AGENCY RESPONSE
NOTE: Agency responses submitted on diskette are included on the Legislative Web Site (HTTP://LEGISWEB.STATE.WY.US). Letters submitted in written form are on file at LSO.
JIM GERINGER Governor |
700 West 21st Street Cheyenne, Wyoming 82002 Telephone: (307) 777-7208 FAX: (307) 777-7479 |
JUDITH UPHOFF Director |
May
3,2000
Senator Jim Twiford, Chairman
Management Audit Committee
c/o Legislative Service Office
Capitol
Cheyenne, WY 82002
Dear Senator Twiford:
This letter is in response to
the report completed for the Management Audit Committee, entitled Turnover and Retention in Four Occupations,
May 2000, which addresses issues of turnover , retention, and related
management concerns within the Department of Corrections. Though the report does not give specific
recommendations to the department, several suggestions are provided which I
will address.
I appreciate the difficult task
the Legislative Service Office staff had in studying this issue. If these issues are a significant challenge
to those of us familiar with the problems and historical context, then they are
all the more so for the authors of this report. But I must, while acknowledging
and accepting some of the suggestions, raise a substantial concern with some of
the oversights of the report which I believe are critical.
The report states on page 46
that it "did not look at the ability of the
local labor pool to support the WSP, or how that may contribute to the level of
turnover DOC is experiencing." Though that issue may
have been beyond the scope of this report, it certainly cannot be beyond the
scope of the discussion about this issue.
It is within this context, I believe,
much of the discussion must happen.
Later in this response I will direct my comments to the overall
management issues raised and my current, as well as intended course of
action. However, the direct suggestion
and tenor of the report is that if the overall management of the facility would
improve, the turnover and retention of staff, primarily correctional officers,
would likely be diminished. There are
management concerns we must continue to address, but it is my belief that by
omitting the labor pool issue from the report, we have failed to adequately
confront a major contributing factor.
This is a significant oversight of the report.
RETENTION AND TURNOVER: The overall issue giving rise to this report, turnover
and retention of employees, particularly at the Wyoming State Penitentiary, has
been a concern for me, as the director, for a long time, and it certainly is a
major concern for the warden and his staff.
The problem is long-standing and complex; it is not given to easy
solutions.
There is historical information
to indicate this is not a new problem.
As a point of reference, reviewing information taken from the 1980's is
useful. In fiscal year 1981 the turnover rate at WSP was 53%, which is noted
as a reduction of 32% from 1980 and in FY82 the turnover rate was 65%,
with 75% of those occurring in the security staff ranks. Reasons cited were low pay, long hours, and
the non-availability of relief personnel, and interestingly "was the quantity and quality of
potential employees available in the Rawlins area job market, while numbers of
available applicants are larger than normal, due to an unprecedented high
unemployment rate, interest in working within the correctional environment is
low." In FY83 the turnover rate was 38% and in FY85
the rate was 33% ; 72% of which were from the security force. In FY86 the rate lowered to 25% and in FY87 the rate stayed constant at
24%. And finally, in FY88 the rate was
21%; 74% of which were security personnel.
These figures were reported in the Board of Charities and Reform
annual reports.
There are larger forces at play
in the issue of turnover and retention.
Though this cannot, nor should not, relieve the department of its
management responsibilities, it must be addressed as an issue. Dr. George Camp is cited twice in the
management audit report as a source of information, on page 42 as the
co-director of the Criminal Justice Institute, and on page 51 as the author for
the National Institute of Corrections report on retention and staff
management. Dr. Camp has served as a
consultant to the Department of Corrections on several issues, including the
1995 report commissioned by the executive branch, to conduct the male inmate
housing needs, projections, and recommendations. This report was used as a guide by the Legislature in determining
the additional prison needs for Wyoming and led to the building of the
additional facility. It specifically
noted that any new facility should not be located in Rawlins. He continues to assist in the transition
planning to the new facility.
In that report Dr. Camp states
(page 27) that the Rawlins area is not the best location for "building a qualified staff
pool." Dr. Camp is the one criminal justice expert from outside Wyoming
who is most familiar with the corrections situation in Wyoming. It is his belief that if the current
need for staff at WSP were lowered by
some percentage, say one third,
turnover issues would very likely be reduced dramatically.
Though pay and benefits issues
must continue to be addressed, and the Legislature has made several substantial
efforts toward addressing these issues, the department must continue to work
with the Governor and the Legislature to
meet these needs. Employee
comments around pay and benefit issues, such as insurance coverage, must be
considered and examined.
But this also relates to an
issue made on page 43 of the report which points to the low average tenure of
the correctional staff. The low tenure
is a product of the high turnover, which is in large part generated by people
who came to work at WSP as correctional officers and have no intention of
staying. They were aware of the pay
issues prior to starting, but likely were looking for another type of job. It is possible that the longest tenured
employees at WSP are life-time, or long-time residents, rather than officers
who left after a short tenure, who may not have had any real connections to the
community. As mentioned on page 48, the
possibility that nearly half of the correctional officers terminated between 1995
and 1998 left the state may indicate they wanted to live somewhere else. In other words, it may relate back to the
size of the actual resident labor pool in the area to sustain long-term
employment.
