Albuquerque Police Department Overtime Evaluation Final Report January 18, 2019 ONE ALBUQUE “°° RQUETable of Contents Executive Summary... Introduction and Background... Overtime Approval Process ... (Overtime Type Definitions. Overtime Hours by Type Recommendations ..... ‘Accountability Systems... bao ew woe Holiday Worked Overtime Call for Service Overtime... Training Overtime .. Tact Plan Overtime... Call Out Overtime Investigative Overtime. Court Overtime... 20 ‘Administrative and Community Meeting Overtime ... 2h Administrative Improvements... 7 25 27 Appendix A: Contributors...‘APD Overtime Assessment 1 Final Report Executive Summary Overtime is an inevitable part of police work. Police organizations rely on overtime for many valid reasons, Including temporary personnel shortages, after-hours criminal investigations, special events, and working past the end of a shift to process an arrest. In the last five years, the Albuquerque Police Department (APD) has increasingly relied upon overtime to meet service level expectations, with overtime expenditures increasing by approximately 11% per year since FY14, In November 2018, APD and the Department of Finance and Administrative Services (DFAS) embarked upon a project to identify opportunities to reduce unnecessary overtime and develop a more cealstic budget estimate for FY20. Ultimately, an analysis of payroll data revealed the following key drivers of overtime: 1) personnel shortages, 2) requirements associated with the Court-Approved Settlement Agreement (CASA) that went into effect in FY14, and 3) a lack of appropriate policy and management controls. It should be noted that this analysis only includes sworn officer overtime data, which comprises approximately 87% of APD’s overtime hours. Progress is already being made toward controlling overtime. Overtime hours are on track to level off in FY19 and possibly decrease as additional officers complete training. It is estimated that overtime will decrease by 8% (22,156 hours) between FY19 and FY20 simply due to increased staffing levels. However, implementation of the recommendations included in this report, which involve more proactive management and the implementation of internal controls, could decrease overtime hours by an additional 12% (33,911 hours) between FY19 and FY20. The following table shows the estimated impact ‘on each overtime type of staffing increases and the recommendations included in this report. The FY20 ‘overtime budget is estimated to decrease by approximately $1 million without the recommended interventions and an aduitional $1.5 million with intentional management. Tile :Hsoeal an Projected Overtime Hous, FYB 10" | ee etka Administrative 13,547 od (8,264) 8,264 Call for Service 44,072 (25,000) (15,000) 33,023 Call Out 27,020 - (2,081) 18,725 Community Meeting 2,821 & (2,878) oO court 2ases ; - 738s voday Worked suse (ass = 8089 Investigative 23,460 (5,689) (5,689) 11,378 Special Events 19,492 = & 15,204 Tact Plan 33,522 = = 30,170 Tieng 34 1as3 poets Ererr EEKStipMmETC nt) (etozre) ($1,541,915) | $9,964,429 4 Chief's overtime hours not included = while overtime hours increased by less than 1%, costs increased by 10% because of pay increases that went into effect in FY29,‘APD Overtime Assessment 2 Final Report Alist of the titles of each of the recommendations included in this report follows. Accountability Systems 4. Begin budgeting for overtime at the Department ID level. 2. Provide Commanders with data about overtime usage and hold them accountable for managing, overtime. 3. Encourage direct supervisors to adjust work hours when appropriate. 4. Centrally review overtime usage each pay period and hold Commanders accountable. ay Worked Overtime 5. Take Holiday Pay overtime into consideration when evaluating schedule changes. Coll for Service Overtime 6. Adopt plan for filling specialized unit and patrol positions. 7. Calculate minimum manning levels at the area command (rather than team) level. 8. Update minimum manning levels based on demand and a proactive policing service standard. 9. Ensure adopted shift schedule is the most efficient and effective deployment approach Training Overt 10. Develop training plan that maximizes amount of training completed during normal duty hours and ‘minimizes training completed on overtime. 111, Begin more accurately tracking the full impact of training on overtime by adding additional ‘overtime codes. 12. Establish and enforce training attendance guidelines. 13, Review training management systems currently in place throughout the City for opportunities to more efficiently and effectively manage training. 14, Adopt minimum number of years for specialized positions ‘act Plan Overt 15. Explore opportunities to minimize the amount of non-grant funded tact plan activities completed on overtime. Call Out Overtime 416. Conduct preliminary assessments to minimize the amount of unnecessary call out overtime. Investigative Overtime 17. Evaluate opportunities to provide the Investigative Services Bureau with additional administrative support. Court Overtime 18. Work with Metro and District Court to limit officer court appearances. 18. Work with Metro and District Court to optimize scheduling of officer court appearances. 20. Implement an early notification system to ensure officers do not show up to court unnecessarily e ond Community Me Adenia 21. Stop approving administrative overtime and community meeting overtime. Administrotive Improvemet 22, Clarify overtime code definitions. 23. Track where employees work overtime, not just their origin. 24. Fully leverage scheduling capabilities of TeleStaff. 25. Separate Chief's overtime from ather sources of overtime. 19 OvertimeAPO Overtime Assessment 3 Final Report Introduction and Background In November 2018, APD and DFAS were asked to work together to identify opportunities to minimize overtime while maintaining service levels. Employees from Central and APD payroll, the Department of Technology and innovation (OT), and throughout APD were interviewed as part of this project. Appendix Aincludes a full ist of the contributors. Overtime costs have been steadily increasing since FY14. The following figure shows how sworn overtime costs have increased while sworn officer staffing levels have decreased over the last nine fiscal years. Figure 1: Total Overtime Expenditures? and Sworn Officer Staffing Levels, FYIO-FY8 ‘APD Overtime Budget vs. Actual $6,000,000 3,200 $24,000,000 2,000 $12,000,000 $10,000,000 — Tecate a0 {$8,000,000 ne 600 $6,000,000 $8,058,422 i $4,000,000 $2,000,000 200 so : 2010 20120122013 2014-2015 2aNS 072018 ——0T Expenditures Sworn Officers The following sections provide the background information necessary to fully assess the overtime situation in APD, Overtime Approval Process Generally, all overtime must be 1) approved by the on-duty supervisor or 2) pre-approved by 2 Commander or Deputy Chief. When the need for overtime is identified by an employee, they seek a verbal approval to work overtime from their supervisor. Once the overtime has been worked, itis entered in TeleStaff (the system used by APD to track time and labor) and must be approved