city of covington, la

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


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.

https://webmail.covla.com/owa

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


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


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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.


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.

I - 6

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

II - 2

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.

II - 3

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.


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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


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

II - 9

− 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

II - 10

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.

II - 11

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.

II - 12

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


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.

II - 13

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


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.

II - 14

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)

II - 15

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.

II - 17

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


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.

II - 18

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


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

II - 19

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


Current Organization for Civilian Employees

Note: Civilian employees in green


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.

II - 21

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.

II - 22

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.

II - 24

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).

II - 25

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


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



U5545 2010 Training Sergeant X

U5559 2011 X Traffic Sergeant

U5540 2009 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




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

II - 28

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

II - 29

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.

II - 30

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


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


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


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


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


Current Organization


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


Calls by Day of Week: 2010

Note: Calls for service totals vary slightly between fire department exhibits due to differences in source data


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


Calls by Time of Day: 2010

Note: Calls for service totals vary slightly between fire department exhibits due to differences in source data


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


Response Time per City District

Percentage of Call Responses Achieving Four or Five Minute Level

Note: Mutual aid calls not included


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


Average Response Time per City District

Note: Mutual aid calls not included


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


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


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


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


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


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 No 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







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



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



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


APPENDIX B

KELLY DAYS - 3 MONTH ILLUSTRATION

APPENDIX B


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)


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

city of covington, la

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