:
Clerical and Administrative: Four full-time and one part-time
Maintenance: One full-time
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Dispatch: Five full-time, including an extra relief dispatcher who also performs some
clerical duties.
The organization and reporting relationship for these positions (primary dispatch excluded) is
illustrated in Exhibit 12. Dispatch personnel assigned to the patrol shifts are illustrated in the
previous Exhibit 7.
Exhibit 12
Covington Police Department
Current Organization for Civilian Employees
Note: Civilian employees in green
Source: Covington Police Department
Key findings and conclusions include the following:
1. CLERICAL WORKLOAD IS UNEVEN AND STAFFING APPEARS TO BE
EXCESSIVE.
The administrative and clerical positions of CPD provide a full range of internal and
external services ranging from higher-level administrative support to basic clerical tasks.
Our observations regarding the particular assignments and positions include the
following.
Administrative Assistant: The incumbent is responsible for the in-house human
resources functions of the department including payroll, enrollments, liaison to
Chief of
Police
Captain
Operations
Administrative
Assistant
Sergeant
Investigations
Clerk
(part-time)
Evidence
Officer
Day
Dispatcher
Clerk
Clerk
Clerk
Maintenance
Worker
II - 20
the Human Resources Department for Workers Compensation and other statutory
programs, maintenance of time-off accruals and other related duties. The position
has responsibility for requisitions and purchasing and supervision of other clerical
staff. The workload for the position is adequate although some workload capacity
will be freed-up following the pending automation of the payroll system.
Ideally, the incumbent would be located contiguous to the Chief of Police's office
to facilitate the personal assistant/secretarial aspects of the job. However, the
design of the administrative area does not lend itself to this option for physical
placement. Compensation for the position totaled $52,929 in 2010 – well beyond
the wage of many sworn personnel. This is one indication of the pay inequities
inherent in the current system – a point raised by many interviewees. The position
is also allowed drive-home privilege of an automobile due to the incumbent’s
status as a hostage negotiator. With this being an infrequent call-out duty, there
does not appear a legitimate rationale for a car assignment, let alone a drive-home
privilege.
Clerk for the Mayor's Court: The incumbent handles all aspects of the Mayor's
Court including tickets, payments, files, dockets, fine collections and follow-up.
The position is well structured and the incumbent appears to be busy and
productive.
Dispatcher/Clerk: The incumbent performs day-time dispatch on an overlap
basis, dispatch relief, administrative phone line pick-up and ticket entry. The
position is primarily dispatch-oriented and provides needed input to the dispatch
function during the busier daytime hours. If the department is to continue
providing dispatch in-house, this is a necessary position.
Evidence Clerk: The incumbent maintains incoming and outgoing evidence in
three locations and all aspects of property/evidence management. The workload
is not heavy, since a small department like CPD does not generate large volumes
of ongoing workload. Using a civilian for this responsibility is typically preferable
to assigning a sworn officer, assuming that other duties were present in the
position. However, for CPD's position, paid compensation exceeded $48,200 in
2010 – a level well beyond that of a patrol officer. In this situation, CPD would
be better served by a lower-paid sworn officer who could also assist with other
policing duties and responsibilities.
Clerk-Accident Reports and Other: The incumbent maintains hard copies of all
police incident reports, provides the Courts and District Attorney with report
copies and responds and satisfies all public requests. The incumbent provides
expungement reports to the Court, handles routine FOIA requests and performs
other clerical tasks. In our opinion, the job duties of the position do not constitute
a full-time assignment and could be part of a broader, more productive position.
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Clerk-Background Checks, Accident Reports and Alarms: The incumbent
processes criminal history checks and maintains false alarm notices and billings.
The incumbent maintains a file of accident reports and responds to public
requests. She also generates the monthly UCR and LIBR reports (state and
federal crime reporting) for the Chief of Police. This latter duty is performed
manually but could be done electronically if the police officers had the capability
to enter the data. This would eliminate the need for all but a final check. In our
opinion, the position, as structured, does not constitute a full-time assignment and
could be part of a broader, more productive position.
Summarily, it is our conclusion that administrative and clerical duties could be performed
by a lesser number of staff. At least three positions have workload capacity. Two
positions could be combined into one through consolidation of job duties. Another
position could assume additional duties or be replaced by a police officer. Compensation
levels are also problematic, with several positions earning greater compensation than
many sworn officers.
As seen in the following Exhibit 13, a comparison of clerical staffing in the benchmark
communities would also tend to support the conclusion that CPD is generously staffed.
Exhibit 13
Comparison of Police Clerical Staffing
Police Agency Number of Full-
Time Clerical
Number of Part-
Time Clerical
Covington 5 1
Abbeville 2 0
Denham Springs 5 8
DeRidder 2 2
Gretna 4 4
Mandeville 5 0
Minden 2 0
Morgan City 2 0
Sulphur 5 5
AVERAGE 3.4 2.4 Source: surveyed agencies
2. THE SHERIFF'S PROPOSAL FOR DISPATCH SERVICES OFFERS
SIGNIFICANT COST SAVINGS BUT ALSO UNCERTAINTY.
The Sheriff's dispatch operates though the 911 Communications Center located on East
Boston Street. Calls are dispatched for Sheriff's Office personnel as well as the
communities of Madisonville, Sun and Folsom. The center is typically staffed with four
call takers at any point-in-time.
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CPD also operates its own Public Safety Answering Point (PSAP) for Covington’s E-911
emergency calls. Fire calls are received and transferred to the Fire Department which has
a second set of dispatchers on staff. Medical calls are transferred to Arcadian, with a
follow-up notification to the Fire Department. Total dispatched emergency calls from
CPD's PSAP reportedly totaled 4,922 in 2010.
In regard to cost, CPD has the direct cost of dispatch personnel as well as the periodic
capital costs of radio equipment, and consoles, and other utility and facility costs. These
latter costs are not budgeted separately (operating or capital) and we do not have a
reliable estimate. The radio equipment and console are reportedly about ten years old, but
appear adequate for the foreseeable future. Personnel costs, the largest cost component,
can be estimated as follows for 2010:
Total W2 Wages of Dispatch Personnel: $156,289
Benefit Cost (Estimated at 50% of wages): $ 78,144
Total Estimated Personnel Cost: $234,433
As an offset to this cost, CPD receives approximately $38,000 per annum in phone tax
revenue for operation of the PSAP. Consequently, net operating costs are lower, and
estimated at $196,433 for 2010, exclusive of any facility, utility or maintenance costs.
The Sheriff has proposed to provide dispatch services for the City of Covington for one
year at a fee of $38,000 – the phone tax revenue amount. Under this scenario, the City
would have an additional one-time expense of converting to the Sheriff’s CAD interface
software. The Sheriff’s Department estimates this cost at $50,000.
On the surface, this would appear to be a significant cost savings of nearly $150,000 in
the first year, and roughly $200,000 per annum thereafter. However, the Sheriff is only
offering a one-year contract.
Viewed from a business perspective, this arrangement could place the City at a
disadvantage as negotiating leverage is lost for future years, and future costs are
uncertain. The City would need to make hard decisions regarding current employees and
literally close its operation. It is also conceivable that the PSAP revenue would be
difficult to reinstate if a later startup was desired. Our knowledge of this revenue source
is not sufficient to make this conclusion definitively.
There are also service issues that CPD will be quick to point out as related to the benefits
of in-house dispatch service. In-house dispatchers invariably know the community better
than an individual serving multiple communities. Protocols are also more exact with a
local dispatch and coordination with command and patrol officers more personalized and
familiar. Further, CPD’s dispatchers provide walk-in assistance for complaints,
information and ticket payments.
However, the magnitude of these negative impacts might not be sufficient to offset such
large cost savings. In regard to the E-911 service, we have worked with centralized
II - 23
dispatch operations with many agencies and have never seen an instance in which a
community reverted to an in-house dispatch. It is likely this has happened but it would
be very rare.
Rather, most agencies are satisfied with the service. The technical capabilities of modern
equipment make remote dispatching very acceptable in regard to quality and consistency
of dispatched information. Protocols can be effectively standardized and dispatch
personnel can be used to best advantage in achieving full workload output and improved
economy-of-scale.
Summarily, it would be our conclusion that the City of Covington should proceed
deliberately in moving toward this contract option. Issues that should be addressed in
discussions with the Sheriff include:
The establishment of cost parameters beyond year one of the contract.
The disposition of CPD's current Dispatchers. (i.e. Can they potentially be hired
within the Sheriff's dispatch operation?)
The identification of any other indirect costs or liabilities that would impose
additional cost burdens on the City of Covington.
Essentially, a dispatch contract with the Sheriff provides a tremendous opportunity for
cost savings. However, as with any contractual arrangement, due diligence is in order.
In regard to other Dispatcher duties, these could be addressed with some changes to
operational systems. Walk-in ticket payments would need to be made during business
hours, complaints would need to be taken by the command officer (as available) and
emergency situations in which a citizen seeking access to the station house could be
handled with an emergency alarm box, a common method used by agencies that do not
have after-hours access and/or dispatchers.
F. VEHICLES AND EQUIPMENT
CPD currently has 55 motorized vehicles assigned to patrol, Detective Bureau, Traffic Division,
administration and other operations. As seen in the following Exhibit 14, this is roughly 1.6
vehicles per sworn staff, a higher average than any of the eight benchmark agencies used for the
study.
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Exhibit 14
Comparison of Police Vehicles and Related Policies
Police Agency
Number of
Motorized
Vehicles
Total
Sworn
Staff
Vehicles
Per Sworn
Staff
Number of
Vehicles Driven
Home
Covington 55 35 1.6 37
Abbeville 31 43 0.7 31
Denham Springs 46 36 1.3 35
DeRidder 38 29 1.3 22
Gretna 102 73 1.4 91
Mandeville 47 40 1.2 35
Minden 18 70 0.3 5
Morgan City 37 36 1.0 21
Sulphur 48 57 0.8 43
AVERAGE 46 48 1.0 35 Source: surveyed agencies
Our findings and conclusions related to vehicles focuses on the quantity of vehicles and vehicle
usage practices. They include the following:
1. DRIVE-HOME PRIVILEGES ARE GRANTED TO A NUMBER OF POSITIONS.
THIS IS AN EXPENSIVE PRACTICE THAT SHOULD BE ENDED.
At present, thirty-seven individuals are assigned cars with drive-home privileges,
including two clerical/administrative staff. In reviewing this situation, we have concluded
that this policy has limited value for the City.
For command officers, the vehicles are rarely required after-hours for police business.
While there may be occasional call-out after normal working hours, these occasional
incidents could be compensated through a mileage payment for personal auto use on
behalf of the City. Similarly, investigators that are not scheduled on-call would have
limited call-out situations that could also be compensated in this manner.
Clerical/administrative personnel, patrol officers and other shift personnel likewise have
very limited operational justification for driving vehicles home. One rationale is that
police cars at residences are a crime deterrent for the neighborhood. However, very few
employees actually live within the City of Covington.
In several cases, 24-hour access to a car is justified by workload requirements. In our
opinion, these include:
The Narcotics Officer (the Chief of Police should ultimately make this
determination based on his more complete knowledge of activities).
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Detective Bureau investigator when serving on-call.
To calculate the cost of the current drive-home policy we have asked the City to provide
an estimated distance from the Police Department to the homes of all incumbents with
drive-home privileges. As noted this includes 37 employees.
We then proceeded to calculate total mileage as follows:
Assume a 46-week year (six weeks off)
Factor in a 12-hour, or 8-hour shift and associated work schedule depending on
current assignment
Assume mileage cost at $0.555, the current IRS reimbursement rate.
Based on the above, we have estimated the following:
Annual Mileage: 252,247
Annual Cost to CPD: $139,997.
In regard to the above, we would suggest that the following would be more cost
advantageous for the City:
Consider allowing the Chief of Police to continue the drive-home privilege. The
mileage from home to work is modest (i.e. 8.9 miles) and this is a common
perquisite for a Police Chief. Whether or not this privilege is continued should be
a decision made by the Mayor in his role as operational manager.
Eliminate drive-home privileges for all other positions. Infrequent call-out for
some positions can be compensated at the IRS rate for personal vehicle use.
Allow drive-home privilege for the Narcotics Officer (with the Chief's
concurrence) and the on-call investigator (a rotating assignment).
The counter-argument to our recommendation is that police agencies throughout
Louisiana allow the drive-home privilege including the Sheriff’s Department. In fact, this
does appear to be a common practice. However, changes may be coming as budgets
tighten. As an example, the head of the U.S. Marshals Service recently rescinded this
privilege at the Arlington Virginia headquarters for more than 100 vehicles noting the
“austere fiscal environment”. DEA and the FBI have also enacted strict limits and
policies on take-home vehicles. Local governments will also likely question the wisdom
of this benefit as budgets tighten. In ending the practice, CPD may be acting
preemptively to a situation that will inevitably change over time.
2. CPD COULD OPERATE WITH FEWER VEHICLES.
As discussed in the previous finding, ending the drive home privilege could provide
significant savings to the City. As a further benefit, CPD could operate with fewer
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vehicles. The vehicle inventory for CPD as of August 24, 2011 is 55. It is included in
Appendix A. Specific areas in which vehicle reduction could be realized are as follows:
The Department has 11 vehicles classified as "deadlined". These are apparently
vehicles that are not in active use. Maintaining the vehicles in inventory has
indirect costs to the City such as insurance expense. These 11 vehicles should be
disposed of as quickly as possible.
Two older vehicles assigned to clerical/administrative staff should also be
removed from the fleet.
The maintenance worker's car should be eliminated from the fleet. The
maintenance worker can use an unmarked pool car if transportation is needed.
With the above changes, 14 vehicles can be removed from the fleet. If the SWAT vehicle
is also to be removed, total fleet size would drop to 40.
Further reduction can be achieved in the fleet if CPD institutes a new vehicle use policy
and system. More specifically:
The number of patrol cars could be reduced – it is not necessary for every patrol
officer and shift command officer to have an individual car. As one example,
shifts A and D could share vehicles, likewise shifts B and C.