by the supervisor in the system before itis pald out. Overtime Type Definitions When a sworn employee enters overtime into TeleStaff, one of 12 overtime codes are available. Formal definitions for each overtime code do not currently exist. However, command staff provided the following summary of when each overtime code is typically used! 2 Excluding cilian overtime expenditures. * Only includes Patrol Officers, Sergeants, and LieutenantsAPD Overtime Assessment 4 Final Report Administrative: Report writing, reviewing videos, etc. Call for Service: Staying beyond the end of a shift to finish a cal for service; called in to provide normal shift coverage; temporary upgrades (e.g., when a Patrol Officer fils in as Sergeant for a shift), Call Out: Special unit (e.g., SWAT, ete.) after hour calls. Being called out while on call, Any time after hours. Only if they are on call. Community Meetings: Community Policing Council me associations, ete. Court: District Court, Metro Court, Federal Court, MVD Hearings, and Grand Jury appearances. Extra Shift: use unclear. Holiday Worked: Sworn personnel are paid straight time for holidays not worked and straight pay plus time and a half (2.Sxbase pay) for holidays worked. Investigative: Investigations by detectives or officers. Police Chief's: off-duty police officer program (ie., security, traffic control for movie shoots, etc.) [APD is reimbursed by businesses for expenditures associated with this type of overtime. Not included in the analysis. Tact Plan: special operations and grant-funded special initiatives, ‘Temporary Employee: use unclear. 1g: Mandatory training outside of normal duty hours. 1s, ORAS at substations, homeowner Trai Overtime Hours by Type ‘As can be seen in the following figure, Holiday Worked overtime makes up the largest portion of the overtime hours used by APD (19%), followed by Call for Service (16%), Training (13%|, Tact Plan (12%), ‘and Call Out (10%). Figure 2: Percent of Overtime Hours by Type, FYI8 Overtime Hours by Type Community Adrien Mestre spec events > Ivette a 3 Tact Pan 12%AnD Overtime Assessment 5 Final Repor. ‘Table 2: Number of Ovartine Hours by Type, FYIO.FYI6? a ‘gaa Rennie 3a LY 2788. ase as HOST 8S UGS DSH BHR TOSI, Galtersenice 105676029075 00a 7307S 271532 35027 maa mom «HTK _—_33505 coos Mavi ism toon Myst zion mes zs BLO TOM aK ATET Conmunky Meeting SS 128—=T—= 26035052? STL 2am amim 2762 cour S747] S647 39257 ase 36285 35797 OM ATE Tae ON eA foldayWorked 36323 35025 39030 37,911 99025 «00G0 36510 55312 Shas aK S565 Imenigtive «S87 AML U4SHL 35009 IS6IS TIE 24% 9394 Da TK BT Specalvens 9424 3ast—Ga1S ‘ak inoas 11473 15625 175m0 Sas? 1K Se Teton mares 7389 2576, 299 31255 3020 2879 W576 BSN OKT Temporery 2 8 wok | 4 fe Enoiyee Toning ao 3050 2952, 248 A0a7 1559 259159979 361K aL Chane rom Pe 5k KKK KOK AEE: ‘The folowing figure shows how the various types of overtime have change In recent years. Notably, Holidays Worked, Call for Service, and “Tesning overtime types have increased substantially since FY Meanwhile, Court overtime has decreased * chiefs overtime hasbeen exes trom tis arly because APD is reimburse for al Chis overtime horsAPD Overtime Assessment 6 Final Report Figure 3: Overtime Hours by Type, FY10-FYI8 Overtime Hours by Type so000 —Aaiistrative soo00 cal for servce callout 0000 Community Meeting coun 30000 —Hldey worked —invertentve 20000 someie tect pan 0000 Temporary Employee oO —$<$<—<$—$< ee 2010 201120122013 2014 «2015-2016 20172018 The following section explores each type of overtime in further detail and then presents opportunities to inimize unnecessary overtime. Recommendations While overtime can never be fully eliminated, management controls can reduce costs and improve accountability, thus ensuring that overtime is only used to maintain service levels despite workload peaks or staffing shortages. While controling APD's overtime may seer ike an insurmountable challenge at first because of recent trends, opportunities do exist to minimize unnecessary overtime. Implementing internal controls and being strategic about the deployment of limited resources until APD reaches full staffing are key to managing overtime expenditures. While the intention to control overtime must come from the top, front-line employees and supervisors might have excellent ideas for controlling overtime and should therefore be empowered to tackle this challenge as well. A total of 25 recommendations to minimize unnecessary overtime are included in the following sections. Accountability Systems Reportedly, overtime has historically been used within APD as a morale booster. This practice has resulted in overtime becoming almost an expectation. Understandably, given this history, management controls, and accountability systems either do not exist or are not enforced. This lack of management is one of the key drivers of overtime costs. The recommendations in this section aim to establish or reinvigorate the systems and structures necessary to control unnecessary overtime.APD Overtime Assessment 7 Final Report 1. Begin budgeting for overtime at the Department ID level. Currently, overtime is budgeted at the Department level, which means APD as a whole has @ budget for overtime. However, overtime decisions, and therefore costs, are actually managed at a lower level. Not ‘budgeting at a level closer to where approvals occur creates a disconnect that makes it difficult to actually manage the budget. It is recommended that overtime expenditures be budgeted at the Department ID level (e.g., APD Academy, Real Time Crime Center, individual area commands, etc.) so that Commanders can then be held accountable for controlling overtime costs within their divisions. 2. Provide Commanders with data about overtime usage and hold them accountable for managing overtime. In order to set the expectation that Commanders manage overtime, they must be given access to appropriate reports. Therefore, it is recommended that overtime trends and analysis be provided to Commanders and their direct reports. It will be important that the data points reported be useful, particularly given the fact that overtime will fluctuate when vacancies occur within a Department ID. 3. Encourage direct supervisors to adjust work hours when appropriate. Whenever possible, when an employee has to work late one day, supervisors should be encouraged to have that employee come in late or leave early the next day rather than having that employee work overtime. Reportedly, Crime Scene Technicians (civilians in the Investigative Services Bureau) work 8am- Spm, but are paid overtime for their commute to and from work because they might be dispatched to a crime scene. However, it would make more sense for supervisors to flex employee schedules or pay overtime only when they are dispatched to a crime scene after hours. This is just one example (and it should be noted that civilian overtime was not included in this analysis), but there are likely many opportunities for employees to flex hours in some functions i that expectation were set with supervisors 4. Centrally review overtime usage each pay period and hold Commanders accountable. ‘An