HP turnover is a problem due to high financial and public safety costs.

Chapter Summary

Despite widespread perceptions to the contrary, HP’s turnover has been low.  Nevertheless, there are relatively high costs associated with HP turnover, one of which is decreased public safety.  HP officers who have left have done so primarily for wage-related reasons, and dissatisfaction with pay was often discussed in connection with unaffordable health insurance benefits for dependents.  Working condition issues closely followed wages as the cause of HP turnover, and the two are highly interdependent. 

We believe HP turnover warrants ongoing monitoring by the executive branch, due to its significant financial cost and the criticality of HP’s mission to provide public safety.  HP turnover could be addressed by increasing recruitment efforts, which would help to alleviate undesirable working conditions and increase retention.  Further, more cost-efficient ways for WYDOT to provide quality screening and training may be identified, as these account for the majority of turnover costs.  A legislative role may also be necessary to address turnover issues such as wages, health insurance benefits, and increased position authorizations.

HP Turnover Rate Relatively Low

Despite rumors,

HP turnover rate

has been

relatively low.

Despite rumors that it has been high, HP turnover has remained below 10 percent over the past five years.  In 1999, its average turnover rate was 9.4 percent.  This is lower than WYDOT’s overall rate of 10.6 percent, and below the 13.7 percent average for all state employees.  HP turnover also does not appear to be a nationwide issue.  Being above or below average is not an indication of the costs associated with turnover or the criticality of the occupation, as explained in Chapter 1.

In Wyoming, turnover among HP officers has been perceived as a problem for years.  In the Legislature’s 1993 Task Force 7 compensation study, policymakers were specifically requested to include consideration of the Highway Patrol.  In 1999, the Revenue and Expenditure Committee identified HP turnover as an issue of concern.  Nevertheless, we found that HP’s turnover rate has been lower than perceived.

Fully 68 percent

of HP officers

had been with HP

for 5 years or more.

The long tenure of HP officers is another indicator of relative stability.  In 1999, 68 percent of officers had been with HP for 5 years or more, and 84 percent for 2 years or longer.  Furthermore, the scarcity of literature on HP turnover compared to the other occupations we studied suggests that this is not an issue of national concern.  On the other hand, prolonged HP vacancies are a problem, especially in locations that have few officers, and when an area has a higher incidence of turnover, as in Rock Springs and Jackson. 

HP Costs Are the Highest
Among the Four Occupations

Replacement and training accounted for the majority of

A lower comparative HP turnover rate can be misleading when, at the same time, HP turnover has significant costs associated with it.  HP has the highest turnover costs among the four occupations studied. 

costs.

For FY99, HP’s estimated total cost of turnover was $813,148, with each officer’s departure costing $54,210.  Replacement costs of  $464,847 accounted for the largest portion, 57 percent.  At $330,225, pre-employment tests were the most expensive component of replacement costs. 

Another 40 percent of the total costs, or $327,925, was for training.  Twenty weeks of training at the WLEA account for the majority of training costs, in addition to which there were some costs associated with on-the-job training.  Separation and vacancy costs for this occupation were negligible. 

Replacing an officer takes 8-12 months, resulting in decreased safety, additional on-call and stress for those who remain.

The qualitative costs of vacancies are significant, both for the officers who remain and potentially to public safety.  Replacing an officer can take 8 to 12 months.  This lag time has a direct impact on those who remain and can contribute to further turnover.  Losing even one HP officer can have an especially negative effect in areas with only a few officers, such as Jackson and Wheatland.  Turnover results in less coverage and back-up for officers, decreased safety and customer service, and additional on-call requirements, stress and eventual burnout.  As one officer described it, “I’m never away from work.” 

Dissatisfaction with Wages
And Working Conditions
Closely Linked to Turnover

Wage issues, including health insurance benefits

For those HP officers who left employment with WYDOT, the primary reasons given were dissatisfaction with wage-related issues, followed closely by working conditions.  Further, opinions stated in our focus group and surveys of former HP employees indicated that wages and working conditions were interdependent. 

for dependents, are  main cause of

HP turnover.

From the variety of information sources we gathered, we learned that while dissatisfaction with salaries was the main cause of HP turnover, officers would often discuss wages in conjunction with health insurance benefits for dependents.  They find, with great frustration, that the state’s health insurance plan for dependents is not affordable.  They added that if officers received a pay increase, there was inevitably a rise in insurance deductibles for dependents that neutralized any gain.  Surveys of former employees also revealed that they left because they believed their pay was not keeping pace with the market and they felt uncertain about future wages. 

Former officers who took private sector

R&P found that among all state and local government workers, HP officers have the highest level of individuals who hold multiple jobs.  Of the 37 HP officers included in the study, 22 percent held multiple jobs during the year they left HP.  According to R&P, multiple-job holding can be viewed as a strategy to augment primary earnings, and indicates the greater likelihood that state employees may exit employment.  See Appendix E5 for more detail.

jobs in Wyoming,

on average, received higher pay.

The majority of HP, 25 of 37, did not go to work for state or local government after leaving employment with HP, or they did not appear in the Wyoming Wage Records.  R&P also found that former HP officers who entered the private sector in Wyoming, on average, increased their wages during each of the two quarters following their exit.  Surveys and exit interviews of former HP employees also indicate that they took private-sector jobs or left Wyoming for higher pay.  