Most administrative command positions could retain an assigned vehicle.
A pool of back-up vehicles could be maintained for vehicles out-of-duty, training
transportation and other needs. Ideally, the number of vehicles needed would be
determined by an analysis of historic time out of service for the patrol vehicles.
However, at present, there is not much data captured on this issue. Improved fleet
data and related management would be required to make a definitive assessment.
In Exhibit 15, we have prepared one conceptual model for further vehicle reduction. This
model is relatively generous in maintaining individual cars for many command positions
as well as a pool of unassigned cars. In total this model anticipates that the department
would operate with 29 vehicles as opposed to the current 55. Excess vehicles would
ideally be sold off and future purchases determined by a rational turnover and
replacement schedule, such as was previously discussed.
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Exhibit 15
Covington Police Department
Possible Vehicle Scheduling System
Platoons Traffic DB Command Admin SRO DARE Training Utility
Unit Number Year A B C D
U5549 2010 Chief X
U5555 2011 Captain X
U5533 2008 Captain X
U5543 2009 X X Lieutenant (2)
U5534 2008 X X Lieutenant (2)
U5548 2010 X Traffic Lieutenant
U5550 2010
Lieutenant Internal X
U5556 2011 X X Sergeant (2)
U5546 2010 X X Sergeant (2)
U5531 2008 X DB/Sergeant
U5536 2008 X DB/Sergeant
U5535 2008 X DB/Sergeant
U5545 2010 Training Sergeant X
U5559 2011 X Traffic Sergeant
U5540 2009 X X Patrol Officer (2)
U5542 2009 X X Patrol Officer (2)
U5553 2010 X X Patrol Officer (2)
U5552 2010 X X Patrol Officer (2)
U5557 2011 X X Patrol Officer (2)
U5558 2011 X X Patrol Officer (2)
U5537 2008 X Patrol Officer
U5538 2008 X Patrol Officer
U5541 2010 X PR Officer/Traffic
U5544 2009 SRO/Sergeant X
U5530 2008 DARE Officer X
U5547 2010 As needed X
U5532 2008 As needed X
U7525 2007 As needed X
U7501 2007 As needed X
Suggested vehicle assignments could be changed by Chief of Police as well as specification of
the precise vehicles to be retained or removed from the fleet. Excess vehicles should be sold
off or recycled into the City’s fleet.
In regard to vehicle maintenance responsibility, we would suggest that this be assigned to an
existing command position. As noted, the Traffic Lieutenant would be a logical choice, with
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support provided by the clerical staff. Day-time officers could transport cars for repair as could
the maintenance worker. It should also be noted that the reduction in vehicles can be
accompanied by a reduction in the number of firearms. Each officer /vehicle is currently
assigned a shotgun and rifle. Fewer vehicles will require fewer firearms.
Longer-term, a vehicle turnover standard should be established. Currently vehicles are turned
over every five years, or when warranted by condition. With drive-home privilege ended, cars
could be expected to last longer. Many departments use miles or hours as a gauge for capital
planning. For example, cars might leave the patrol rotation at 100,000 miles. Those in better
condition can then be placed in the car pool with others auctioned off. As noted, the
department does not currently track total patrol mileage driven. This would be a necessary
statistic in determining useful life. In any event, a measure of depreciation should be
established to guide the future purchase of police cars.
G. FACILITIES AND OTHER ISSUES
Currently CPD operates from three distinct locations. As mentioned, the Detective Bureau is
housed in a separate facility near the water tower. Administrative operations are located in the
office space formally occupied by City Hall and patrol and dispatch operations are in a separate
wing of that building – physically separated from administration by the Council Chambers. The
current facility situation, as well as other issues, are discussed in the following findings and
conclusions.
1. CURRENT FACILITY ARRANGEMENTS DO NOT SUPPORT THE
COORDINATION AND EFFECTIVE MANAGEMENT OF RESOURCES.
In the current situation CPD's command and operations are scattered among different
locations. All three locations are poorly structured in regard to the use of physical space.
The administrative area has been converted from the former City Hall on a limited
budget, with limited consideration of police needs. Other facilities are also less than
ideal. Specifically:
The public walk-in area at the administrative building is austere and does not
convey a feeling of welcome. Citizens enter into a confined vestibule area and
must use a phone to notify personnel of their presence and communicate through
a small window.
The administrative area has been converted from the old City Hall administrative
layout. Police office assignments have had to conform to the former shape of
City Hall. Clerical employees are not contiguous to their supervisor and there are
large areas of under-utilized space throughout the facility. There is a distinct
feeling of separateness for many of the offices.
Patrol operations and dispatch are physically separate from the administrative
facilities. Offices in this building are small and poorly designed, as well as
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colorless and drab. The prisoner holding area is virtually no-existent and there is
no sally port for prisoner unloading.
The Detective Bureau is housed in an aged building that does not appear to be
well kept. Detective Bureau staff appears to make the best of the situation, but
the physical separation from patrol and other operations is not conducive to
effective communications or teamwork.
Essentially, the Chief of Police, and in turn, other command officers face physical
constraints in the organization and operation of the department. A police agency is like
any other business in the sense that physical facilities should be designed to support,
rather than challenge operations.
As mentioned, the City is constrained on what can be spent on facilities, or other services
and uses. However, as a future consideration, the following changes could prove
beneficial:
Determine a new location for the City Council Chamber.
Retain an architectural firm to develop a design for the Kirkland Street location to
house police operations exclusively.
Determine methods for capital funding and initiate renovation.
Move all CPD personnel to one location.
2. THE POLICE DEPARTMENT'S MAINTENANCE OPERATION COULD BE
MERGED INTO THE CITY HALL MAINTENANCE DEPARTMENT.
The Police Department currently has one assigned maintenance worker with
responsibility for custodial, car washing and some minor maintenance. In our tour of the
facilities, we noted a number of areas where custodial input could be upgraded such as
windows, floors and other concerns. CPD contends that the employee is busy and
productive and limited in what can be accomplished.
In fact, it can be difficult for a Chief of Police or Administrative Assistant (the
Maintenance Worker's current supervisor) to make this determination. Neither are
experts in building and grounds maintenance, and both have other more pressing
management concerns.
The City has a centralized maintenance operation, staffed by four workers led by a
Maintenance Supervisor. The group maintains the Greater Covington Center, Trailhead
and Bogue Falaya Park. Staff are scheduled on a seven-day operation with a good track
record in servicing multiple locations.
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Based on our observations, we would suggest that the City consider moving the Police
Department maintenance worker under the supervision of the Maintenance Supervisor.
The Police Chief would still have input into maintenance priorities but supervision and
oversight would be provided by maintenance professional. As an added benefit,
additional resources could be assigned for special projects. Maintenance standards could
also be established.
3. THE CURRENT PAY STRUCTURE IS IN NEED OF UPDATE.
In conducting the study, the most often mentioned issue of concern to CPD employees is
the pay structure. More specifically:
The starting police officer rate of approximately $28,000 makes recruitment and
retention of good employees difficult. In fact, there have been 14 terminations of
employment since 2007 that could have resulted from wage issues. The actual
number of employees leaving for this reason is likely lower, but still significant.
As mentioned, several clerical positions are paid higher salaries than police
officers.
Command salaries are also reportedly lower than similar positions in neighboring
agencies.
While these disparities can be documented, other factors should also be considered:
With the exceptions of new hires, the City pays the employee's portion of
retirement. This is a rising number, due to pension liability. For 2011, it is 10%
of wage.
The employee benefit package is relatively generous including retiree health care.
The cost of benefits is estimated at roughly 50% of wage – a fairly significant
level of benefit compensation.
In summary, the issue of compensation is multi-layered. What is not apparent is the
degree to which employees might be underpaid when all costs are considered. Or
similarly, if pay levels would be viewed more favorably if compensation were
restructured to provide more in base wages and less in benefits.
What is needed is a pay system that can guide decision-making for these and other pay
issues and provide the best basis for recruitment and retention of quality employees. At
present, the pay system is viewed with some degree of suspicion and a high level of
dissatisfaction. A more transparent and understandable system of pay progression could
rectify this situation. * * * * * * * * * *
In the following section, we present our recommendations pertaining to the Police Department.
SECTION III
POLICE DEPARTMENT
RECOMMENDATIONS FOR IMPROVEMENT
III - 1
SECTION III
POLICE DEPARTMENT RECOMMENDATIONS FOR IMPROVEMENT
Our recommendations for improvement are based on the findings and conclusions contained in
Section II. Related to this, they focus on the following areas:
Improving the command structure and ultimately reducing the number of command
positions
"Right sizing" the police operation while maintaining shift staffing at current levels
Instituting improved information systems and upgrading police reporting
Upgrading procedural systems and documentation
Achieving cost savings in support operations
Implementing service contracts with other agencies to achieve cost savings
Realizing cost savings in vehicle practices
Improving facilities.
Specific recommendations are as follows:
1. THE CHIEF OF POLICE SHOULD PREPARE AN IMPLEMENTATION PLAN
FOR THE STUDY'S RECOMMENDATIONS.
The following pages contain a series of recommendations for modifying current
operational practices in CPD. Related to this, each recommendation must be treated
separately and each will have different circumstances for implementation. Moreover, the
Chief of Police may disagree with some recommended actions, or wish to cite additional
constraints that need to be considered.
For these and other reasons we are recommending that the Chief of Police prepare an
implementation plan for submittal to the Mayor. The plan should address each
recommended action in the following manner:
In cases in which the Chief of Police concurs with a recommended action
explicitly, an estimated date for implementation should be provided. If the Chief
concurs but must select an alternative approach, the alternative should be
specified.
III - 2
In cases in which the Chief disagrees with a recommendation or desires to modify
it – a written rationale for retaining the status quo or another option should be
prepared.
In cases in which Civil Service restricts management’s ability to institute change,
the Chief should offer input regarding the most expedient and lawful manner of
implementation.
For longer-term optional recommendations, the Chief should offer input regarding
future feasibility and/or potential value.
From an overall perspective, we have attempted to fashion a “road map” for the future
operation of the department It will be a challenge to implement some changes within the
Civil Service structure. Under this system, seniority weighs heavily in promotions and
cutbacks (i.e. bumping rights). With these constraints, it can be difficult to place or retain
the most qualified person in a particular job. However, it can and must be accomplished
if the department is to maximize cost effectiveness. Management must be firm and
consistent in stating job requirements, monitoring probationary periods and applying
effective performance evaluation methods to measure job performance. Short of this, the
City will be denied the best possible police organization.
2. AN ASSISTANT CHIEF POSITION SHOULD BE CREATED AND THE TWO
CAPTAIN POSITIONS ELIMINATED.
As discussed in the findings, CPD should function with one Assistant Chief of Police as
opposed to two Captains. The new Assistant Chief would have responsibility for
operational management under the direction of the Chief of Police as well as:
Complaint resolution at the highest level
Internal investigations
Operational and special event planning.
The primary management duties of the current Captain-Operations would be assumed by
the new Assistant Chief. Secondary duties, such as weapons/armory would be assigned
to another command officer.
The duties of the Captain-Administrative Services should be assigned as follows:
The Traffic Lieutenant assumes responsibility for vehicle maintenance with
administrative assistance from the Evidence Coordinator.
Vehicle records, maintenance contracts, maintenance notification and scheduling
should be performed by the Evidence Coordinator.
A part-time information technology person or company should be hired for radio,
camera and computer maintenance, as well as expertise to assist in
III - 3
decision-making regarding upgrades to the police software.
Responsibility for property inventory and related records management should be
assumed by a new Administrative Sergeant position, as described below.
The two incumbent Captains should be slotted in the new organizational structure
consistent with Civil Service law (i.e. bump down to Lieutenant level). Ultimately, one
position should be eliminated at the bottom of the organization through attrition when a
vacancy exists. The net loss of one Captain position will result in an estimated savings of
$89,052, including benefit costs. However, there will be additional cost to upgrade the
other position to an Assistant Chief, offsetting a portion of these savings. Either or both
incumbent Captains could apply for the new Assistant Chief position as could other
qualified individuals.
3. THE LIEUTENANT-INTERNAL AFFAIRS POSITION SHOULD BE
ELIMINATED.
The Lieutenant-Internal Affairs position should be eliminated with primary duties
reassigned as follows:
The new Assistant Chief should assume responsibility for internal investigations.
The Detective Bureau should assume responsibility for juvenile investigations
supported by the School Resource Officer/Sergeant.
The incumbent Lieutenant should be slotted in the new organizational structure consistent
with Civil Service law. Ultimately, one position should be eliminated from the bottom of
the organization through attrition when a vacancy exists. The cost of the Lieutenant-
Internal Affairs position is estimated at $68,319 including benefit costs.
4. A NEW ADMINISTRATIVE SERGEANT SHOULD REPLACE THE CURRENT
TRAINING SERGEANT POSITION AND BE CHARGED WITH THE
RESPONSIBILITY OF UPGRADING KEY MANAGEMENT SYSTEMS.
As discussed, training is currently well managed by the Training Sergeant, but this duty,
in our opinion, does not constitute an adequate workload in a small department like CPD.
What is recommended is that the position be expanded to assume new duties related to
the development or improvement of management systems. These include:
Serving as the point person for the development of new Standard Operating
Procedures and rules and regulations. This could be accomplished with a
committee structure in which individual command officers are given
responsibility for upgrading/drafting certain subject matter. The Sergeant would
have responsibility for continuing development, integration and review with the
III - 4
Chief of Police. The Sergeant would distribute and maintain the upgrades to the
documents on an ongoing basis.
The position should have responsibility for research, development and
administration of a performance evaluation system. As mentioned, activity data
for individual employees must be captured if a performance tool is to have
substance. Related to this, it will be necessary for the Sergeant, working with the
Chief of Police, to identify the appropriate measures and methods for data
collection.