overtime budget can be consumed by small entries ~a few hours here and a few hours there add up quickly. There are anecdotal reports that this is happening within APD, wi ts to a management issue Shift holdovers is @ prime opportunity for overtime abuse, and provides a good example of the impact ‘aggressive management could have on behavior. The majority of Call for Service overtime hours (60%) appear to be from call holdover while the remaining 40% result from officers covering an entire shift. The portion of Call for Service overtime that results from backfilling shifts is expected to decrease as the umber of officers increases. However, the portion of Call for Service overtime that results from hold overs will not decrease without action on the part of managers. The number of times an officer stays over at the end of a shift has more than doubled in the last nine years. The average length of shift holdover overtime is three hours. The following table estimates the umber of times officers stayed over or covered entire shifts.APD Overtime Assessment 8 Final Report ‘Table 3: Estimated Number of Extra Shifts and Shift Holdovers, 2010-2018 EORED TEE EME CME CREE CRETE Extrashifts 149 129 142 198 71S 1,028 1,541 1,040 1,853 Holdovers 4,689 3,526 3,472 4,227 6,024 6,769 8,235 7,824 9,975 This increase is concerning, particularly given the fact that the frequency of shift holdover overtime varies widely from officer to officer. For example, in 2017, officers stayed late during 6% of their shifts on average. However, some officers stayed late more than one third of the time. This points toa management issue that should be addressed. As staffing levels increase, it would be reasonable to expect the number of shift holdovers to also decrease. With aggressive management, it would be reasonable to expect the Department to drop down to 2013 call holdover levels, which would save APD approximately 10,000 hours of overtime. Itis recommended that overtime usage be reviewed at the end of each pay period ~not only for that pay period, but trends in the prior three to six months should also be reviewed to catch potential abuse, The Budget Office or Central Payroll would likely make the best auditors, Holiday Worked Overtime The current Collective Bargaining Agreement (CBA) between the City and the Albuquerque Police Officers Association (APOA) requires that Holiday Pay be paid to any police officer at a rate of 2.5 times their regular wage ifthe officer works an offcil City Holiday. Looking back over 9-year period, holiday overtime hours represented about 18% ofall overtime hours recorded by Police. Beginning in FY37, there was a noticeable increase in the number of overtime hours coded as Holiday Worked. That year the number of hours jumped from below 40,000 to over 50,000 per year. The following figure shows the trend from FY10 through FY18. Figure 4: Holiday Overtime Hours for Sworn Personnel, FY10-FY18 Holiday Worked Overtime Hours 50.000 50.000 40,000 30,000 20,000 10,000 210 tor. 2015 S217‘APD Overtime Assessment 9 Final Report 5. Take Holiday Pay overtime into consideration when evaluating schedule changes. ‘A more thorough review of payroll data revealed the significant change began in August of 2018. Conversations with Central and APD Payroll pointed to a change in officer shift schedules that began on the pay period of August 20, 2016 when field officers moved from 8 and 10-hour shifts to 12-hour shifts. ‘The change affected more than 400 officers, sergeants, and lieutenants assigned to the Field Services Bureau. At that time, an MOU to the Collective Bargaining Agreement was signed by the City of Albuquerque and the Albuquerque Police Officers Association. The MOU was initiated by the City based ‘on recommendations from a staffing study performed by Alexander Weiss Consulting, LLC in 2015. The ‘move to longer shifts was an effort by the Department to maximize the coverage for calls for service with a limited number of filled officer positions. Itappears the Increased cost of paying overtime was an unintended consequence of the move to 12-hour shifts. Using simple math, a move from 8-hour shifts to 12-hour shifts results in a 50% increase in hours ‘worked (and therefore paid) on any given holiday. The graph below shows that is almost exactly what happened - there was a 53% increase for two months selected: January, which has two paid holidays; and November, which as 3 paid holidays. Figure 5: Holiday Overtime Hours for Sworn Personnel under New Schedule, FY14-FY17 Holiday Overtime Hours Under 12-Hour and 10-Hour Shifts 1,000 4,000 14,000 12,000 10,000 oe 000 . 6.000 4,000 2,000 ° 2014 201s 2016 2017 seJanuary (2 Holidays) m November (3 Holidays) With the exception of about 30 individuals, most APD officers in the field no longer work 12-hour shifts. The latest CBA with APOA removed the 12-hour shift requirement and reverts to mostly a 10-hour shift schedule as shown in the following bar graph.APD Overtime Assessment 10 Final Report Figure 6: Change in Shift Schedules, FYI6-FY18 Field Services Bureau - Shift Bid Requests 450 400 350 300 250 200 150 100 2016 2017 2018 12sHour = 10-Hour = 8-Hour The reversion to shorter shifts took place August 17, 2018. Since most officers are now on 10-hour shifts, is expected that overall hours will settle at least 20% higher than years prior to FY16 when most officers were working 8-hour shifts. The Performance and Innovation Officer is in the process of evaluating the Field Services Bureau's shift schedule and will take the overtime implications for each schedul consideration. Call for Service Overtime {all for Service overtime, which captures when officers are held over at the end of a shift or when they come in to cover a shift, was the third largest culprit of overtime in FY18. Overall, this type of overtime increased by 229% over the last nine years. Understandably, Field Operations is responsible for most of this type of overtime. The following figure shows how this type of overtime has changed in recent years. Figure 7: Call for Service Overtime Hours, FY10-FY18 Call for Service Overtime Hours ‘50.000 45,000 40,000 35,000 30,000 25,000 20,000 15,000 10,000 5000 2oio 0120122013020 2017218APD Overtime Assessment a Final Report The two types of overtime captured in this one code will be discussed separately because their culprits differ. Overtime resulting from officers covering entire shifts can be expected to decrease as staffing levels, increase. Meanwhile overtime resulting from staying on at the end of a shift will never completely go away due to the nature of the work, but it may be possible through policy and oversight to minimize abuse of this overtime type. 6. Adopt plan for filling spe In 2018, the number of filled APD positions has increased by 91, 55 of which are sworn, However, during that same period, the number of filled positions assigned to the area commands decreased by six. The following figure shows how, while the number of filled sworn positions has increased throughout the year, tthe number of filled positions assigned to the area commands has not increased. Figuee 8: Filled Sworn Positions, 1/2018-11/2018 