A dilemma in recruiting staff lies in the area of
pre-employment screening. As cited on
page 49 of the report, it is mentioned that "more stringent hiring standards and increased training
would promote a sense of professionalism and increased retention." All things being equal, an in-depth screening process is time and
money well spent. Tests in the area of
personality, drug testing, aptitude, and interpersonal skills would be
beneficial, and as mentioned later, we are looking at several of these
approaches. However, if the labor pool
is limited, is it better to develop a thorough screening process, knowing the
pool will be limited further, and additionally impacting current staff already
stretched too thin, or should individuals be hired, maybe ones who wouldn=t make it through a detailed
screening process, knowing later some will
be terminated, quit, or not work out for other reasons?
The issues just raised must be
part of the discussion because they are, in my view, a substantial part of the
equation. At the same time the
department must do all it can to address the areas of retention and turnover.
DOC'S RESPONSE TO RETENTION AND
TURNOVER ISSUES:
The department has expanded its search for an employee pool to the regional
area through advertisements, cable television commercials, attending regional
job fairs at colleges, universities, and
military bases, and utilizing a
Department of Defense referral process.
Additional efforts underway include developing a full-time recruiter
position, creating an employee
satisfaction survey, expanding the use
of the Internet and the department web page, utilizing a more detailed testing
of potential applicants, including pre-service drug screening, increasing the
use of internships and school-to-work programs, and expanding recruiting
efforts throughout the western and central United States. Retention efforts proposed, or currently
underway, include the development of a
mentoring program, supervisory
and management courses, education reimbursement programs, potential financial
recognition of educational achievements, the development of a meaningful
recognition program for employees, and the implementation of a $100 per month
salary increase upon completion of 24 months of service. Employees currently receive a $100 per month
raise following the completion of the probationary period. Several of these things were mentioned in
the Legislative Service Office report and are useful suggestions.
I appreciate the suggestions
put forth in the report dealing with these issues. Some of the areas we are in the process of addressing and some of
the areas noted will be added to our approach.
Doing these types of things is the right way to approach this issue, and
they are only made more critical by the labor pool concerns I mentioned
previously.
DISSATISFACTION WITH WAGES AND
WORKING CONDITIONS: There are several characteristics of organizations
which are effective and well-managed operations. They give their staffs responsibility and
trust, listen to them, work in teams, give out praise and recognition, let
employees know they are important, give clear direction and expectations,
provide support, and allow for upward and downward communication. Organizations which can demonstrate and
incorporate as many of these traits as possible will be successful.
The report identifies several
concerns in these areas. These include
problems perceived in communication, providing clear and consistent policies,
management support, professionalism, and staffing. The later has been addressed extensively. The other three areas of concern are
critical to a well-operating organization.
Though we have made efforts in this regard, we must do more. The suggestions made in the report reiterate
the importance of putting considerable energy into trying to improve these
areas and perceptions. However, it is
also my thinking that to discuss working conditions and not look at actual
prison operations is again a significant omission in the report.
DOC RESPONSE TO STAFF
DISSATISFACTION ISSUES: With my support and
involvement, the warden is committed to trying to improve these areas in a
number of ways. The other
administrators and managers in the department are, in many instances,
interested and committed to the same set of values. It is important to convince
mangers and supervisors throughout the organization of the necessity of
these values. Though it must begin at
the top, it cannot sustain itself, if that's the only place these values and approaches
exist. Though the report focuses on
WSP, there are components of the department operating with these values and I
am committed to spreading the concept and practice.
Focusing on WSP, the warden
knows that his management style must include progressive, inclusive
approaches. We must emphasize
professionalism, communication, and at the risk of using an overused term,
empower the staff.
Specifically what types of
approaches are being considered? The
warden, along with key staff, will meet personally on a regular basis with all
levels of staff, seeking input and information. We are reviewing the development and formalization of a
meaningful unit management system where all levels of staff are represented and
play a role in the management of the facility.
The use of surveys to
solicit concerns and suggestions from
staff as to improving operations will be examined. We will explore exchange programs within various components of
the department for security supervisors and lead workers to help incorporate
the desired approaches which are in place in certain locations. Mandatory shift briefing meetings are being
implemented to facilitate safety and security discussions and
communication. Unit managers are being
required to hold unit management meetings with all staff. A system will be reviewed which allows staff
substantial, meaningful participation into the operation of their respective
areas. The warden will make every
effort to be visible and available to staff at all levels of the facility. This again stresses the importance of
training mid-level supervisors in these approaches, as one individual simply
cannot single-handedly make this process effective. An organization must create a culture in which these approaches
and values are important. Part of my
role will be to provide support and direction in this endeavor.
In closing, I on one hand
appreciate the concerns pointed out by the report and concur with the need to actively address them; and
on the other hand I am frustrated by the difficulty in remedying a significant
part of the problem. I am committed to
the course of action I have put forth in this response. I welcome suggestions which may add to a
positive resolution of these issues, and I believe this has been a worthwhile
forum in which to continue to address these topics. Thank you.
Sincerely,
Judy Uphoff
Director