An effective system can be difficult to develop and implement. To begin the
process, the Sergeant should investigate other successful systems. A good
starting point to gather this information would be listservs in Louisiana and
nationally that have been developed for police chief communications and
inquiries. Legal restrictions and the technical and reporting requirements of
activity-based police reporting should also be investigated. Essentially, the
department should make every effort to fully understand the requirements and
benefits of a true performance evaluation system before making the decision on
how the department is to proceed toward this goal. Once the substance of the new
system has been defined, the Sergeant should assist in ongoing administration by
working with the Chief of Police to determine which upgrades to the PTS
software are required to provide the needed management information.
In addition to the above, the Sergeant should also oversee the contract for the new
technology person responsible for radio, camera and computer maintenance, as well as
the department’s property inventory. As mentioned, clerical and administrative duties
related to property inventory should be assigned to the Evidence Coordinator under the
Sergeant's direction to ease the Sergeant’s workload in this area. To further limit the time
required for training administration, the Sergeant should also consider greater use of the
Slidell Training Academy’s resources rather than scheduling CPD’s training individually.
To be effective in these duties the position must have adequate rank. Otherwise,
directives may well be ignored. Ultimately, the position should be classified as a
Lieutenant. However, this should only be done after some level of measurable success
has been achieved by the incumbent.
5. THE PUBLIC RELATIONS OFFICER SHOULD BE ASSIGNED TO TRAFFIC
AND PERFORM BOTH DUTIES.
As discussed, the Public Relations Officer performs a valuable function in coordinating
services with businesses, neighborhood groups and the general public. However,
dedicating one police officer to this function is extreme – the incumbent should have
other policing duties. Related to this, we are recommending that the incumbent be
transferred to the Traffic Division and serve as an afternoon Traffic Officer. With this
recommendation, the presumption is that workload will be split equally between public
relations and traffic – the balance can be shifted to accommodate needs in either area.
III - 5
6. THE SCHOOL LIAISON SERGEANT SHOULD BE ASSIGNED TO THE
DETECTIVE BUREAU. RANK SHOULD BE DIMINISHED WITHIN THE
BUREAU.
As discussed, it is recommended that the Detective Bureau assume responsibility for
juvenile investigations supported by the School Liaison Officer. It is also suggested that
the School Liaison Officer report to the Sergeant in charge of the Detective Bureau. This
will facilitate the communication of youth-related issues and crimes and provide the
Sergeant with the authority to direct the School Liaison Officer in the investigation of
crimes or particular concerns.
In regard to rank, the Detective Bureau should have three fewer command positions,
including two Detective Sergeants and the School Liaison Officer/Sergeant. All three
positions should be at the police officer level. This is a situation that should be corrected
over time, as personnel leave the department or are reassigned. Eventually, we would
recommend that the Detective Bureau be staffed as follows:
Lieutenant in Charge
Sergeant
Police Officers/Investigators (2)
Narcotics Officer
School Liaison Officer.
7. THE NARCOTICS OFFICER SHOULD BE ADDED TO THE SHERIFF'S DRUG
TASK FORCE ON A ONE-YEAR TRIAL BASIS.
As discussed, CPD is limited in what can be accomplished with one individual assigned
to narcotics. The Sheriff's Drug Task Force has 18 personnel including representatives
from the City of Mandeville (and possibly soon) the City of Slidell. With this level of
personnel, major drug initiatives can be mounted. CPD would likely benefit from both
the level of enforcement as well as the amount of forfeiture funds received.
CPD's Chief of Police has reservations regarding the benefits that would be received by
assigning an individual to the task force. This is understandable and should be
considered.
As a middle-ground, we would recommend that CPD assign the Narcotics Officer to the
task force for a one-year period. The benefits and disadvantage of this joint arrangement
can then be observed and documented. A decision can then be made on continuation
after the one-year anniversary.
8. THE CITY SHOULD SERIOUSLY CONSIDER THE SHERIFF'S
DEPARTMENT FOR SWAT RESPONSE TO CRISIS SITUATIONS.
III - 6
As discussed, the City has eliminated the SWAT budget for FY 2012. Moreover, CPD
reportedly has only seven SWAT team officers at this time. With 24 total SWAT team
personnel deployed on all shifts and its proximity to the City of Covington, the Sheriff's
Department is a logical service provider.
We recommend that CPD enter into dialogue with the Sheriff's Department to provide
SWAT services. As mentioned, statistics on response levels and times should be
requested and procedural approaches articulated. The Chief of Police can then document
the service that would be received rather than relying on conjecture. In turn, the City will
have definitive information to make this important policy decision. On the surface, using
the Sheriff's Department for these crisis situations appears to be a logical use of regional
resources. Unless some negative aspects of the service can be demonstrated, we would
recommend an agreement for the Sheriff to assist.
9. THE EVIDENCE COORDINATOR SHOULD ASSUME ADDITIONAL DUTIES.
As discussed in the findings, the Evidence Coordinator, in our opinion, has workload
capacity. While this is an important function, it should not be the exclusive set of duties
assigned to the position.
Without additional duties (and at current pay level) CPD would be better served to have a
police officer perform the duty – as part of a broader work assignment that includes
active policing.
In any event, we are not recommending that the position be eliminated or the incumbent
be replaced. We are recommending that additional duties be assigned. These should
include:
Responsibility for vehicle inventory records such as maintenance and mileage and
related reports.
Scheduling of vehicle maintenance –both preventive and emergency.
Responsibility for departmental property inventory and records under the
supervision of the new Administrative Sergeant.
Other needed clerical input.
Since this is a Civil Service position, there may be some limitations on restructuring the
position. If this proves problematic, the City should consider filling the position with a
police officer following the separation from City employment, or retirement of the
incumbent.
10. ONE CLERICAL POSITION SHOULD BE ELIMINATED, IDEALLY
THROUGH ATTRITION OR TRANSFER.
III - 7
At present, there are two clerical positions that, in our opinion, have a significant level of
workload capacity. These two positions could be combined into one. The duties of the
new position would be the combined duties of the two previous jobs. From an overview
perspective this would include responsibility for maintaining incident reports, routine
FOIA requests, criminal history checks, false alarm notices, monthly UCR and LIBR
reports and other assorted clerical duties as defined and assigned by the Administrative
Assistant.
It is our recommendation that the creation of the combined position be preceded by one
of the following events:
An open position in CPD or the City more broadly that allows for the transfer of
one of two incumbents to a new position.
One of the two incumbents voluntarily terminating employment with the City or
retiring.
Essentially, we are suggesting a downsizing of one position, ideally to be achieved
through attrition.
11. THE CITY SHOULD SERIOUSLY CONSIDER ALLOWING THE SHERIFF TO
ASSUME DISPATCH RESPONSIBILITIES – IF THE RIGHT CONDITIONS
CAN BE NEGOTIATED.
The Sheriff has offered to assume responsibility for Covington's dispatch services for one
year at a cost of $38,000. The net savings to the City for the one year period can be
estimated at $146,433 after software purchase. We have toured the Sheriff's dispatch
facility and found it to be professionally administered with state-of-the-art technology. In
this regard the quality of service should not be a concern.
One potential problem may focus on the length of the contract. Before undertaking such
a major change, the City should have a multi-year commitment for service cost – not
simply a one year contract.
Related to the above, we recommend that the City commence negotiations with the
Sheriff to determine:
An acceptable contract length
Opportunities for Covington's Dispatchers to join the Sheriff's operation
Any other in-direct costs or liabilities that should be considered.
If these issues can be resolved, the City will likely realize $200,000 per annum in net cost
savings by electing to have the Sheriff's Department provide dispatch service.
III - 8
12. MOST CURRENT TAKE-HOME CAR PRIVILEGES SHOULD BE ENDED.
At present that are 37 autos that are assigned to individuals in the department on a 24-
hour basis. As discussed in the findings, it is our recommendation that most of these
vehicle assignments cease. We have estimated the cost of this practice at $139,997 and
much of this can be saved by simply paying the affected individuals mileage
reimbursement in the event of call-out.
In the case of the Detective Bureau, we are recommending that the on-call Detective be
afforded an auto take-home assignment as well as the Narcotics Officer. The former
responsibility rotates and is limited to one officer at any point-in-time. The Chief of
Police could also be allowed a drive home privilege if the City concurs.
13. TWENTY-SIX VEHICLES SHOULD BE ELIMINATED FROM THE FLEET.
With the elimination of the take-home car privilege, fewer vehicles will be needed.
Additionally, there are a number of older and obsolete vehicles that can be eliminated.
As seen in the previous Exhibit 15 we are recommending that the department operate
with approximately 29 total vehicles – a reduction of 26 vehicles from the current total of
55. We are also recommending that new methodologies be developed and used to
determine vehicle life and turnover rate as discussed in the findings and conclusions.
14. THE CITY SHOULD BEGIN TO PLAN FOR A RENOVATED POLICE
FACILITY.
As discussed, CPD currently operates from three distinct physical locations. None of the
facilities conform well to police operating needs and the separateness of operations
negatively impacts the Chief of Police's ability to coordinate resources and oversee
operations.
We are suggesting that the City take some initial steps toward facility upgrade.
Specifically:
Consider other locations for the Council Chambers.
Commission an architectural study for a design for the current facility that would
consolidate all operations and operational needs.
Investigate capital budget and financing sources.
An attractive facility would also add a positive visual impact to the immediate area. In
this regard, neighboring property owners and groups could possible by enlisted to support
the upgrade effort.
III - 9
15. THE POLICE DEPARTMENT'S MAINTENANCE OPERATION SHOULD BE
MERGED INTO THE CITY’S CENTRAL MAINTENANCE SERVICE.
As discussed, CPD currently has one Maintenance Worker. In our opinion, oversight and
work quality would likely improve if this position was merged into and supervised by the
City's central maintenance operation.
16. THE CITY SHOULD CONDUCT A CLASSIFICATION AND COMPENSATION
STUDY AND DEVELOP A PAY GRADE STRUCTURE.
Pay inequities are apparent within CPD. Low starting salaries may also be hindering
recruitment and officer retention. At present, there is not a rational system for
determining pay increases or pay differentials. Similarly, benefit enhancements (such as
employer-paid pension contributions) have been awarded in lieu of pay increases in the
past – further confusing the issue of actual pay levels.
Pay issues extend beyond CPD into the Covington Fire Department as well as municipal
operations. Essentially, the City needs a compensation plan that would include all
departments and operations. With this plan the City would be positioned to:
Compare relative pay levels between the City and the labor market – for each
individual position and as a whole.
Determine an appropriate pay level for each new hire.
Develop a consistent basis for pay increases based on the competitive labor
market.
Consider both wages and total compensation in evaluating pay decisions.
Essentially, a well-conceived pay plan would provide one necessary component of
effective human resources management system.
17. PERSONNEL RECOMMENDATIONS INCLUDED IN THIS REPORT SHOULD
BE IMPLEMENTED ON BOTH SHORT- AND LONG-TERM BASES.
In regard to implementation, we have prepared organization charts for both the short- and
long-term. More specifically, Exhibit 16 represents the short-term organization that we
are recommending. It includes the current 35 sworn staff.
III - 10
Chief of
Police
Assistant
Chief
Administrative
Sergeant
Sergeant
Investigations
Shift
Lieutenant
Shift
Lieutenant
Shift
Lieutenant
Shift
Lieutenant
Lieutenant
Traffic
DARE
Officer
Sergeant
(2)
Detective
Sergeant
Sergeant
Sergeant
Sergeant Sergeant
Traffic
Police Officer
(3)
Police Officer**
(4)
Police Officer
(3)
Police Officer**
(4)
Public
Relations/
Traffic Officer
Detective/
Narcotics*
(1)
School Liaison
Officer
Exhibit 16
Covington Police Department
Recommended Organization - Sworn
* May be assigned to Sheriff's Task Force
** Two additional patrol officers are present, resulting from elimination of the Captain-Administrative
Support and Lieutenant-Internal Affairs positions. The two should be eliminated through attrition.
In regard to Exhibit 16, we have eliminated a net total of two command positions. After
bumping, it is assumed that the two excess positions will end up at the patrol level. As
two police officer vacancies occur, these two positions should be eliminated. In this
regard, our recommendation for future staffing for CPD is 33 sworn positions.
Exhibit 17 illustrates the organization with 33 sworn positions as well as the elimination
of unneeded command positions. This is the future organizational configuration that we
are recommending for CPD. As discussed, the elimination of command level positions
should be a longer-term objective. Exhibit 17 illustrates the ideal distribution of rank
including the elimination of a number of Sergeant level positions and the addition of two
Lieutenant positions including the Lieutenant for Investigations and Administrative
Lieutenant.
III - 11
Chief of
Police
Assistant
Chief
Administrative
Assistant
Sergeant
Investigations
Clerk
(part-time)
Evidence
Officer
Clerk
Clerk
Administrative
Sergeant
Part-time or
Contractual
IT Technician
Exhibit 17
Covington Police Department
Recommended Long-Term Organization – Sworn
Chief of
Police
Assistant
Chief
Administrative
Lieutenant
Lieutenant
Investigations
Shift
Lieutenant
Shift
Lieutenant
Shift
Lieutenant
Shift
Lieutenant
Sergeant
Traffic
DARE
Officer
Sergeant
Detective
(2)
Sergeant
Sergeant
Sergeant
Sergeant Traffic
Officer
Police Officer
(3)
Police Officer
(3)
Police Officer
(3)
Police Officer
(3)
Public
Relations/
Traffic Officer
Detective/
Narcotics*
School Liaison
Officer
* May be assigned to Sheriff's Task Force
Exhibit 18 illustrates the future clerical staffing organization we are recommending for CPD.
Five Dispatchers will have been eliminated as well as one clerical. A part-time technology
position has been added. This organization would be effective following the resolution of all
issues noted in the preceding pages.
Exhibit 18
Covington Police Department
Recommended Organization Civilian Employees
Note: Civilian employees in green
* * * * * * * * * *
In the following section, we present our findings pertaining to the Fire Department.
SECTION IV
FIRE DEPARTMENT
FINDINGS AND CONCLUSIONS
IV - 1
SECTION IV
FIRE DEPARTMENT FINDINGS AND CONCLUSIONS
In this section of the report we summarize the findings and conclusions resulting from our
evaluation of the Covington Fire Department. To facilitate review, the information is organized
in a number of subsections as follows:
A. Overall Cost and Service Factors
B. Command and Administration
C. Workload and Response
D. Shared-Services Opportunities
E. Vehicles and Equipment.
Each area is discussed separately below.