Filled Positions 900 800 00 600 90 400 300 200 100 a 2/18 2A IAS 3/L 3/5 3/29 4/22 4/26 5/20 5/24 6/7 Gar TIS TAO a/2 B/S6 8/30 9/23 9/27 ofO/ES AA/8:33/22 trea Command Swan Swern Reportedly, as new cadets and laterals complete training, positions in specialized units are being filled by more experienced Patrol Officers, which explains the decrease. It is recommended that department leadership review all vacancies and develop a prioritized list for filing specialized unit vacancies and patrol vacancies. It may be that vacancies in certain specialized units take priority over vacancies in patrol, but the distribution of officers should be intentional. As the staffing level of the patrol function increases, Call for Service overtime should be expected to decrease. Currently, most patrol teams are staffed at the minimum manning level, which means all vacation and sick leave must be covered through overtime. The following table shows the minimum ‘manning level of each area command, the number of officers required to meet that minimum manning, level without requiring overtime, and the number of officers assigned. Essentially, the patrol function requires the assignment of 65 officers in order to eliminate the use of overtime to cover vacation and sick leave. It should be noted that this shortage does not include command staff — only Patrol OfficersAPD Overtime Assessment R Final Report Table 4: Patrol Officer Shortage in Area Commands CSM fe ar fe een Ts OST ea ae ed Cre fer tal eer) Foothills a2 51 43 8 Northeast 60 R 60 “2 Northwest 42 s2 a1 -10 Southeast 69, 90 n “19 Southwest 41 50 44 6 Valley 49 53. 49 TOTAL a Ez) Ea Asstuming approximately 80 cadets and 60 laterals (half in January and half in July) join APD each year, this shortage could be eliminated in January 2019 if no specialized positions are opened up when the new Patrol Officers are fully rained, which would eliminate approximately 15,000 hours of overtime. it should be noted that there might be an opportunity to adopt minimum manning levels and a shift schedule that ‘are more effective and efficient (as discussed in forthcoming recommendations), essentially reducing the shortage and allowing for specialized positions to be opened. 7. Calculate minimum manning levels at the area command (rather than team) level. Minimum manning levels are critical in public safety operations as they 1) ensure officer safety and 2) represent a level of service commitment to the community. Currently, Field Operations has a unique approach to minimum manning levels. Each team is tasked with achieving the minimum manning level of 70% of scheduled officers in order to ensure the patrol function achieves that standard overall. As a result of this approach, one team might be understaffed and have to offer overtime while another team might be staffed above the minimum. It is particularly challenging for teams with vacancies or officers on long- term leave to meet minimum manning standards, which impacts both overtime and morale. It is recommended that minimum manning levels be calculated at the area command level rather than the team level. The expectation would be that an officer from an overstaffed team could be assigned to an understaffed team for a shift. itis not possible to estimate the impact of calculating minimum manning levels at the area command level due to limitations in the way overtime data is tracked. Currently, when an officer works Call for Service overtime, the system attributes that overtime to the officer's area command not the area command in which they worked the overtime. Additionally, information at the team level is not available at all. This recommendation is also expected to have minimal impact on overtime while the patrol function is grossly understaffed as teams are rarely meeting minimum staffing levels without overtime. However, as the patrol function becomes more adequately staffed, the expectation should be that minimum manning levels be calculated not at the team level, but at the area command level.‘APO Overtime Assessment 3 Final Report 8. Update minimum manning levels based on demand and a proactive policing service standard. In addition to calculating minimum manning levels at the area command level immediately, it is recommended that, in the long-run, APD's approach to minimum manning levels be adjusted. Rather than having @ minimum manning level that is a percentage of the number of officers scheduled, it is recommended that an actual number be adopted based on the calls for service workload and the desired proactive policing service standard. The International Association of Chiefs of Police (IACP) recommends that patrol operations be staffed and scheduled so that officers spend approximately one-third of their time engaged in directed calls for service, one third of their time completing the associated administrative activities, and one-thicd of their time engaged in proactive policing activities; this is what is referred to as 2 33% proactive policing service standard. The proactive policing service standard being delivered by APD is currently unknown. Amajor benefit of the 10-hour shift schedule isthe fact that all officers can be scheduled to work one day per week (the overlap day). For example, if some teams are scheduled to work Monday through Thursday ‘while other teams are scheduled to work Thursday through Sunday, Thursday becomes the operation's overlap day. Often organizations leverage this overlap day to complete training during regular duty hours. However, ifthe minimum manning level is a percentage of the total scheduled officers, then the minimum ‘manning level jumps on the overlap day, which means that day cannot be used for training. ‘According to APO's Operations Review Division, the current minimum manning levels are based on calls for service. However, documentation of the analysis conducted to determine the current minimum ‘manning levels could not be provided. Additionally, a desired proactive policing service standard has not been established and is therefore not included in the minimum manning calculation. The Performance and Innovation Officer has conducted the analysis necessary to propose minimum manning levels for various proactive policing service level standards, which are ready to be presented when APD is ready to have a service level discussion. 