Wyoming has the

lowest starting salary for

HP officers among

22 central states.

The 1999 Central States Survey showed that at $1,926 per month, Wyoming had the lowest starting salary for HP officers.  This starting salary was 22 percent lower than the average minimum of $2,476 earned by officers in the 22 reporting states.  Further, the contiguous states pay an average minimum salary of $2,269, or 15 percent more per month than Wyoming pays.

Working Conditions Are
Also a Factor

R&P found that of the 12 former HP officers who took another government job in Wyoming, monthly wages decreased slightly.  R&P could not explain this outcome from the limited data available, although it may be the case that former HP officers were willing to accept slightly lower wages because of dissatisfaction with working conditions.

Turnover significantly affects scheduling, family life, and morale.

We found HP officers are generally very proud of and like their work.  However, some officers said they left due to the cumulative effect of working conditions, and many others have considered leaving.  In addition to issues related to vacancies, such as increased on-call duties and decreased safety, scheduling was a major factor in HP officers’ dissatisfaction with working conditions.  As one officer stated, “Scheduling affects family life and morale, and this is directly due to turnover.”  The current method of scheduling allows HP officers infrequent weekends with their families; further, schedules do not improve with seniority.  Former HP officers reported in exit interviews and surveys that management and supervisory issues, including communication, had caused turnover and affected morale statewide.

Management Actions May Have
Already Decreased Turnover

New leadership reports increasing communication efforts and creating programs for officer development.

In general, we found current HP management to be aware of and taking action to address officers’ complaints, a fact that may have helped to keep turnover in check.  However, we believe management may be underestimating the extent to which perceptions about working conditions influence turnover. 

One of the goals of HP’s new leadership, appointed in 1998, has been to build a greater sense of ownership in officers, by increasing communication efforts and proactively seeking feedback.  HP has established a new leadership-training program for management, a new canine program, and a spousal-support network.  Management is working to increase opportunities for advancement without moving officers to a different location, as was required in the past.  For greater job diversification opportunities, management is also considering adding special teams such as crash investigation, and an auto theft division. 

WYDOT adopted a new pay plan.

At the end of 1999, with input from employee task forces, WYDOT adopted a new pay plan.  In addition to increasing wages and flexibility, the plan added three new job codes for non-supervisory/ non-managerial HP officers, and offers greater opportunities for advancement and pay.

Areas Still Needing Attention

HP believes that

increased staffing is needed to improve on-call and workload issues.

Although turnover can never be completely eliminated, all levels of HP recognize that they can do more to address factors contributing to turnover, such as scheduling.  There is also recognition that HP officers would like more affordable health care coverage for themselves and their dependents.  Regarding scheduling, some former and current HP officers suggest that evolving towards a more standard workweek for those with the greatest seniority would provide an important incentive for officers to stay. 

According to HP, some working conditions that cause turnover, especially those related to on-call and workload issues, cannot be remedied without increased staffing.  In the past five years, HP has not been able to fill its authorized positions.  This suggests that HP needs to do more to recruit a larger pool of candidates who can qualify under  HP’s rigorous standards.  HP leadership has identified recruitment, including efforts to attract former HP officers who have gone to other law enforcement agencies in Wyoming, as a priority.

Increase Recruitment
to Reduce Turnover Costs

Improved recruitment needed to fill vacancies.

Together, dissatisfaction with pay and working conditions are the main reasons HP officers have left their jobs.  HP’s turnover rate is below the state average, but high financial, employee, and potential public safety costs make turnover an important issue.  WYDOT’s new compensation plan may decrease turnover and improve hiring and retention of HP officers, but it is too soon to have evidence of its effectiveness in that regard.  Another important issue is filling vacancies.  This would help alleviate some of the dissatisfaction with working conditions that cause HP officers to leave. Enacting legislation to recoup some training costs from new officers may deter turnover, but may also serve as a disincentive to apply to HP. 

Retention is a priority due to high turnover costs.

WYDOT could explore more cost-effective ways to replace and train HP officers.

Considering the high costs associated with HP turnover, a cost-efficient approach for HP may be to invest more efforts in retention.  Further, HP may be able to reduce costs in the two highest cost categories, recruitment and training.  Since recruitment costs account for the greatest portion of turnover costs, the agency may consider if there are more cost-effective ways to generate a pool of candidates who meet recruitment standards.  The fact that many of HP’s training costs are fixed, regardless of the number of HP trainees, is another incentive for HP to generate more recruits.  Having a larger number of recruits would lower the costs per individual and be more cost-efficient.  The agency can explore other ways to reduce costs without negatively affecting the quality or quantity of training.

Next Steps to Decrease Turnover Costs

 WYDOT, HRD, and the Legislature may take steps to decrease

HP turnover.

Using our turnover costing methodology, we concluded that HP turnover is a problem due to the high associated costs and the criticality of HP’s mission.  WYDOT, in conjunction with HRD, may choose to engage in a strategic process to determine whether it is more cost-effective to accept the current level of turnover or to put more effort toward increasing retention.  WYDOT may also choose to improve efforts to fill its reported vacancies and to decrease the per-officer costs of recruitment and training. Other retention strategies would require legislative action, such as increasing position authorizations, salaries, and health insurance benefits.