A. OVERALL COST AND SERVICE FACTORS
The Covington Fire Department (CFD) serves virtually the same population as the Police
Department. The City’s permanent population of approximately 9,000 is boosted considerably
during the day by the influx of students, workers and individuals traveling through, or to, the
City of Covington for business. As a result, fire department activity and responsibility are greater
than would be in a similar-sized community with a more sedate profile.
The service area is roughly nine square miles. CFD responds to service calls from its Jefferson
Street fire house – a second Northside station was opened in November 2010 but remains
unmanned. CFD also provides dispatch services to the neighboring Fire District 13 (i.e.
Goodbee) and has an informal agreement for automatic aid for fire suppression with this agency.
Mutual aid is also provided by and received from other fire agencies represented within the St.
Tammany Parish Mutual Aid Agreement.
Similar to other fire agencies nationwide, CFD is increasingly involved in emergency medical
services. More stringent building and appliance codes, public education, fire prevention
inspections and other factors have all served to reduce fire incidence. With this decline, fire
departments have expanded their mission to emphasize other public safety concerns –
particularly emergency medical response. As seen in Exhibit 19, rescue and emergency calls
accounted for 68% of CFD's call volume in 2010 or 77% if false alarms and good intent calls are
removed.
IV - 2
4%
68%
4%
8%
4%
8%4%54
913
61
107
55
10851 Fire
Rescue and Emergency Medical
Hazardous Conditions
General Service Call
Good Intent Call
False Alarm or False Call
Special Incident
Exhibit 19
Covington Fire Department
2010 Calls for Service by Category
Note: Calls for service totals may vary slightly between fire department exhibits due to differences in source data.
Source: Covington Fire Department
CFD provides emergency medical service at the Medical First Responder (MFR)
agency/certification level. At this level, CFD can provide services designed to stabilize patients
for later care, including services such as cardiopulmonary resuscitation, automated external
defibrillation, spinal and bone fracture immobilization and various applications of advanced first
aid. Many CFD personnel are personally certified at higher levels such as Emergency Medical
Technician or Paramedic, adding to CFD's in-house medical expertise. Medical transport is
provided by Arcadian Ambulance Service, which operates at an Advanced Life Support (ALS)
level. An Arcadian ambulance is assigned to the Covington area – facilitating a rapid response
and the transfer of medical patients.
In conducting the study we have attempted to identify benchmark agencies to compare operating
methods to those of CFD. However, it is difficult to identify fire departments in Louisiana with
similar operating characteristics. Fire agencies in Louisiana use a multitude of operating models
including volunteer-only, combination full-time and volunteer, full-time and part-time paid-on-
duty, full-time career and other configurations. Moreover, fire districts are plentiful and some
agencies provide ALS medical transport. With this level of operational diversity we were not
able to identify 6-10 similar agencies servicing a geographic area with similar demographic
characteristics to those of Covington. Faced with this limitation, we have collected information
from nine fire agencies, including several of the St. Tammany Parish Fire Districts (Note:
District 1 also responded to our information request, but with a service area population of
approximately 105,000 was deemed too large to include in the comparison.). Data from these
agencies is used only for specific comparisons in which comparability has some relevance.
As an example, Exhibit 20 compares fire service cost per capita in Covington to the citizen cost
in the nine "benchmark" fire agencies. This is a valid metric from both budgetary and citizen
perspectives in comparing relative cost burden.
Total Service Calls Percent of Total
IV - 3
Exhibit 20
Comparison of Fire Cost per Capita
Fire Agency
Population
Served
FY 2011 Year
Adopted Police Budget
As Reported
Cost Per
Capita
Covington 8,765 $1,616,850 $184
Bogalusa 12,601 $1,660,000 $132
DeRidder 9,808 $1,484,900 $151
District 4 52,283 $12,873,603 $246
District 12 25,000 $4,610,000 $184
Houma 32,393 $5,272,480 $163
Morgan City 13,002 $2,070,000 $159
Pineville 14,631 $3,900,000 $267
St. Bernard 42,000 $7,850,445 $187
Sulphur 29,000 $4,651,507 $160
AVERAGE 25,635 $4,930,326 $183 Source: surveyed agencies
As seen in Exhibit 20, fire service cost in Covington, if measured on a cost per capita basis, is
roughly equal to the average of the other agencies. From a more localized perspective, fire cost
per capita for CFD is roughly equal to the cost of neighboring District 12.
In regard to the fire protection provided by each Louisiana fire agency, the Property Insurance
Association of Louisiana (PIAL) grades service areas in terms of fire protection capabilities
according to the following factors:
Factor Maximum Points
Communication Systems 10
Fire Department 50
(equipment, manpower and other)
Water Supply 40
During annual evaluation, a fire service area is rated on a multitude of related subcategories. The
results are then summed and a rating is assigned, with the number one being the highest
achievable rating. The results are used by member insurance companies as a primary factor in
determining residential and commercial insurance rates.
Exhibit 21 compares PIAL ratings for the benchmark communities and the City of Covington.
As seen in the exhibit, Covington's PIAL rating of 3 is at the average of the sample.
IV - 4
Exhibit 21
Comparison of PIAL Rating Level
Fire Agency
Highest Property
Insurance of Louisiana
Rating Level
Covington 3
Bogalusa 4
DeRidder 3
District 4 2
District 12 3
Houma 2
Morgan City 2
Pineville 2
St. Bernard 3
Sulphur 2
AVERAGE 3 Source: surveyed agencies
The PIAL rating of 3 is more than satisfactory for a small agency and service area and CFD does
appear to actively consider the rating process in operational decision-making, as discussed later
in the report. The result is more affordable coverage for residents and businesses.
Summarily, CFD does not appear to be particularly costly in comparison to the surveyed fire
agencies when considered on a cost per citizen basis and the fire protection rating, as determined
by PIAL, is more than acceptable. Unfortunately, the benchmark agencies are different in size,
operational models and service area and cannot be compared in regard to staffing levels. This
issue is addressed in the following sections of the report with a focus on closely evaluating
staffing levels in comparison to actual operating needs. Other operational conditions that affect
productivity and service quality are also closely examined.
B. COMMAND AND ADMINISTRATION
The organization of CFD is illustrated in Exhibit 22. As seen in the exhibit, there are 16 full-
time career firefighters, a dispatch operation and a volunteer contingent comprised of 36
firefighters and other support personnel.
IV - 5
Exhibit 22
Covington Fire Department
Current Organization
Source: Covington Fire Department
Specific findings and conclusions regarding the command structure include the following:
1. OVERALL COMMAND IS MOSTLY STRONG BUT THERE ARE AREAS
WHERE IMPROVEMENTS CAN BE REALIZED.
As seen in Exhibit 22, CFD's command is comprised of three positions: the Fire Chief
and two Assistant Chiefs. One Assistant Chief oversees field operations and one
administers fire prevention. This organizational alignment dates from 2006-07, when
additional command positions were created and a full-time fire inspector position was
added to the organization.
In reviewing the command structure from an operational perspective, we have noted both
strengths and areas where improvements can be realized. In regard to the positive
features of departmental management, we have noted the following:
The Fire Chief has led CFD for more than 13 years. He is community-minded and
represents the department well. He is a strong advocate for the department and
appears to be well integrated into the community network.
Based on confidential survey results, morale and internal satisfaction with the Fire
Chief’s leadership are high and command officers are respected by the rank and
file.
A succession plan has been conceptualized. Both Assistant Chiefs have been
mentored and trained in command duties with the expectation that both will
eventually vie for the position of Fire Chief.
The Fire Chief uses the fire house database intelligently, organizing data to
advocate certain positions and strategies for the future.
Fire
Chief
Assistant Chief
Fire Prevention
Assistant Chief
Fire Suppression
Fire
Inspector
Dispatcher
(4)
Firefighter
(4)
Firefighter
(4)
Firefighter
(4)
Volunteer
Firefighters &
Personnel
(36)
Dispatcher
(part-time)
(3)
IV - 6
Related to the above, long range planning is emphasized with close attention to
community development, response times and operating strength.
The Fire Chief is well schooled in budget and revenue sources and displays a
good understanding of finance and budgetary issues at both the City and
department level.
Training is emphasized including both in-house and fire professional training. All
department members are exposed to ongoing training opportunities.
Service standards are high with a close watch on National Fire Protection
Association (NFPA) guidelines and PIAL requirements and impacts.
However, we have also noted areas in which management practices would benefit from
upgrade. Specifically:
Standard operating procedures (SOP) and personnel policies are very basic and
only recently assembled, possibly in response to the study. Based on a cursory
review we have noted a number of deficiencies and/or exclusions in what is
included in the documentation:
For SOP, the following are examples of areas where a policy is needed:
- Blood borne pathogens/infection control measures
- Respirator/SCBA policy
- Personal protective equipment policy
- Incident management system policy
- Rapid intervention policy
- Respirator fit testing policies.
In regard to personnel policies, the following are examples of specific areas
requiring attention:
- Driving SOP should include a required driver's training course from an
organization like the National Safety Council.
- The ride-along release requirement should be legally reviewed.
- The computer/internet policy should cover inappropriate/offensive on-line
content.
- There is no policy related to volunteer firefighters.
As noted, this is only a sampling of deficiencies based on a very cursory review.
Essentially, the department has much work to do to develop a comprehensive set
of documentation.
IV - 7
As a quasi-military organization, a fire company is highly dependent on concise
operating guidelines. Ideally guidelines would be formulated for all activities,
functions and situations. In turn SOP would provide the basis for training and
employee evaluation. Properly constructed, SOP also serves to lessen liability
exposure.
There is insufficient attention given to the volunteer contingent. The City of
Covington has reportedly had volunteers since 1905, but at present there does not
appear to be a very significant role for this potentially valuable asset. Related to
this, the organization chart that we received from CFD did not include or
reference the 36 member volunteer contingent.
Volunteers do attend training and respond to some calls for service – 16 are
assigned turn-out gear. However, the numbers related to volunteer participation
are overly concentrated on training time. Specifically:
- 2010 Training Hours: 5,027
- 2010 Fire Hours: 165
- 2010 Medical Hours: 28
Based on the above it would appear that the department largely considers itself a
"career" fire agency in which the volunteer contingent is more or less a support
group separate from primary operations. In light of the City's finances and the
cost of fire operations, this represents a situation in which a valuable resource
could be put to better use.
Overtime totaled $83,723 in 2010. We are not privy to an overtime breakdown,
however we have addressed this situation through several cost saving suggestions
presented later in the report. Much of the overtime is “baked into” the operating
schedules of firefighters and dispatchers; areas that that we address in the report.
There is limited interaction with the neighboring District 12 despite the
geographic proximity and sometimes overlapping service areas of the two
agencies. This limits the opportunity for service cooperation or shared-service
initiatives.
Summarily, CFD's management appears to be strong in many areas but not as pro-active
in others. In the current fiscal environment, it will be necessary to initiate and embrace
cost saving approaches. Our findings and recommendations offer suggestions for fairly
substantial changes from the status quo in some instances and will require strong
leadership and willingness to compromise on some positions. The implementation of
these ideas will be a measure of the Fire Chief's commitment to the ongoing need for
fiscal containment and peak operational efficiently.
IV - 8
2. IN THE FUTURE, THE FIRE DEPARTMENT COULD OPERATE WITH TWO
ADMINISTRATIVE COMMAND POSITIONS AS OPPOSED TO THREE.
As mentioned, the Fire Chief has developed a succession strategy that provides adequate
mentoring, training and command exposure to the two Assistant Chiefs. Through this
process, he has worked to assure operating continuity following his retirement as well as
the quality of command performance, both at present and in the future.
The two Assistant Chiefs have roughly sixteen and fourteen years experience respectively
and each appears to be knowledgeable and dedicated to their assigned areas. Both appear
well suited to independent decision-making and command responsibility.
Related to the above, we do not see a need for a three-person administrative command
following the Fire Chief's eventual retirement. While his input and leadership is certainly
valuable at present, two administrative command officers should be adequate to manage
the operation of CFD in the future. It would be presumptuous to assume the future career
path of either incumbent. However, from an organizational perspective we would
suggest that CFD could be adequately managed by one Fire Chief with direct
responsibility for line operations, supported by an Assistant Chief (i.e. Fire Marshal) for
fire prevention and administrative duties.
3. CFD DESIRES SHIFT COMMAND OFFICERS. OTHER OPTIONS COULD BE
MORE COST-EFFECTIVE.
As illustrated in Exhibit 22, CFD operates with three platoons working 24-hour shifts.
Each platoon is staffed by four firefighters – "call-in" overtime is triggered to maintain a
minimum of three in the event of shift shortage.
All firefighters are at the same rank. CFD would prefer to have platoon command
officers to provide for supervisory input on the shifts. This would be a captain-level or
similarly ranked position for each of the three platoons. It would not increase staffing
levels – it would simply increase the rank for three incumbents.
Obviously, there are advantages to having a supervisory presence. However, there are
also a number of disadvantages. Specifically:
The added cost of command level positions.
The added overtime cost of maintaining a command officer on each shift when
the assigned command officer was absent for any reason.
The Civil Service requirement that promotion be by seniority. Related to this
point, there is a probationary period to "weed-out" poor performers. However this
can still pose a difficult situation in actually effecting a later demotion.
IV - 9
0
50
100
150
200
250
162
191 188198 204 212
191
The command to staff ratio would increase to one command officer for every 1.66
non-command position (for the career firefighters).
While command structure is important to a fire agency, CFD is a small department that
should be able to maintain platoon operations without additional rank. One approach
would be as follows:
Develop a policy specifying that the senior firefighter will have responsibility for
shift command (Note: Under Civil Service this would likely be the case if rank
was created.) and specify particular duties.
Provide senior staff with basic supervisory training. Examples could be seminar
training such as Fred Pryor's General Management Training or an interactive Fire
Officer Training curriculum through the International Fire Training Association.