9. Ensure adopted shift schedule is the most efficient and effective deployment approach. In 2015, the City commissioned a Comprehensive Staffing Assessment and Resource Study. This report recommended the number of officers that should be assigned to each area command under two deployment approaches: 8-hour shifts and 12-hour shifts. It explicitly stated that 10-hour shifts should not be adopted by APD. However, it appears the results of this study were not implemented as in August 2018, most of the Field Operations Bureau transitioned from 8-hour shifts to 10-hour shifts. Reportedly, this change was made primarily to build an overlap perlod into the day so shift transitions could be effectively managed. It was also thought that 10-hour shifts would boost officer morale. Unfortunately, 10-hour shifts are rarely the most efficient deployment approach as they involve three watches providing 30 hours of coverage each day (8-hour shifts involve three watches providing 24 hours of coverage and 12-hour shifts involve two watches providing 24 hours of coverage). Therefore, more officers are required to provide the same level of service to the community. Although often a less efficient schedule, many organizations adopt 10-hour shifts for two main reasons: 1) if their calls for service workload has a six-hour peak period or two three hour peak periods during ‘which having shifts overlap is beneficial or 2) if they want to take advantage of having an overlap day each week, during which training can be completed. Reportedly, one of the reasons APD adopted a 10-hour shift schedule was to minimize shift holdover overtime, However, comparing September and October ofAPD Overtime Assessment Final Report 2017 (pre-schedule change] to September and October of 2018 (post-schedule change), hold over overtime has not decreased, Additionally, the way APD has implemented 10-hour shifts does not allow the Department to take advantage of either benefit; APD is not able to take advantage of the dally overlap hours because of the staggered schedule and APD is not able to take advantage of the weekly overlap day due to its 70% minimum manning level approach. Ultimately, it appears likely that the new 10-hour shift schedule has had the impact of increasing overtime, Itis recommended that APD explore various schedules. Once appropriate minimum manning levels have been finalized based on the service level decisions made as part of the previous recommendation, the Performance and Innovation Officer will work with APD to evaluate alternative deployment approaches that will allow the patrol function to most efficiently and effectively meet the adopted minimum manning, levels. Training Overtime A total of 13%6 of APD's overtime was coded as Training overtime in FY18. It should be noted that this does not capture the full picture of overtime associated with training as officers will often attend training during their regular shift (or adjust their schedule to attend on regular time), but the officer backfiling for that employee will log thelr overtime as Call for Service rather than training. As a result, most of the training currently being captured in this overtime code is likely associated with those individuals conducting training (instructors, Field Training Officers, and officers assisting with training) rather than those Individuals attending training. The following figure shows how overtime coded as Training has increased in recent years. Figure 8: Training Overtime Hours, FY10-FY18 Training Overtime Hours 40,000 3,000 30,000 25,000, 20,000 15,000 10,000 5,000 roo OLS 2012S 212TH Neighborhood Policing is responsible for most of the Training overtime hours (84%), followed by Investigative Services (11%), and Professional Accountability (5%). The following table shows the Training ‘overtime hours logged by each program. Table: Training Overtime Hours by Program, FYI0-FY18APD Overtime Assessment 15 Family Advocacy 19 48 2 19 1 100% “19 Comer i! este) 913 583 «(448 «465 485) 2,111 3,955 $,037 4,072 346% = 3,160 sort Pasone Transport Bye 7a) ae Hao PEreamErEr =) Pee cranes “35% 7% 14% 65% 279% 69% BOK HK : from Previous Year Several opportunities to reduce and better quantify Training overtime have been identified and are included in the following recommendations. 10. Develop training plan that maximizes amount of training completed during normal duty hours and minimizes training completed on overtime. Limited data is available regarding the training necessary for and completed by each APD employee because training is currently not planned or tracked centrally. This decentralized approach to managing training can be problematic as the responsibility for ensuring officers recelve the necessary training is placed on Sergeants. However, the APD Academy is in the process of trying to centralize the administration and management of training going forward. As part of this effort, the APD Academy is working to strategically plan training hours. ‘The training schedule should make every effort possible to ensure training be done during an employee's regularly scheduled shift and sent to supervisors to review and evaluate how their teams’ workload and staffing needs will be impacted and wherever possible adjust schedules. According to 11.3.2, with advanced notice a commander can adjust an officer's shift/days off on a temporary basis for training. In addition, it may be possible to more fully leverage overlap days, While most training overtime involves long blocks of time (ie., full-day trainings), approximately 41% of the Training overtime hours are completed in smaller blocks. In fact, non-full-day trainings typically average three hours in length, which means that it might be possible for 41% of APD's training to be completed without using overtime during overlap days. 11. Begin more accurately tracking the full overtime codes. Currently, an officer who backfils the shift for an officer in training will code their overtime to Calls for Service, which makes it difficult to quantify the full impact of training on overtime. Itis recommended that APD track overtime associated with training using the following codes:APD Overtime Assessment 16 Final Report ‘© Instructor Training: Captures time instructors spend learning to teach as well as time employees spend training others, including FTO time. © Student Training: Captures time employees spend attending training, © Training Backtil: Captures time worked to fill in for another employee that is attending training, 12. Estal and enforce training attendance guidelines. There have reportedly been issues with officers not showing up for scheduled training, which results in small classes one day and overflled classes another day, which sometimes requires additional trainings be conducted. This practice is costly to the City and could potentially impact the efficacy ofa training. APD should outline the guidelines for missing a scheduled training and implement consistent enforcement and disciplinary action. 13. Review training management systems currently in place throughout the City for opportunities to more efficiently and effectively manage training. Currently, APD uses a system called Appointment: Plus to schedule officer training. Meanwhile, the rest of the City organization uses the Talent Management module of PeopleSoft. There may be opportunities to more fully leverage existing systems. Having a single source of training records will enable the APD ‘Academy to more efficiently monitor and track training. 