In summary, it is our opinion that the supervision of the platoons can be accomplished
without the addition of further command officers.
C. WORKLOAD AND RESPONSE
In 2010, CFD responded to a reported 1,349 calls for service. As previously illustrated in
Exhibit 19, the vast majority of these service calls were for medical first response. Fire volume
was relatively low, totaling 54 for all fire occurrences.
In regard to the frequency of calls, Exhibit 23 provides a breakdown of calls by day of week.
Exhibit 23
Covington Fire Department
Calls by Day of Week: 2010
Note: Calls for service totals vary slightly between fire department exhibits due to differences in source data
Source: Covington Fire Department
IV - 10
As seen in the exhibit, call volume was relatively consistent throughout the week, with the
exception of Sunday, when volume was lower.
In regard to time of day, Exhibit 24 provides a breakdown of calls-for-service by hour for all of
2010. As seen in Exhibit 24, CFD is busiest during the period 8am-5pm, corresponding to the
highest activity times in Covington. These are also the hours of highest staffing, with four non-
shift personnel (three command officers and one inspector) available to assist in emergency
workload. In this sense, CFD’s assignments are closely aligned with workload and service need.
Exhibit 24
Covington Fire Department
Calls by Time of Day: 2010
Note: Calls for service totals vary slightly between fire department exhibits due to differences in source data
Source: Covington Fire Department
Our findings pertaining to workload focus on response times and staffing levels. They include
the following:
1. RESPONSE TIMES TO CALLS FOR SERVICE ARE VERY ACCEPTABLE.
To evaluate the timeliness of response for CFD it is first necessary to establish a standard
from which to measure. The most common cited standards in response times have been
established by the National Fire Protection Association (NFPA). NFPA standards
address all facets of fire department operations – not simply response times. They are
standards and guidelines developed by committees comprised of government officials,
fire professionals, representatives of professional organizations, industry representatives
and others. NFPA’s standards for fire suppression and emergency medical call response
are as follows:
0
10
20
30
40
50
60
70
80
90
100
Mid
nig
ht
1:0
0 A
M
2:0
0 A
M
3:0
0 A
M
4:0
0 A
M
5:0
0 A
M
6:0
0 A
M
7:0
0 A
M
8:0
0 A
M
9:0
0 A
M
10
:00
AM
11
:00
AM
No
on
1:0
0 P
M
2:0
0 P
M
3:0
0 P
M
4:0
0 P
M
5:0
0 P
M
6:0
0 P
M
7:0
0 P
M
8:0
0 P
M
9:0
0 P
M
10
:00
PM
11
:00
PM
32 3328 25
13 11
26
59
7278
95 95
7973
90
7871
86
64 64
5349
3642
IV - 11
Four minutes or less for the arrival of the first arriving engine company at a
fire suppression incident.
Four minutes or less for the arrival of a unit with First Responder or higher
level capability at an emergency medical incident.
Ninety percent compliance with the above standards.
Additionally, 15-40 seconds is allowed for call receipt, one minute is granted for dispatch
processing after the call is received (NFPA 1221, 90% compliance) and one minute is
recommended for turnout time – the time needed to leave the station house. In summary,
total response time should be roughly 6.25 minutes from the time the call is answered at a
90% compliance rate or for 95% for the call receipt component. For this discussion, 6.25
minutes is the number to keep in mind.
NFPA standards are developed by committee consensus – not rigorous scientific
investigation. However, the standards established for fire and emergency medical
response are based on generally accepted risk factors.
For fire suppression, the standard is based on the fire propagation curve, illustrated in
Exhibit 25.
Exhibit 25
Fire Propagation Curve
Source: Fire Protection Handbook, 18th Ed., National Fire Protection Association
As seen in Exhibit 25, the Fire Propagation Curve illustrates the effect of time and
property destruction percentage on a free burning property fire. Extension of the fire
beyond the room of origin begins approximately six minutes after ignition, and flashover
(i.e. simultaneous ignition of all flammable material) occurs within eight to ten minutes.
IV - 12
For emergency medical response, the standard is generally consistent with the American
Heart Association’s 2005 Guidelines for CPR and Emergency Cardiac Care.1 These
guidelines emphasize the importance of shortening response time to suspected cardiac
arrest patients. More specifically, if brain tissues are deprived of oxygen, they begin to
die within four to six minutes.
Related to this, the American College of Emergency Physicians has noted that for every
minute of cardiac arrest, the chance of survival decreases up to 10 percent.2 Their
recommendation is that EMS systems should attempt to achieve travel times of 3-4
minutes for medical first response as a means of minimizing negative impacts.
The NFPA committees considered the above and other data in recommending the
aggregate 6.25 minute standard discussed earlier. It should be noted, however, that while
NFPA's standards appear reasonable, they are not universally accepted by public officials
and professional organizations. Fire department costs are an ongoing concern and some
feel that the standards are too aggressive. However, to our knowledge, the NFPA's
standards are the most definitive available, and as such, are generally accepted as the de
facto benchmark for emergency response. For this reason, our evaluation uses the NFPA
1710 standard as the benchmark for our analysis of response time for CFD.
Exhibit 26 illustrates the City of Covington, divided by district. CFD tracks response
times separately for each district, thus providing a very comprehensive look at response
time performance. In the exhibit, each district is represented by a different color and the
locations of the primary Jefferson Street station and unmanned Northside station are
indicated by a green “Y”. The map is provided as a reference document for the discussion
on response times provided in the following pages.
1 AHA, 2005. Highlights of the 2005 American Heart Association Guidelines for Cardiopulmonary Resuscitation
and Emergency Cardiovascular Care. Currents in Emergency Cardiovascular Care. 16(4), 1-25. 2 Pratt, F.D. & Overton. J. (2005). Ground Transport Ambulances. In Brennan, J.A. & Krohmer, J.R. [Eds}.
American College of Emergency Physicians Principles of Emergency medical Services Systems, [3rd
Ed.], Boston:
Jones and Bartlett Publishers.
IV - 13
Exhibit 26
IV - 14
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
A
200
B
379
C
133
D
261
E
318
88%84%
77%
84%87%
73%77%
44%
75% 75%
Less than 5 Minutes Less than 4 Minutes
In regard to response times, the data that we have received from CFD tracks the
percentage of calls receiving a response rate of 4 or 5 minutes. The results for 2010 for
the five individual districts are illustrated in Exhibit 27.
Exhibit 27
Covington Fire Department
Response Time per City District
Percentage of Call Responses Achieving Four or Five Minute Level
Note: Mutual aid calls not included
Source: Covington Fire Department
As seen in the exhibit, the percentage of calls receiving a 5 minute response or less is
very close to the 6.25 minute - 90% standard established by NFPA (95% for call receipt)
– a very impressive rate of emergency response. The response rate is generally consistent
across the City with the exception of District 3 – an area with boundaries furthest
removed from the Jefferson Street station and a lesser call volume. This is an area
targeted for new development, and the impetus behind the purchase of the Northside
station – a facility that is currently not staffed. At present, the percentage of calls
receiving a 5 minute response is still very high at 77%. With the NFPA standard at 6.25
minutes for 90% of calls, it is likely that District 3 also achieves the NFPA standard at
present.
Exhibit 28 compares average response time between the districts. This measure is not as
exact, since several slow responses (sometimes legitimately slow) can skew the response
times. However, the results are consistent with Exhibit 27. District C received a higher,
but still very acceptable average response time and the other districts received an
extremely rapid response.
IV - 15
0:00
1:00
2:00
3:00
4:00
5:00
District A District B District C District D District E
2:55 2:53
4:35
3:263:08
Exhibit 28
Covington Fire Department
Average Response Time per City District
Note: Mutual aid calls not included
Source: Covington Fire Department
Summarily, CFD's workload is higher during the day and relatively uniform across the
week. Response time is exceptionally good, assuring the citizenry a consistent and timely
response to service needs. Data is consistently monitored and used for decision making
regarding enhancements to the service model.
2. THERE DOES NOT APPEAR TO BE A NEED TO STAFF THE NORTHSIDE
STATION AT PRESENT.
As mentioned above, slower response times to District C as well as continuing growth
and potential annexations prompted the City to acquire a structure that could house a
second fire facility – a Northside station. The station is currently stocked with fire
apparatus – primarily to positively influence the City's PIAL rating. A decision regarding
actual staffing has not been made.
Based on the call volume and historic response rates we would suggest that there is no
reason to staff the facility at present. However, based on feedback received from the
Planning Department we are cognizant of the growth potential of the area. Moreover, as
seen in Exhibit 29, new construction does appear to be recovering after several years of
slow growth.
IV - 16
0
20
40
60
80
100
120
140
2006 2007 2008 2009 2010
15 19 14 16 9
110
75
27 19
81
Residential
Commercial
Exhibit 29
Historic New Construction in the City of Covington
Source: Covington Building Department
Related to this, the City should continue to monitor growth and service needs through
feedback received from the Planning Department, Building Department and Fire Chief.
If development and volume increase substantially, CFD could consider an incremental
staffing plan. Initially, staffing could be limited to the hours of greatest demand and
expanded later if justified by service needs. Actual staffing responsibility could be
assigned to volunteers, in a paid-on-duty capacity as discussed in the following
paragraphs.
3. THE VOLUNTEER CONTINGENT SHOULD BE INTEGRATED INTO
OPERATIONS ON A CONSISTENT BASIS.
As previously mentioned, the volunteer contingent has 36 members, 16 of which are
certified firefighters and have assigned turnout gear. The volunteers are not routinely
utilized in operations and totaled only a combined 165 hours of fire duty and 28 hours of
medical duty in 2010. Essentially, the volunteer concept appears to have become less
relevant as the department has moved to a larger contingent of career firefighters.
With the move to a four person platoon in 2009, CFD achieved a higher level of
operational consistency. However, higher costs have also resulted. The average W-2
salary for a firefighter in CFD was $43,039 in 2010, or estimated at $64,559 if benefit
costs are factored in. While this expansion and related cost may have been fully justified,
the City does not appear to be well positioned to absorb the costs associated with more
personnel. In this sense, greater reliance on the volunteer contingent would be a cost-
effective approach.
One way to accomplish this would be to use qualified volunteers in a part-time, paid-on-
duty capacity. Some of the St. Tammany Parish fire districts use this approach, as do
35
90
41
94
125
IV - 17
other fire agencies in Louisiana and nationwide. Some CFD personnel also reportedly
work in a part-time capacity for other agencies. A pay rate of $10-$11 per hour is
typical. For CFD, paid-on-duty firefighters could be used in several worthwhile
capacities. Specifically:
To staff the Northside station at the appropriate point-in-time
To reduce overtime costs (an issued discussed below).
In regard to using paid-on-duty firefighters to reduce overtime costs, this could be done
in virtually any situation in which an absence was scheduled (such as vacation time). In
contrast to costly overtime pay for a full-time firefighter, the paid-on-duty, part-time
firefighter could receive $10 per hour.
The most striking example of where cost savings could be achieved focuses on Kelly
Days. By way of explanation, the Fair Labor Standards Act (FLSA) allows firefighters to
work a 53 hour work week or 212 hours in a 28-day work schedule. After 212 hours, an
overtime rate of 1.5 must be paid for time worked. The schedule utilized by CFD for 24-
hour staff, has built-in overtime days commonly referred to as Kelly Days. As seen in
Appendix B (highlighted in yellow), there is one extra day in each three month period
that must be paid on an overtime basis. For the twelve firefighters on the platoons, this
adds up to 48 days of built-in overtime per year, or 1,152 total hours. The cost to the City
is $25,583 based on current pay rates.
This would be an ideal opportunity for the use of part-time, paid-on-duty personnel
selected from the volunteer contingent. For example, the volunteers could be assigned in
advance to the particular shift duty, and paid $10 per hour. For all 48 shifts, the total cost
would be $11,520 for the year. This would be a cost savings of $14,063 from the current
cost level. There could also be additional cost savings for any other employee benefits
affected by gross earnings. Similarly, paid-on-duty personnel could be used for other
planned absences such as vacations, workers compensation situations or approved leaves
of absence. In each case, cost savings similar to the above example would be realized.
The volunteer contingent should be commended for their ongoing commitment despite
such a low level of opportunity for service. In this regard, the use of these personnel for
relief purposes would also have the positive impact of increasing volunteer/community
involvement into CFD.
Any selected candidates would need to be certified firefighters as well as MFR certified.
In regard to the latter, approximately 40 hours of training is required for certification.
4. THE FIRE PREVENTION PROGRAM IS WELL CONCEIVED. HOWEVER,
STAFFING IS GENEROUS AND SOME CHANGES SHOULD BE MADE.
As mentioned, actual fire incidence is low in Covington. Some of this success can be
linked to fire prevention efforts. The City has adopted NFPA's fire prevention code into
IV - 18
ordinance and devised a fire inspection program to meet the NFPA requirements as well
as the standards of PIAL.
At present, CFD has a very comprehensive fire inspection program that includes both the
input of the platoons and the fire inspectors. The City of Covington has approximately
1,000 commercial properties, each of which is inspected twice annually. The first
inspection, typically performed by the fire company, is focused on the collection of
information that can be used for fire preplanning such as the location of entrances, utility
shutoffs, construction specifications, the presence and location of hazardous materials
and other information that can be used to conceptualize an effective suppression
response. Individual fire preplans are then developed for the properties and fire
personnel are trained based on the collected data. Any obvious fire code violations are
noted and conveyed to the inspectors. A second inspection is performed by the certified
fire inspection staff later in the year, using checklists that allow for consistent data
capture and database entry. Follow-up inspections are then performed as needed to
assure that corrections are made.
Fire prevention staff also perform arson investigations, commercial construction plan
reviews for fire safety issues prior to certificate of occupancy and perform secondary
inspections for schools, nursing homes and the hospital in accordance with PIAL criteria.
However, the State Fire Marshal has the primary responsibility for all of these areas
including commercial construction plan review and inspection, and the inspection of
schools, nursing homes and hospitals. In each case, this is a much more extensive review
process.
Summarily, CFD's commitment to fire prevention is impressive. Moreover, the assigned
inspection personnel appear well motivated. However, in many small departments two
inspection personnel would be considered a luxury, particularly in a community where
the program has been well established, preplans have all been developed and the vast
majority of inspections are conducted on low risk commercial properties that require only
routine annual attention.
Other approaches to completing the inspection process could make better use of existing
resources. These include:
Having several platoon firefighters trained in fire inspection so that some
inspections could be performed concurrent with the first inspection performed by
the fire companies. As noted, there are many structures/business-types that require
only a relatively simple inspection process.
Having the fire companies perform more of the follow-up inspections, particularly
those that are routine.
Improving technology so that the inspectors can access the Fire House inspection
module in the field and avoid the redundancy of having to work with paper copies
IV - 19
and record data twice. (Note: This upgrade has been requested by CFD, and is
reportedly not a complex solution to achieve.)
Each of these approaches would serve to limit the need for the inspection input of the two
primary inspectors. As noted, this would be particularly relevant for a City like
Covington which has many low risk commercial properties. The Fire Chief has noted that
PIAL inspection requirements are very stringent and that CFD’s inspection program is
structured to assure a high rating. However, other approaches could also accomplish the
same result. Moreover, there is no requirement that PIAL ratings be maximized in every
area of the evaluation and a lower score in this area (similar to others) may not affect
overall rating.
It should be emphasized that the inspection program and fire prevention efforts more
generally are well conceived and very successful. Moreover, the two inspection
personnel are also reportedly used for fire and emergency response during the assigned
shift. Both also assume on-call responsibility after-hours. In this sense, the Fire Chief
has used the two incumbents to fill multiple needs within the department.
However, it is our opinion that there is additional opportunity to use assigned personnel
more productively. One worthwhile approach would be to assign the Assistant Chief for
Fire Prevention some additional administrative duties. As an example, the upgrade of
SOP will require a high level of administrative input. Performance evaluation tools
should also be further refined. Grant writing could be also completely assigned to the
incumbent. As mentioned, the department also lacks an annual report; this could be an
ongoing assignment.
If some of the Assistant Chief’s inspection responsibilities can be delegated (similar to
the examples given above) there should be sufficient time freed-up to involve the
incumbent in more of these administrative responsibilities. This will be increasingly
important following the Fire Chief's eventual retirement; if the City follows our
recommendation to limit overall command staffing to two positions.
D. SHARED-SERVICES OPPORTUNITIES
With cost considerations becoming an increasing concern, many municipalities are exploring and
implementing shared-service agreements. Such agreements are often based on the premise that
municipal boundaries can limit the full utilization of personnel, and that cost savings that can be
realized through improved economy-of-scale.
In regard to CFD, the department works cooperatively with the City of Mandeville and other St.
Tammany Parish departments in joint training and the use of training resources. As mentioned,
an informal automatic aid agreement with District 13 exists for response to serious fire incidents
and dispatch services are provided to that agency. CFD is also a participant in the St. Tammany
Parish Mutual Aid Agreement. In this regard, there is collaboration between CFD and other
agencies.
IV - 20
In this section of the report, we examine the potential for additional collaboration, most notably
through combined dispatch and improved coordination with District 12.
1. SIGNIFICANT COST SAVINGS WOULD RESULT IF CFD WAS TO JOIN THE
UNIFIRE CENTRALIZED DISPATCH.
St. Tammany Parish Unified Fire District (Unifire) has been in operation since 2007.
Housed in the E-911 communications center, Unifire handles emergency communications
for eight of the St. Tammany Parish fire districts. The fire districts have a memorandum
of understanding for Unifire participation and each is represented on the Unifire Board.
Operationally, Unifire appears to be professionally managed. The Parish's E-911 center
houses both the Sheriff's dispatch operation and Unifire dispatch. The facility possesses
modern communications equipment and a significant number of police and fire dispatch
personnel on-duty at any point-in-time. Presently, three dispatchers are assigned to each
day shift, two dispatchers are assigned to both night shifts and one additional dispatcher
is scheduled on each 12-hour power shift. Reportedly PIAL awards full credit for all
communications items that Unifire controls (Note: Radios, receiving link, emergency
power, etc. are under the purview of the member agency). As a St. Tammany Parish
community with a fire agency, the City of Covington could potentially join the Unifire
group and receive its dispatch communications from this centralized system.
At present, the dispatch system for CFD is both redundant and costly. Many calls for
service are transferred from the Police Department, while other calls are received on a
ten-digit Fire Department landline. City-wide, two sets of dispatchers are coordinating
calls in the Police and Fire Departments when one dispatch service would suffice. The
result is a fairly significant cost outlay. As previously discussed, the police dispatch
budget cost can be estimated at $234,433. Additionally, we have estimated fire dispatch
cost as follows for 2010:
Total W-2 wages of Full-time Dispatch Personnel: $187,216
Benefit Cost (estimated at 50% of wage): $ 93,608
Part-time Employee Cost with FICA: $ 13,670
Total Estimated Personnel Cost: $294,494
Summarily, taken in total, the City of Covington is expending an estimated $528,927 on
dispatch costs – a sizable outlay for a small city. Moreover, this number does not
consider future capital costs – an inevitable impact for a system that is more than ten
years old.
In exploring dispatch options, we have roughly calculated the cost of fire dispatch
services if the City was to join the Unifire system. Our estimate of cost is included in
Exhibit 30.
IV - 21
Exhibit 30
Estimated Unifire Dispatch Costs With the Addition of
the Covington Fire Department and District 13
Fire Agency
Dispatched
Calls for
Service
Percent of Total
Calls
Percent of Unifire
Budget
Covington Fire Department 1,593 12.1% $51,532
District 2 1,011 7.7% $32,705
District 3 1,143 8.7% $36,975
District 4 4,610 35.1% $149,128
District 5 532 4.0% $17,210
District 6 423 3.2% $13,684
District 8 604 4.6% $19,539
District 9 429 3.3% $13,878
District 12 2,312 17.6% $74,791
District 13 481 3.7% $15,560
TOTAL 13,138 100.0% $425,000 Note 1: Covington dispatch volume is estimated, as is District 13. We could not calculate an actual
number based on the dispatch data provided. District 13 calls are estimated from revenue
received at $30 per call. The above is a relatively close estimate for planning purposes -
actual cost for Covington could vary by several thousand dollars in either direction.
Note 2: Unifire budget total is net of E-911/phone revenue of $315,000
Note 3: Covington also loses dispatch revenue from District 13 ($14,430 in 2010)
Note 4: Unifire dispatch cost allocation also includes a cost assignment for secondary dispatch
activity. We have not included this in our estimate. It will shift the percentages paid slightly
but does not add to the total dollar value.
Source: Unifire records and Covington Fire Department
As seen in the exhibit, the City of Covington would pay for its portion of Unifire cost
based on the percentage of calls answered on its behalf. For illustrative purposes we have
included District 13 in the formula, since CFD would no longer be dispatching that fire
service. In reality, District 13’s participation would be at the discretion of that agency.
Moreover, our estimate is not exact since there are smaller secondary factors that must be
considered in the formula.
As seen in the exhibit, we roughly estimate a cost of $51,532 for dispatch service for
CFD. Based on 2010 numbers, we estimate that annual cost savings achieved by joining
Unifire would be $228,532. (After subtraction of the current $14,430 received from
District 13 for dispatch services.)
At our request, the Fire District Administrator for District 12 also prepared a cost
estimate for service. Based on Unifire’s calculations, an annual fee of $55,000 - $58,000
is estimated. If we presume a higher cost of $60,000 to allow a margin for error, the
annual savings in dispatch cost for CFD would still be in excess of $220,000 per year.
CFD considers Unifire to be a less than ideal alternative for dispatch services; however,
we have not seen evidence of that. The current system is staffed with call takers and
IV - 22
dispatchers that can handle multiple calls. Staff has the appropriate training credentials
and the facility appears to be competently managed. Moreover, neighboring departments
are on the same system, facilitating effective inter-agency communications. Lastly, it
does not appear that there would be any significant change-over costs.
While the concept of centralized dispatch can be daunting to an agency that is
accustomed to in-house dispatch it represents the future. Increasingly, this is an area of
municipal collaboration and cost sharing. As seen in Exhibit 31, it is also not an unusual
concept in Louisiana.
Exhibit 31
Comparison of Fire Dispatch Source
Fire Agency
Separate In-
House Fire
dispatch?
Combined
With Police?
Handled By a
Multi-Jurisdictional
Central Service?
Covington Yes - -
Bogalusa Yes - -
Deridder
Yes
District 4 - - Yes
District 12 - - Yes
Houma - - Yes
Morgan City - - Yes
Pineville Yes - -
St. Bernard Yes - -
Sulphur - - Yes
Source: surveyed agencies
In regard to CFD’s current personnel, Covington dispatchers could apparently apply for
open positions in the combined dispatch. Unifire would reportedly hire two additional
dispatchers if CFD and District 13 were to join. The pay rate of $12.21 - $16.00 per hour
is lower than the average rate of $18.16 paid to CFD's dispatchers, but a similar 12-hour
shift with built-in overtime is offered as well as pension, health care and other benefits.
It bears noting that the Fire Chief has expressed a preference for a combined Covington
police/fire dispatch as opposed to the Unifire option. However, in our discussions with
the Fire Chief, there was no mention of what would constitute an acceptable staff
reduction. If we were to assume no immediate reduction, then no cost savings would be
achieved. If we assume that all of CFD’s fire dispatchers would be eliminated, the cost
savings would be $280,064 (the $294,494 estimated cost of dispatch service less the
District 13 revenue).
Summarily, if the cost related to a combined Covington dispatch is compared to the
potential cost savings of outsourcing both police and fire dispatch, the following might
apply:
IV - 23
Annual cost of a Covington combined dispatch,
assuming all current fire dispatch costs were
eliminated:
$234,433
AS OPPOSED TO:
Estimated first year cost, after ending all in-house fire
and police dispatch and contracting with the Sheriff
and Unifire and upgrading Police Department CAD:
$148,000
Future years’ contract cost for both police and fire
contracted dispatch (at static rates)
$98,000
Summarily, from a cost perspective, contracting for dispatch services also appears to be a
less costly option than simply eliminating the fire dispatch and assigning responsibility
for dispatch to the Police Department. The estimated cost differential is significant
ranging from $86,000 in the first year to $136,000 per year after the Police CAD software
has been purchased. As discussed, the possibility of cost increases in future years could
reduce these savings and must be considered in any decisions regarding contracting for
service. This appears to be a larger issue on the police side where the Sheriff has only
offered a one-year contract. In contrast, Unifire looks much more stable for fire dispatch
cost since Covington would be an equal partner in the multi-agency agreement.
2. THERE SHOULD BE DISCUSSION WITH DISTRICT 12 REGARDING
SERVICE COOPERATION.
As mentioned, at present, there is limited interaction between CFD and neighboring
District 12. CFD does reportedly respond to mutual aid situations to District 12 but rarely
requests aid from this neighboring agency. There appears to be longstanding points of
disagreement on both sides and this influences communications and inter-agency
dialogue and service coordination.
Over the prior decades, the City of Covington has expanded through annexation of
surrounding unincorporated St. Tammany Parrish property. As a result of these
annexations, there are uneven property boundaries. Related to this, it is likely that there
are areas in both District 12 and the City of Covington that could be more efficiently
maintained by one or the other agencies. This should be a point of discussion between the
two agencies – possibly an initial overture at identifying areas for worthwhile service
collaboration.
E. VEHICLES AND EQUIPMENT
In this section of the report, we discuss vehicles and equipment utilized by CFD. Key findings
include the following:
IV - 24
1. THE CURRENT VEHICLE INVENTORY APPEARS ADEQUATE AND WELL
MAINTAINED.
CFD's rolling stock is illustrated in the following Exhibit 32. As seen in the exhibit,
CFD’s vehicle inventory includes two engine/pumpers, a heavy rescue/pumper a 75'
Freightliner ladder truck and an assortment of smaller vehicles.
Exhibit 32
Covington Fire Department
List of Vehicles
Year Vehicle Type (and assignments)
1996 Freightliner 75' Ladder
2008 Rosenbauer Rescue/Pumper
2001 Luverne (International) Pumper
1993 Ferrara (KME) Pumper
2006 Rescue: Ford F-350 Extra-Cab Pickup
1996 Rescue: Ford Super Duty
2006 Ford F-150 Pickup (Asst. Chief)
2006 Ford F-150 Pickup (Asst. Chief)
2007 Ford F-150 Pickup (Fire Chief)
2006 Dodge Charger (Fire Inspector)
2000 Dodge F-150 Pickup - Utility Truck
2008 John Deere Cart Note: Take-home vehicle assignments are noted in parenthesis
Source: Covington Fire Department
In regard to apparatus, we have noted the following:
Front-line engines are of newer vintage and equipment is well maintained.
CFD does not maintain a set depreciation schedule and turnover rate for fire
equipment, instead relying on an individual assessment of the ongoing condition
of each equipment piece. This is an acceptable approach, considering the
significant cost of fire equipment. Benchmarks that we commonly see for the
useful life of fire trucks in smaller department are as follows:
- Engine/pumper: 20 years
- Ladder Truck: 25 years.
CFD's apparatus are all within these age parameters. The KME pumper is
approaching the 20 year threshold, but can be used in a secondary capacity going
forward.
IV - 25
The Ford F-350 is used as the primary vehicle for rescue and emergency medical
operations. An engine is only used in cases of multiple calls. This is an efficient
use of resources that minimizes wear on the more expensive fire equipment.
In summary, CFD's vehicle policies and condition are satisfactory. As seen in the
following Exhibit 33, self-contained breathing apparatus (SCBA) and turnout gear have
both been upgraded with grant money. SCBA typically has a useful life of 12-15 years
and CFD has avoided a major expenditure by successfully capturing this grant money.
The department also budgets annually for incremental turnover of this equipment. This is
a wise policy that will avoid large one-time capital outlays in the future.