14, Adopt minimum number of years for specialized positions. Appointment to a specialized position often requires additional training, Also, as with any position, employees go through a learning curve when starting @ new role. Reportedly, APD employees are being assigned to new positions on a fairly frequent basis. It isa fairly common practice in the industry to set the expectation that employees will remain in their specialized position for a number of years (often two to three). Of course, the Police Chief should be allowed to move employees more frequently as necessary, but this should be the exception rather than the rule. It is also recommended that officer-initiated movement be limited to the shift bid period to limit the need for additional training, confusion, and the administrative burden associated with moving employees. Tact Plan Overtime Tact Plan overtime is the third largest source of overtime for APD. it includes special operations and grant- funded special initiatives. This type of overtime increased by 36% from FY10 through FY8. The following figure shows how the number of overtime hours coded as Tact Plan have changed in recent years. Figure 10: Tact Plan Overtime Hours, FYI0-FY18APD Overtime Assessment v7 Final Report Tact Plan Overtime Hours «0000 35.00 samo IE eg ee 25.000 2000 15000 10,000 5,000 pow 202022013, ale 20S 201620172 Neighborhood Policing is responsible for most (58%) of the Tact Plan overtime, followed by Investigative Services (38%) and Professional Accountability (4%). The amount of tact plan work completed by the Investigative Services Department is increasing significantly. The following table summarizes the number of Tact Plan overtime hours associated with each program. Table 6: Tact Plan Overtime by Program, FYI0-FY38 ere ear 8 Co Pree ee Se Se SCRE Pat) cee ‘Administrative Support Se Shee 5 S z Ge ee aes Family Advocacy 317 «307,30, 3693 B - - = 400% 317 Center frvestigative 3.684 4,748 5,913 6,832 7,877 8087 7,197 7,149 12,750 246% 9066 Services Nesag ce 19,740 21,064 18,676 20,791 21,520 21,173 19,553 17,432 19,543 1% 197 Professional Aecountauiity 922, 2071 951 1237 1826 LO 1429 14125 1.229 32% 288 Percent ‘Change from = 10%) 5% 13%) 7K 3H 7H 8H 30H, : : Previous Year 15. Explore opportunities to minimize the amount of non-grant funded tact plan activities completed on overtime.APD Overtime Assessment 18 Final Report Tactical plan activities are unpredictable in nature as operations address specific issues in the community. For example, during the holiday season, APD executed tact plans at many shopping centers to proactively address crime. This function is one of the Department's main avenues of proactive policing. Therefore, it is not recommended that the amount of tact plan work completed be reduced. However, there may be ‘opportunities to decrease the portion of non-grant-funded tact plan work completed on overtime. In order to ensure adjustments are operationally sound, it s recommended that APD explore opportunities to minimize non-grant-funded tact plan activities completed on overtime. Call Out Overtime ‘The amount of Call Qut overtime nearly doubled between FY10 and F¥18, peaking in FY17. The following figure shows how the number of overtime hours coded as Call Out have changed in recent years. Figure 11: Call Out Overtime Hours, FYI0-FY18. Call Out Overtime Hours 30000 25000 20000 15,000 10,000 5.000 zw 201k 2012203252127 The following table summarizes the number of Call Out overtime hours associated with each program. Table 1 Out Overtime by Program, FYI0-FYI8, oe CCE TUE Ee SCRE CMe Ce La Fame Ree eral call aa] aan | o38) tas) ft) se sox: Center Investigative 6643 6484 7,997 8032 8228 9,705 9,605 10825 10,561 59% Services Neighborhood 6.537 7,184 9053 7,856 11,269 10,356 11,987 16,232 15,560 138% Policing Prisoner a 2 wow om e008 Transport Pofeicel 938 1,085 1,130 1,505 1,624 1,846 © 980 1,052 900 4% ‘Accountability Change from FY10-18, Cons a4 3o18 9,023 9 38APD Overtime Assessment 19 Final Report Program Ero Ser Ce SEC CC CE pee Vie ercen Bie PROM CREM Cr NUEEE Me Le Me Aor ance Te Me SOON LO) ame change tony = 4% BK 4K: BK_H_HKH 4H ae aa Previous Year 16. Conduct preliminary assessments to minimize the amount of unnecessary call out overtime. Similar to Tact Plan overtime, opportunities to minimize Call Out overtime are limited due to the nature Of this type of overtime. However, some organizations have reduced unnecessary call outs by training staff to assess a situation and evaluate whether response teams are necessary. Some Investigations divisions have already begun implementing this practice. For example, the Special Investigations Commander has discouraged the use of Call Out overtime when there are no leads and detectives could simply begin their work during normal business hours. It is recommended that similar protocols be adopted wherever appropriate. Investigative Overtime Investigative overtime increased by 71% between FY10 and F418. The following figure shows how the number of overtime hours coded as Investigative have changed in recent years. Figure 22: Investigative Overtime Hours, FYI0-FY18. Investigative Overtime Hours 25,000, 20,000 15,000 _ 2010 ©2011-2012 2013.22 Understandably, most of the Investigative overtime is associated with the Investigative Services program (64%6), followed by Neighborhood Policing (35%), and Professional Accountability (3%) Table westigative Overtime by Program, FY10-FY18APD Overtime Assessment 20 Final Report Pact FOU EE yume OPE CRE TR SCR) CORE Ce Ao Percent Hour feoulenmet eozit ese}. 65 [eost|qaiazdy | 70 - : + -t00% 27 Investigative 5.353 6661 9,090 8896 10217 10671 11,385 12180 14765 81K 662 Poiemetneet 46854449 4.617 5.168 4470 5,943 9,090 7,466 8,108 73% 3428 Prisoner Transport z : ° ‘ i i : : Professional 578 648««731.«891.-S«« 807,988,166 G8 S87 2% 9 Eau FERIA MCE Percent Change from Previous = 14% 23% BKK 13K OH 8H 15% - - Year Je Services Bureau with ad 17. Evaluate opportunities to provide the Investig administrative support. Much of the overtime associated with the Investigative Services Bureau is driven by the deadlines imposed by the Case Management Order and vacancies that exist. While opportunities to minimize overtime from this Bureau are limited while staffing up the Fields Services Bureau is prioritized, the addition of civilian administrative staff might relieve some of the pressure felt by detectives. Court Overtime Court overtime made up 8% of total overtime hours worked by APD in FY18. Court overtime peaked in £Y13 and then has been declining ever since. The following figure shows how Court overtime hours have fluctuated over the last nine fiscal years. Figure 13: Court Overtime Hours, FY10-F¥18 Court Overtime Hours 45,000 40.000 35,000 30,000 25,000 20.000 15,000 10,000 5,000 roto met. 2012 2032120152 2017200APD Overtime Assessment 2 Final Report Most Court overtime (90%) occurs in Metropolitan (Metro) Court and District Court. Metro Court involves misdemeanor crimes, including traffic citations, shoplifting, DWls, drinking in public, fighting, criminal trespass, and certain domestic violence cases, among other charges. District Court invalves felony charges, which can also include domestic violence. Metro Court overtime currently makes up the majority of Court overtime (68%), followed by District Court (22%). The following table shows haw Court overtime hours have changed over the last nine fiscal years. Table 9: Court Overtime by Type, FYL0-FY18 ry aE SOM OU CRE SCC SCM CS pst Coonan District Court 2,482 2,521 2,758 2,899 2843 3,145 4,205 4,715 5,052 10% 2,569 Federal Court Grandlury 2,157 2,060 2,333 2,390 2128 1,705 1478 1089 1,006 -53% —-1,151 MetroCourt 29,520 27,885 31,619 33,635 29,110 29,310 25,029 20605 15316 -48% 14,203 mvp Hearings on Percent ‘Change from Previous Year 182 223,«137,««283,2_—s—s14?—ss06— 198 63 3136 1998 2,389 2,407 2,078 1460 1,200 941 1,019 -68% += -2,118 EVEL WESE EET) CE eres ee ae + 7% 13% GH -13%— 1H -10% 14% 186 : - Metro Court overtime hours have declined considerably from a high of over 30,000 hours in FY13 to ‘around 15,000 hours in FY18. There are a couple of theorles as to why Metro Court overtime hours have decreased. One theory is the lower number of officers in recent years has resulted in a lower number of citations being issued. The other theory is that the CASA caused proactive work to decline significantly due to increased scrutiny of officer activities and changes in use of force policies and procedures. The following figure shows how the types of Court overtime have fluctuated in the last nine fiscal years,APD Overtime Assessment 2 Final Report Figure 14: Court Overtime Hours by Type, FYI0-FY18 APD Court Overtime Hours Worked 0132 20S «206.2017 oF - District Court —OF- Federal Court —~ OT - Grand Jury ‘The following figure removes the Metro Court line so the trend in District Court overtime can be assessed. District Court overtime jumped from just under 3,000 hours in FY14 to over 5,000 hours in FY18, According to both APD and District Attorney Office staff, the increase in District Court overtime is very likely associated with the 2015 Case Management Order, which addressed issues of backlog by placing tight timelines and strict rules on prosecutors to keep cases from stalling. With more cases being completed by the case preparation specialists in APD and turned in by the requested date, the District Attorney's Office is now able to follow through on the prosecutions. This may be leading to the spike in court appearances. Figure 15: Court Overtime Hours by Type (Metro Court Overtime Excluded), FYI0-FY18. ‘APD Court Overtime Hours Worked 6000 5000 4000 ‘\p00 rio oll 2022 2017 OT Distiet cout. ——or -Federat court T-Grand.tury ——OT- MvoHearngsAPD Overtime Assessment 23 Final Report ‘The following recommendations aim at limiting the amount of Court overtime. It should be noted that, in November 2018, APD published 2 memo titled Officer's Unnecessary Time Spent in Court. Many of the recommendations in this section are based on that memo. 18. Work with Metro and District Court to limit officer court appearances. Currently, officers may be required to be in court although they did not witness any of the crime and only assisted by completing a criminal summons. For example, in a domestic violence case, an officer might arrive on scene and document the incident, but never actually witness any crime. That officer would then bee subpoenaed to court to document the date, time, and jurisdiction. Everything else he/she documented would be considered hearsay. Another example, in a shoplifting case, an officer might arrive on scene after the suspect has already been detained. That officer might issue a citation and then be required to show up to court. Itisrecommended that the need for an officer in court be established priar to scheduling ‘an appearance. More detailed police reports would help in reducing the number of officers called in to appear in court that ultimately do not add any value to the case. Specifically, porting on the police report as to the exact role each officer played in the incident would be very helpful to avoid having all of the officers called in when they may have merely been blocking the perimeter, managing the towing service, providing backup, and not witnessing anything. Therefore, its recommended that APD create an SOP in conjunction with the courts on officer report writing to require detailed information in the reports as to the exact role each officer played in the incident to avoid officers being scheduled unnecessarily Opportunities also exist to eliminate the need for an officer to appear in court for certain types of cases altogether. For example, certain types of cases might be better suited to be assigned to traffic arraignment or other arraignment type hearings, which lessens the need for an officer to appear. Officers are required to show up to court for traffic offenses. Many states do not require officers to be in court for traffic citations. Judge uses what officer documented in traffic citation narrative and if found guilty, judge reviews defendant's driving history to determine reasonable sentencing, 19. Work with Metro and District Court to optimize scheduling of officer court appearances. APD officer availability is entered into a system called Court Services Information System (CSIs), a web- based portal that communicates with Odyssey, the Metro Court's officer scheduling system. There are several opportunities to improve officer scheduling. First, its critical that accurate information about officer schedules be included in CSIS. A Court Services supervisor used to determine and input officer availability in the system, but that is no longer the practice. Inthe last bid, APD officers selected their own court availability, which allows officers to mark themselves as available on their days off. Officers have reportedly been allowed to select their own court availability, which is partly used as morale booster, for more than two years. APD should either revert back to the old approach or, alternatively, require that a supervisor and/or Court Services formally review and ensure ‘that only days in which officers are schedule to be at work are provided to the courts for scheduling, Second, the scheduling of an officer comes as a direct push from Metro Court. While Metro Court schedulers can see officer availabilty, they have the ability to override the system and schedule an officer when unavailable (ie. day off or not on duty). In many cases, the courts are scheduling based on the Judges’ availability, but the attorney's availability may also taken into consideration. There is 2 perception that some attorneys base their availabilty on an officer's day off, hoping that they will not show up. One ‘example was given of a DWI case requiring an appearance of an officer 22 times. Its recommended thatAPD Overtime Assessment 24 Final Report ‘APD work with Metro and District Court to schedule officer court appearances during each officer's shift and group cases whenever possible. Third, many individuals are involved in officer scheduling, which can lead to confusion. The attorney's paralegal at District Attorney's office schedules officers for court/preliminary interviews, Metro Court schedules officers, APD Court Services schedules officers, Public Defenders office schedules officers. It may be beneficial for APD to provide court employees with a scheduling refresher training. It might also help to disallow court employees from overriding the system for scheduling off-duty officers unless there is a true emergency situation, which would need to be defined and agreed upon by all parties. DA Office staff noted that many different parties do the scheduling and sometimes have limited options to select dates that officers are available, Nonetheless, they were open to and thought adcitional training ofall ‘employees involved in court scheduling would be helpful Finally, itis also recommended that APD initiate discussions with each court regarding their schedules. Metro Court operating hours are Monday through Friday, 8:00 to 5:00 p.m. This is inconvenient for some officers, such as DWI officers, who either work Wednesday through Saturday or Friday through Monday. Exacerbating this problem, Metro Court has done away with traffic arraignment on Fridays. Additionally, District Court preliminary hearings are only scheduled on Tuesday, Wednesday, Thursday either at 1330 or 1530 hours. It is recommended APD work with the courts to reach a mutually beneficial arrangement regarding the schedule. 