Exhibit 33
Covington Fire Department
Summary of Grants
Year of Grant Description of Grant Estimated Value
2003 Fire prevention Trailer $57,902
2005 SCBA and Bottles $115,520
2006 Portable Radios and Turnout Gear $61,655
2007 Communications and Radio Equipment $43,262
2009 Air Compressor $4,500
ALL GRANTS COMBINED $282,839 Source: Covington Fire Department
2. DRIVE-HOME PRIVILEGES ARE GRANTED TO FOUR POSITIONS, A
PRACTICE THAT SHOULD BE REVISED.
As seen in the prior Exhibit 32, four of CFD's personnel are assigned vehicles. All are
extended a drive-home privilege, including the Fire Chief, both Assistant Chiefs and the
Fire Inspector. Similar to the Police Department, this appears to be perquisite more than
an operational necessity. Specifically:
One of the four is assigned to emergency call-in duty at any point-in-time. This
drive-home privilege appears warranted.
Fire inspection personnel might contend that an auto assignment is necessary to
conduct after-hours arson investigations (a requirement for each fire). However,
most fires (such as auto fires) only require one person – and most investigations
are routine. Moreover, one member of the inspection division is presently on-call
half of the time. Other call-ins could be compensated for personal vehicle use at
the IRS rate.
One incumbent has a round-trip distance of more than 50 miles from the fire
station to home. Emergency call-in would need to be very extensive to justify this
level of vehicle wear and cost.
IV - 26
To calculate the cost of the current drive-home policy we have asked the City to provide
an estimated distance from the fire station to the homes of the four incumbents with
drive-home privileges. We then proceeded to calculate total mileage as follow:
Assume a 46-week year (six weeks off), then assume five days of commute per
week.
Assume mileage cost at $0.555, the current IRS reimbursement rate.
Based on the above, we have estimated the following:
Annual mileage: 17,764
Annual Cost to CFD: $9,859
In regard to the above, we would suggest that the following would be more cost
advantageous to the City.
Allow drive-home privilege for the person on call-in duty.
Consider allowing the Fire Chief to continue the drive-home privilege. The
mileage from home to work is modest (i.e. 7 miles) and this is a common
perquisite for a Fire Chief. Whether or not this privilege is continued should be a
decision made by the Mayor in his role as operational manager.
Eliminate drive-home privileges for all other positions. Call-in for duty can be
compensated at the IRS rate for personal vehicle use.
* * * * * * * * * *
In the following section, we present our recommendations pertaining to the Fire Department.
SECTION V
FIRE DEPARTMENT
RECOMMENDATIONS FOR IMPROVEMENT
V - 1
SECTION V
FIRE DEPARTMENT RECOMMENDATIONS FOR IMPROVEMENT
Our recommendations for improvement are based on the findings and conclusions contained in
Section IV. Related to this, they focus on the following areas:
Shaping the command structure with fewer positions in the future
Upgrading procedural systems and documentation
Utilizing the volunteer contingent more fully and effectively
Improving the productivity of existing staff
Implementing service contracts with other agencies to achieve cost savings
Increasing the level of collaboration with a neighboring agency
Realizing cost savings in vehicle practices.
Specific recommendations are as follows:
1. THE FIRE CHIEF SHOULD PREPARE AN IMPLEMENTATION PLAN FOR
THE STUDY'S RECOMMENDATIONS.
The following pages contain a series of recommendations for modifying current
operational practices in CFD. Related to this, each recommendation must be treated
separately and each will have different circumstances for implementation. Moreover, the
Fire Chief may disagree with some recommended actions, or wish to cite additional
constraints that need to be considered.
For these and other reasons we are recommending that the Fire Chief prepare an
implementation plan for submittal to the Mayor. The plan should address each
recommended action in the following manner:
In cases in which the Fire Chief concurs with a recommended action explicitly, an
estimated date for implementation should be provided. If the Chief concurs but
must select an alternative approach, the alternative should be specified.
In cases in which the Fire Chief disagrees with a recommendation or desires to
modify it – a written rationale for retaining the status quo or another option should
be prepared.
V - 2
In cases in which Civil Service or labor law restricts management’s ability to
institute change, the Fire Chief should offer input regarding the most expedient
and lawful manner of implementation.
For longer-term optional recommendations, the Fire Chief should offer input
regarding future feasibility and/or potential value.
In several respects, we have attempted to fashion a “road map” for the future operation of
the department. This includes consideration of the future growth of the service area as
well as the ultimate retirement of the Fire Chief.
2. REDUCE COMMAND TO TWO POSITIONS FOLLOWING THE EVENTUAL
RETIREMENT OF THE FIRE CHIEF.
As discussed in the findings, the Fire Chief has devised a succession strategy for the
professional growth of the two Assistant Chiefs. Both appear professionally competent
and qualified to compete for the Fire Chief's position following his eventual retirement.
At such time that the Fire Chief leaves his position, CFD should restructure with two,
rather than three command positions, including a Fire Chief and Assistant Chief for Fire
Prevention (i.e. Fire Marshal). If one of the two Assistant Chiefs is selected for the Fire
Chief position, the restructuring can be accomplished by the simple elimination of one
position and restructuring of duties. If neither incumbent is selected for the Fire Chief
position, the City should still proceed to eliminate one position. The incumbent can
"bump" to a lower classification consistent with Civil Service law. Ultimately one
position should be eliminated at the bottom of the organization through attrition when a
vacancy exists. Cost savings resulting from the position elimination are estimated at
$85,061, based on W-2 earnings and benefit costs.
3. STANDARD OPERATING PROCEDURES AND OTHER DOCUMENTATION
SHOULD BE UPDATED.
As discussed, standard operating procedures (SOP) and personnel policies are not
complete and operational. In this situation, all operating procedures and rules of conduct
cannot be consistently articulated or enforced. Upgrade of SOP should be a departmental
priority at the command level.
Primary responsibility for SOP and policy update should rest with the Fire Chief. As
discussed, responsibility as the "point person" could be assigned to the Assistant Chief
for Fire Prevention when (as discussed below) workload is restructured to include
additional duties.
The performance evaluation system should also be given further attention in light of the
need to fully document cause in cases of employee discipline. The current system is
relatively effective in measuring qualitative factors and does have a 360 degree
V - 3
evaluative element (i.e. employee satisfaction with supervisor). Unlike police, the fire
service does not typically use activity measures to measure output due to the limited
number of individual service activities. Some departments employ additional procedural
evaluation in which tasks related to fire and MFR are evaluated individually in a physical
performance evaluation process (e.g. ladder raising, donning SCBA, etc.). CFD should
consider this or other enhancements to the current system. Fire Chief listservs in
Louisiana and nationwide would be a good source for identifying “cutting edge”
approaches.
An annual report for submittal to the City Council and Mayor should also be produced.
This is a common practice that can provide information that is important for policy
decisions, and public information on this important public safety service area.
4. SENIOR FIREFIGHTERS SHOULD BE TRAINED FOR, AND ASSIGNED
SHIFT COMMAND RESPONSIBILITY.
As discussed, we do not favor the creation of three command positions to oversee the
platoons. Rather we are recommending that the senior firefighters assume this role. To
implement this recommendation we suggest the following:
A policy should be created specifying that the senior firefighter should have shift
supervisory responsibilities with related duties clearly articulated.
The more senior firefighters should receive training in supervisory techniques.
Several potential sources are listed in Section IV – other options can also be
considered, as identified by the Fire Chief.
Essentially, it is expected that this action will provide a solution to the platoon command
issue without increasing rank and related operating cost.
5. MEMBERS OF THE VOLUNTEER CONTINGENT SHOULD BE USED IN A
PART-TIME, PAID-ON-DUTY CAPACITY TO REDUCE OVERTIME.
At present, CFD has "built-in" overtime in the work schedules of both platoon firefighters
and the dispatchers. In regard to the former, overtime for Kelly Days accounts for
$25,583 in annual overtime cost at current pay rates – as well as the additional costs
associated with any wage-sensitive employee benefits.
To reduce this operating cost, we are recommending the following:
A pool of qualified, interested volunteers should be identified for part-time, paid-
on-call duty at a rate of $10 per hour or whatever is agreed on.
If MRF training is needed for any volunteers in the pool it should be provided.
V - 4
The part-time, paid-on-duty firefighters should be scheduled into all known
blocks of time in which a platoon absence needs to be filled. This may include:
- Kelly Days (the largest concern)
- Vacation, workers compensation, long-term sick leave, leaves of absence
and other identifiable absences that can be scheduled in advance.
The result will be a significant reduction in overtime costs. Cost savings from Kelly
Days alone is estimated at $14,063. Other savings will also occur depending on the
consistency and frequency of application.
6. THE NORTHSIDE STATION SHOULD NOT BE STAFFED AT PRESENT.
FUTURE STAFFING SHOULD BE DEPENDENT ON NEED AND
ACCOMPLISHED USING VOLUNTEERS.
As discussed, CFD realizes excellent response times to calls-for-service. Service to
District 3 is very acceptable, though not as rapid as response to other areas of the City.
The Northside station has been acquired to address the continued growth in this area and
the potential for future annexations.
We have concluded that at present the station should not be staffed. However, ongoing
development should be monitored by the City's Planning Department, as well as by CFD.
Structural count, call volume, response times and other statistics should be maintained
regarding the service area – tasks that the two departments have performed consistently
to date.
At such time that a case can be made for staffing the Northside station, CFD should
satisfy this need incrementally, beginning with peak service hours. In regard to staff,
part-time, paid-on-duty firefighters should be utilized. Should CFD feel the need for full-
time presence, the Northside station staffing could consist of a combination of existing
full-time staff and paid-on-duty. This model should serve the City well into the future –
barring any extreme growth and/or major future annexations. If service needs were to
shift dramatically, it is possible that additional full-time staff would be needed. However,
by all indications this would be well into the future, if at all. The objective should be to
delay or avoid this more costly option to the greatest extent possible, by fully integrating
the volunteer contingent into the operations of the department.
7. THE ASSISTANT CHIEF FOR FIRE PREVENTION SHOULD BE ASSIGNED
ADDITIONAL DUTIES ACCOMPANIED BY CHANGES TO THE INSPECTION
PROCESS INCLUDING INCREASED PLATOON INPUT AND IMPROVED
TECHNOLOGY.
As discussed, the fire inspection program and fire prevention focus more generally, are
well conceived and professionally administered by CFD. However, there are many low
risk commercial properties in the inventory and some existing duties related to these
properties could be assigned to the fire platoons. Technology could also be improved to
V - 5
reduce workload and increase productivity. In turn, the workload of the inspectors could
be lessened and additional work capacity would be made available.
Essentially, the fire inspection program is fully developed and fire preplans have been
developed for all properties. In this situation the program is in maintenance mode – and
less demanding than a new program might be. CFD will argue this point, but in our
opinion, work capacity exists, and can be further created by more effective use of the
stand-by firefighters that are on platoon duty as discussed in Section IV.
Secondly, technology should be upgraded to eliminate current redundancies and further
automate the inspection function. One program that would facilitate this change would
be Firehouse Mobile Inspections and Occupancies, an application that will run on XP
laptops or XP tablet editions. It does not require a constant connection to the Internet. It
would synchronize when the inspectors come back into the office and hook it up with a
network cable. This would eliminate the current problem of multiple data entry.
Firehouse has also developed a promising application for Apple iPads called Firehouse
Inspector that takes data collection, reporting, scheduling and mapping to the field. The
application has only been available since August of 2011 but reviews of the product are
promising. Once an inspector is on-site, the program walks the individual through a step
by step, systematic process of noting occupant information, fire safety features, linking
violations to codes, reviewing information with business owners or managers and
capturing signatures prior to leaving the site
Firehouse has provided a free trial version on the Apple App Store website. Cost to
purchase the full version includes $350 for one-time purchase of the software application,
$50 per year annual support and a $1,000 administrative fee. In addition the department
would need to purchase iPads which are currently available for $500-$600. AT&T,
Verizon and Sprint currently have data service available on their networks. If the City
did not want to use a cellular data service, an “air-card” or Wi-Fi also allows the user
similar access to the Firehouse application capabilities. Summarily, this is a second
option for reducing redundant data input and the use of more time-consuming hard-copy
inspection processes. It would also be a less cumbersome option as opposed to laptops.
As these changes are made, additional duties should be assigned to the Assistant Chief
for Fire Prevention. Specifically:
Short-term: The incumbent can assume administrative duties related to the
development and ongoing update and maintenance of standard operating
procedures, performance evaluation tools, development of an annual report, and
other administrative duties, possibly to include additional grant writing.
Longer-term: We are recommending that the department operate with two
command positions. The inspection duties of the Assistant Chief will be further
limited in a new administrative organization as additional administrative duties
are assigned. Duties such as budget oversight, capital planning, activity reporting,
V - 6
payroll administration and civic and community meetings attendance are some
examples of what could be considered in determining a wider scope of
responsibilities. In the interim, CFD should continue to identify strategies to limit
the inspection/field time of the position. This will require continuous process
improvement – devising methods for employing technology to greater advantage
and utilizing the firefighter platoons to support the inspection process.
8. THE CITY SHOULD SERIOUSLY CONSIDER JOINING UNIFIRE AND
OUTSOURCING THE FIRE DISPATCH FUNCTION.
The Unifire dispatch option could provide the City with an estimated $220,000 in annual
cost savings. Moreover, it does not appear that dispatch quality would suffer and at least
two of the four full-time dispatchers could potentially find immediate new employment
with Unifire. The Unifire option also appears to be more cost-efficient than a combined
police/fire dispatch, particularly if the City can negotiate a long-term agreement with the
Sheriff's Department for police dispatch services.
Based on the above, we would suggest that the City enter into discussion with Unifire to
determine the precise process for inclusion, and confirmation of our cost estimates. The
City should also examine any operating data that CFD's Fire Chief considers relevant to
the decision process. There should also be discussion regarding the hire of any CFD
dispatchers that desire employment with Unifire. Any new employees will require a
Civil Service score and application to the Civil Service Board. If preferential hiring can
be established within this framework it would assure a future employment opportunity for
current CFD employees – a consideration that should be of paramount important.
9. THE FIRE CHIEF SHOULD ESTABLISH MEANINGFUL DIALOGUE WITH
DISTRICT 12 ON SERVICE ISSUES.
As discussed, there are overlapping service areas with District 12, and particular
situations where service coordination could be improved. The Fire Chief should establish
meaningful dialogue with District 12 to discuss and rectify these situations and establish
improved communication channels more generally. For two agencies in such close
proximity, issues such as resource sharing and joint equipment purchase should be an
active and continuing consideration.
10. MOST CURRENT TAKE-HOME VEHICLE PRIVILEGES SHOULD BE
ENDED.
At present, there are four vehicles that are assigned to individuals on a 24-hour basis. As
discussed in the findings, it is our recommendation that most of these vehicle assignments
cease. We have estimated the cost of this practice at $9,859 annually and much of this
amount could be saved.
Related to this, we would suggest that the following would be more cost advantageous:
V - 7
Allow drive-home privilege for the person on call-in duty.
Consider allowing the Fire Chief to continue the drive-home privilege. The
mileage from home to work is modest (i.e. 7 miles) and this is a common
perquisite for a Fire Chief. Whether or not this privilege is continued should be a
decision made by the Mayor in his role as operational manager.
Eliminate drive-home privileges for all other positions. Call-in for duty can be
compensated at the IRS rate for personal vehicle use.
11. PERSONNEL RECOMMENDATIONS INCLUDED IN THIS REPORT SHOULD
BE DONE ON BOTH SHORT- AND LONG-TERM BASES.
The outsourcing of dispatch would represent a short-term change to CFD's staffing.
Command reorganization and the reduction from three to two command positions is
recommended longer-term, following the retirement of the incumbent Fire Chief. Both
changes are represented in Exhibit 34 – our recommended future organization for CFD.
Exhibit 34
Covington Fire Department
Recommended Long-Term Organization
Fire
Chief
Assistant Chief
Fire Prevention
Fire
Inspector
Firefighter
(4)
Firefighter
(4)
Firefighter
(4)
Volunteer
Firefighters &
Personnel
APPENDIX A
POLICE VEHICLE INVENTORY
APPENDIX A
COVINGTON POLICE DEPARTMENT
VEHICLE INVENTORY: 8-24-11
Year Manufacturer Model Marked? Class ASSIGNMENT
2008 Ford Expedition No SUV Captain
2011 Chevrolet Tahoe Yes SUV Captain
2010 Chevrolet Tahoe No SUV Chief
2003 Chevrolet Impala No Sedan Clerical
2005 Chevrolet Impala No Sedan Clerical
2008 Chevrolet Impala Yes Sedan DARE
2006 Chevrolet Trailblazer No SUV DB
2008 Chevrolet Impala No Sedan DB
2008 Dodge Charger No Sedan DB
2008 Dodge Durango No SUV DB
2008 Dodge Durango No SUV DB
1999 Dodge Ram 1500 No Pickup Deadlined
2001 Dodge Durango No SUV Deadlined
2003 Chevrolet Impala Yes Sedan Deadlined
2004 Chevrolet Impala Yes Sedan Deadlined
2004 Chevrolet Impala Yes Sedan Deadlined
2004 Chevrolet Impala Yes Sedan Deadlined
2004 Chevrolet Impala No Sedan Deadlined
2006 Chevrolet Impala Yes Sedan Deadlined
2006 Chevrolet Trailblazer Yes SUV Deadlined
2008 Ford Crown Victoria Yes Sedan Deadlined
2010 Dodge Charger Yes Sedan Deadlined
2010 Chevrolet Tahoe Yes SUV Internal Affairs
2008 Dodge Charger No Sedan Lieutenant
2009 Ford Crown Victoria No Sedan Lieutenant
2009 Ford Crown Victoria No Sedan Lieutenant
2010 Dodge Charger No Sedan Lieutenant
2010 Ford F150 No Pickup Lieutenant Traffic
2004 Dodge Durango No SUV Maintenance
2006 Chevrolet Impala Yes Sedan Patrol
APPENDIX A (cont'd)
COVINGTON POLICE DEPARTMENT
VEHICLE INVENTORY: 8-24-11
Year Manufacturer Model Marked? Class ASSIGNMENT
2006 Chevrolet Impala Yes Sedan Patrol
2007 Chevrolet Impala Yes Sedan Patrol
2007 Chevrolet Impala Yes Sedan Patrol
2007 Chevrolet Impala Yes Sedan Patrol
2007 Chevrolet Impala Yes Sedan Patrol
2007 Chevrolet Impala Yes Sedan Patrol
2008 Ford Crown Victoria No Sedan Patrol
2010 Dodge Charger Yes Sedan Patrol
2010 Dodge Charger Yes Sedan Patrol
2011 Ford Crown Victoria Yes Sedan Patrol
2011 Ford Crown Victoria Yes Sedan Patrol
2005 Chevrolet Impala Yes Sedan Pool
2005 Chevrolet Impala Yes Sedan Pool
2005 Chevrolet Impala Yes Sedan Pool
2007 Ford Crown Victoria No Sedan Pool
2008 Chevrolet Impala No Sedan Pool
2011 Ford Crown Victoria Yes Sedan Public Relations
2010 Dodge Charger Yes Sedan SCHOOL
2007 Ford Crown Victoria Yes Sedan Sergeant
2009 Dodge Charger Yes Sedan Sergeant
2009 Dodge Charger Yes Sedan Sergeant
2010 Dodge Charger Yes Sedan Sergeant
2010 Ford F150 Yes Pickup Sergeant Training
1994 International 4000 Yes Truck SWAT
2011 Ford Crown Victoria Yes Sedan Traffic YELLOW DENOTES VEHICLES THAT COULD BE READILY ELIMINATED
Source: Covington Police Department
APPENDIX B
KELLY DAYS - 3 MONTH ILLUSTRATION
APPENDIX B
KELLY DAYS - 3 MONTH ILLUSTRATION
Sh
ift/
Sq
uad
Fir
efig
hte
r
D
ay
Cy
cle
Sh
ift/
Sq
uad
Fir
efig
hte
r
Da
y C
ycl
e
Sh
ift/
Sq
uad
Fir
efig
hte
r
Da
y C
ycl
e
D
ay
1
Da
y 2
Da
y 3
Da
y 4
Da
y 5
Da
y 6
Da
y 7
Ho
urs
Wo
rked
To
tal
in 2
8
Da
y 1
Da
y 2
Da
y 3
Da
y 4
Da
y 5
Da
y 6
Da
y 7
Ho
urs
Wo
rked
To
tal
in 2
8
Da
y 1
Da
y 2
Da
y 3
Da
y 4
Da
y 5
Da
y 6
Da
y 7
Ho
urs
Wo
rked
To
tal
in 2
8
A 1
Wk Wk Wk 72 72
A 1
Wk Wk 48 48
A 1
Wk Wk 48 48
A 2
Wk Wk Wk 72 72
A 2
Wk Wk 48 48
A 2
Wk Wk 48 48
A 3
Wk Wk Wk 72 72
A 3
Wk Wk 48 48
A 3
Wk Wk 48 48
A 4
Wk Wk Wk 72 72
A 4
Wk Wk 48 48
A 4
Wk Wk 48 48
B 1
Wk Wk 48 48
B 1
Wk Wk Wk 72 72
B 1
Wk Wk 48 48
B 2
Wk Wk 48 48
B 2
Wk Wk Wk 72 72
B 2
Wk Wk 48 48
B 3
Wk Wk 48 48
B 3
Wk Wk Wk 72 72
B 3
Wk Wk 48 48
B 4
Wk Wk 48 48
B 4
Wk Wk Wk 72 72
B 4
Wk Wk 48 48
C 1
Wk Wk 48 48
C 1
Wk Wk 48 48
C 1
Wk Wk Wk 72 72
C 2
Wk Wk 48 48
C 2
Wk Wk 48 48
C 2
Wk Wk Wk 72 72
C 3
Wk Wk 48 48
C 3
Wk Wk 48 48
C 3
Wk Wk Wk 72 72
C 4
Wk Wk 48 48
C 4
Wk Wk 48 48
C 4
Wk Wk Wk 72 72
Da
y 8
Da
y 9
Da
y 1
0
Da
y 1
1
Da
y 1
2
Da
y 1
3
Da
y 1
4
Da
y 8
Da
y 9
Da
y 1
0
Da
y 1
1
Da
y 1
2
Da
y 1
3
Da
y 1
4
Da
y 8
Da
y 9
Da
y 1
0
Da
y 1
1
Da
y 1
2
Da
y 1
3
Da
y 1
4
A 1
Wk Wk 48 120
A 1
Wk Wk 48 96
A 1
Wk Wk Wk 72 120
A 2
Wk Wk 48 120
A 2
Wk Wk 48 96
A 2
Wk Wk Wk 72 120
A 3
Wk Wk 48 120
A 3
Wk Wk 48 96
A 3
Wk Wk Wk 72 120
A 4
Wk Wk 48 120
A 4
Wk Wk 48 96
A 4
Wk Wk Wk 72 120
B 1
Wk Wk Wk 72 120
B 1
Wk Wk 48 120
B 1
Wk Wk 48 96
B 2
Wk Wk Wk 72 120
B 2
Wk Wk 48 120
B 2
Wk Wk 48 96
B 3
Wk Wk Wk 72 120
B 3
Wk Wk 48 120
B 3
Wk Wk 48 96
B 4
Wk Wk Wk 72 120
B 4
Wk Wk 48 120
B 4
Wk Wk 48 96
C 1
Wk Wk 48 96
C 1
Wk Wk Wk 72 120
C 1
Wk Wk 48 120
C 2
Wk Wk 48 96
C 2
Wk Wk Wk 72 120
C 2
Wk Wk 48 120
C 3
Wk Wk 48 96
C 3
Wk Wk Wk 72 120
C 3
Wk Wk 48 120
C 4
Wk Wk 48 96
C 4
Wk Wk Wk 72 120
C 4
Wk Wk 48 120
APPENDIX B (cont'd)
KELLY DAYS - 3 MONTH ILLUSTRATION
Da
y 1
5
Da
y 1
6
Da
y 1
7
Da
y 1
8
Da
y 1
9
Da
y 2
0
Da
y 2
1
Da
y 1
5
Da
y 1
6
Da
y 1
7
Da
y 1
8
Da
y 1
9
Da
y 2
0
Da
y 2
1
Da
y 1
5
Da
y 1
6
Da
y 1
7
Da
y 1
8
Da
y 1
9
Da
y 2
0
Da
y 2
1
A 1
Wk Wk 48 168
A 1
Wk Wk Wk 72 168
A 1
Wk Wk 48 168
A 2
Wk Wk 48 168
A 2
Wk Wk Wk 72 168
A 2
Wk Wk 48 168
A 3
Wk Wk 48 168
A 3
Wk Wk Wk 72 168
A 3
Wk Wk 48 168
A 4
Wk Wk 48 168
A 4
Wk Wk Wk 72 168
A 4
Wk Wk 48 168
B 1
Wk Wk 48 168
B 1
Wk
Kelly
Day 48 168
B 1
Wk Wk Wk 72 168
B 2
Wk Wk 48 168
B 2
Wk Wk 48 168
B 2
Wk Wk Wk 72 168
B 3
Wk Wk 48 168
B 3
Wk Wk 48 168
B 3
Wk Wk Wk 72 168
B 4
Wk Wk 48 168
B 4
Wk Wk 48 168
B 4
Wk Wk Wk 72 168
C 1
Wk Wk
Kelly
Day 72 168
C 1
Wk Wk 48 168
C 1
Wk
Kelly
Day 48 168
C 2
Wk Wk Wk 72 168
C 2
Wk Wk 48 168
C 2
Wk Wk 48 168
C 3
Wk Wk Wk 72 168
C 3
Wk Wk 48 168
C 3
Wk Wk 48 168
C 4
Wk Wk Wk 72 168
C 4
Wk Wk 48 168
C 4
Wk Wk 48 168
Da
y 2
2
Da
y 2
3
Da
y 2
4
Da
y 2
5
Da
y 2
6
Da
y 2
7
Da
y 2
8
Da
y 2
2
Da
y 2
3
Da
y 2
4
Da
y 2
5
Da
y 2
6
Da
y 2
7
Da
y 2
8
Da
y 2
2
Da
y 2
3
Da
y 2
4
Da
y 2
5
Da
y 2
6
Da
y 2
7
Da
y 2
8
A 1
Wk Wk Wk 72 240
A 1
Wk Wk 48 216
A 1
Wk Wk 48 216
A 2
Kelly
Day Wk Wk 72 240
A 2
Wk Wk 48 216
A 2
Wk Wk 48 216
A 3
Wk
Kelly
Day Wk 72 240
A 3
Wk Wk 48 216
A 3
Wk Wk 48 216
A 4
Wk Wk
Kelly
Day 72 240
A 4
Wk Wk 48 216
A 4
Wk Wk 48 216
B 1
Wk Wk 48 216
B 1
Wk Wk Wk 72 240
B 1
Wk Wk 48 216
B 2
Wk Wk 48 216
B 2
Kelly
Day Wk Wk 72 240
B 2
Wk Wk 48 216
B 3
Wk Wk 48 216
B 3
Wk
Kelly
Day Wk 72 240
B 3
Wk Wk 48 216
B 4
Wk Wk 48 216
B 4
Wk Wk
Kelly
Day 72 240
B 4
Wk Wk 48 216
C 1
Wk Wk 48 216
C 1
Wk Wk 48 216
C 1
Wk Wk Wk 72 240
C 2
Wk Wk 48 216
C 2
Wk Wk 48 216
C 2
Kelly
Day Wk Wk 72 240
C 3
Wk Wk 48 216
C 3
Wk Wk 48 216
C 3
Wk
Kelly
Day Wk 72 240
C 4
Wk Wk 48 216
C 4
Wk Wk 48 216
C 4
Wk Wk
Kelly
Day 72 240
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