20. Implement an early notification system to ensure officers do not show up to court unnecessarily. Generally, 2 defendant can “plea out” as part of the Early Pleading Program (EPP), which allows for community services, fines or fees. However, in many instances, APD officers are not notified and they show up for court, which can lead to a minimum of two hours of overtime being paid. Additionally, domestic violence cases are dismissed when a victim is not going to show up, so its recommended that the DAs Office use a system of early notification to dismiss such cases ahead of time. Administrative and Community Meeting Overtime ‘Administrative overtime makes up about 5% (13,547 hours) of the total overtime and community meeting overtime makes up about 1% (2,821 hours) of total overtime. The following figure shows how administrative and community meeting overtime have increased in the last nine fiscal years.APO Overtime Assessment 25 Final Report Figure 16: Administrative and Community Meeting Overtime Hours, FY10-FY18, Administrative and Community Meeting Overtime Hours 16,000 s4,po0 12,900, 10,000 3,000 6,000 4,000 2,000 roi O20 2a 21S 017 2 ministrative —=Community Meeting 21, Stop approving administrative overtime and community meeting overtime. Both Administrative and Community Meeting overtime must be approved by a Commander in advance and can therefore be more easily regulated. It is recommended that these two types of overtime be limited or eliminated completely. Administrative Improvements The recommendations in this section aim to improve how overtime is tracked and reported so that it can be better managed in the future. 22. Clarify overtime code definitions. Definitions for each overtime code have not been formally documented. As a result, there appears to be some roam for interpretation, which leads to inconsistency. Far example, there is an overtime code called Extra Shift, but it appears to be minimally used. Rather, Patrol Officers that come in on overtime to cover an entire shift code that as Call for Service Overtime. Training is another overtime code that could use clarification. Currently, if an employee is sent to training and another employee covers that shift, no Training overtime would be logged it would appear as Call for Service overtime. itis recommended that APD define each overtime code and then communicate those definitions to employees. 23. Track where employees work overtime, not just their origin, Currently, the amount of overtime required by each area command cannot be assessed because overtime 1s logged based on the person working the overtime shift. For example, if a Patrol Officer typically works ut of the Valley Area Command, but covers an overtime shift in the Southwest Area Command, that overtime will be associated with the Valley Area Command. Its recommended that APD work with OT! to determine if it might be possible to begin tracking more detailed information about where overtime is worked.‘APO Overtime Assessment 2 Final Report 24. Fully leverage sched APD owns a powerful scheduling software, called TeleStaff. However, the full capability of the software is not currently being leveraged. For example, shift and vacation bidding is currently a time-consuming pracess in which all employees come together during a few set times to select schedules. TeleStaff is capable of completing this process virtually, avoiding the need to get everyone into one room. TeleStaff is also capable of identifying gaps in the schedule (where the minimum manning level is not going to be met) caused by scheduled leave and proactively filling being those slots by soliciting overtime. TeleStaff can also follow a formula for offering and scheduling overtime shifts, eliminating the currently manual process. It is recommended that APD meet with DTI to better understand the capabilities of the system and then develop plans to begin fully leveraging those capabilities that meet APD's needs. 25. Separate Chief's overtime from other sources of overtime. ‘APD is reimbursed by local businesses for the costs associated with Chief’s overtime. While budgeted and tracked separately, Chief's overtime data is often presented as part of a broader overtime picture. This can be misleading as often the conversation centers around the desire to control overtime costs, but a reduction in Chief's overtime would not have the same financial impact as a reduction in other sources of overtime, Given the Department's current staffing constraints, it may not be possible to provide Chief's overtime without negatively impacting the operation. Administrative Order 3-20 states that officers are limited to 25 hours of total overtime for any given week. This limitation was adopted for safety reasons. However, an average of 51 officers exceeded the limit each week during the first 47 weeks of 2028. In addition, some overtime opportunities (particularly grant-funded operations) are reportedly going unfilled. Given the current policy, which should be enforced for safety reasons, it may be necessary in the short term to limit Chiefs overtime until staffing levels are adequate. Then, as overtime demands decrease, the cap on Chief's overtime could be removed to maintain morale within the Department.‘APD Overtime Assessment 7 Final Report Appendix A: Contributors The following individuals contributed to this effort Paul Chapman — Associate Chief Information Officer Sarah Endicott - Payroll Manager Marcie Baca — APD Payroll Officer Aubrey Thompson — APO Fiscal Manager Uleutenant Michael Meisinger- APD Academy Deputy Chief Arturo Gonzalez ~ APD Investigative Services Bureau ‘Commander Mark Velarde ~ APD Investigative Services Bureau Commander Paul Duran — APD Investigative Services Bureau ‘Commander Christopher George ~ APD Investigative Services Bureau ‘Commander Mizel Garcia ~ APD Investigative Services Bureau Deputy Chief Harold Medina ~ APD Field Operations Bureau Lieutenant Johnny Yara - APD Operations Review Division Helen Rogers ~ APD Court Services Lieutenant Donovan Rivera ~ APD Metro Traffic Division Robert Padilla —Court Executive Officer with Bernalillo County Metropolitan Court Jason Greenlee — 2" Judicial District Attorney's Office Rachel Eagle ~ 2° Judicial District Attorney's Office Candace Coulson — 2" Judicial District Attorney's Office