HomeMy WebLinkAbout12/17/2002, C7 - CLASSIFICATION STUDY OF ADMINISTRATIVE SUPPORT AND MANAGEMENT POSITIONS IN CITY EMPLOYMENT [ i 1
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CITY O F SAN LUI S OBISPO
FROM: ANN SLATE,DIRECTOR OF HUMAN RESOURCE
SUBJECT: CLASSIFICATION STUDY OF ADMINISTRATIVE SUPPORT AND
MANAGEMENT POSITIONS IN CITY EMPLOYMENT
CAO RECOMMENDATION
Approve the recommendations of Koff and Associates who conducted a classification study of
various administrative support and management positions in City employment.
REPORT IN BRIEF
As part of the 2001-2003 Financial Plan, the City Council approved funding for consultant
services to conduct a classification study of various City positions. It had been almost a decade
since a comprehensive look at classifications by an outside consultant had been taken. The trend
for governmental agencies has been to move away from the traditional class and compensation
models and toward simpler systems with fewer classifications and broader pay ranges. It was
hoped that a consultant can lead us toward that approach. It made sense to consider a more
streamlined classification system as the organization was trying to become more flexible and to
encourage stronger team processes.
Positions in the administrative support classifications were to be analyzed as well as management
classifications. A changing economy and the difficulty in recruiting certain classifications for
City employment had resulted in incremental adjustments that may have thrown the City's
classification system out of balance. Likewise, rapidly changing technology had caused clerical
positions to shift from the traditional secretarial duties to more administrative functions. An
analysis of how this shift has impacted classification and compensation needed to be undertaken.
Koff and Associates was selected to conduct the study. The process was designed to
significantly involve employees and their supervisors/managers. Following several steps that led
to comprehensive job analyses and review and appeals of the consultant recommendations, the
study has been completed. The study has been formally presented to the employee associations
that represent employees in positions that were studied. Through meeting and conferring, as
required by state law, an implementation plan has been agreed upon. With Council approval of
the study, the consultant's recommendations will become effective the first full pay period after
January 1, 2003.
Classification Study Paget
DISCUSSION
Background
The Human Resources Department requested and received funding in the last Financial Plan for
consultant services to assist the department in developing a new classification/compensation
strategy. It was envisioned that a system could be developed that would be easy to use, highly
reliable and effective in reducing the number of classifications, reducing grade creep and bring
simplicity and rationality back into the classification process.
Originally, the administrative assistance classes were to be studied in year one of the Financial
Plan, and $30,000 was earmarked for that first phase. The management classes were to be
reviewed in year two and $50,000 was allocated for the second phase. Staff determined that
conducting the studies simultaneously was preferable due to the significant administrative
workload created by such a project. Some efficiency could be achieved by managing the two
phases together. In addition, there was a desire to expedite the review of the management classes
in response to a number of reclassification requests that had been received by incumbents in
those classes as part of the City's regular classification maintenance activity.
The City Council approved a request for proposal for consultant services needed for the
classification study in November of 2001. Seven firms responded and a committee comprised of
Association representatives, and affected clerical and management employees selected Koff and
Associates of Walnut Creek, California to conduct the study. Koff was awarded the contract in
the amount of$64,150.
The Process
On March 7, 2002, Koff and Associates held orientation sessions and explained their process and
timeline to study stakeholders. The project had two main components: the classification analysis
which included a full job analysis of each position to be studied and the compensation analysis
which was a look at internal equity and how the various classes as redefined through the
classification process fit within the internal compensation structure of the City. It is important to
note that the compensation analysis was limited to an internal examination and did not include a
labor market analysis. Because a labor market analysis, which typically includes a salary and
benefits survey of comparable cities, is one factor that is used in determining competitive salaries
in the meet and confer process, it was not a factor that staff wanted evaluated as part of the
classification study. Rather than the external focus that comes from a labor market analysis,
which answers the question, how much does a similar classification get paid elsewhere, staff
wanted an internal focus that answers the question, is this classification getting paid
appropriately as compared to another classification here in the City of San Luis Obispo.
Each employee in a position that was going to be studied completed a Position Description
Questionnaire (PDQ). There were a total of 85 positions to be studied. Each PDQ was reviewed
by the employee's supervisor and department head and submitted to the consultants. Using the
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PDQ, the consultant interviewed almost all of the involved employees and then developed a new
class description. The new description was returned to the employee and management for their
review and concurrence. Working with the employee and the supervisor, the class descriptions
were fine-tuned by the consultant and eventually signed off by the employee and supervisor.
Once the classification piece of the project was completed and the various stakeholders were
satisfied with the new class descriptions, the consultant began work on the compensation
analysis. Using a set of guidelines, they determined appropriate salary ranges for those classes
where they had significantly changed the job description or where it was apparent to them that
the current salary range was not in conformance with their recommended guidelines.
Again; Koffls recommendations were reviewed by the employees and their supervisors.
Employees who disagreed with the consultant's findings were allowed to appeal the consultant's
recommendations. In some cases, the consultant modified their original recommendation based
upon new and more complete information provided to them by the employee and his/her
supervisor/department head. In other cases, the consultant provided additional rationale
supporting their original recommendation.
Once the appeals had all been addressed, the results of their final recommendations regarding the
administrative support positions were presented to the San Luis Obispo City Employees'
Association (SLOCEA) and the San Luis Obispo Police Staff Officers' Association (SLOPSOA).
Through meeting and conferring, the associations endorsed the recommendations and agreed to
an implementation plan to be followed by Council approval of the classification study.
Findings
Specific detail and complete information on the consultant's findings can be found in the
attached final report which describes more fully the process, methodology, definitions of terms
that are used throughout the report, findings, and proposed salary range schedule. Rather than
repeat much of the final report, key recommendations will be presented below in this report.
A copy of all the new class descriptions is available in the Council reading file. All the class
descriptions were updated or newly created in order to ensure consistency in content and format.
There were some opportunities to consolidate a number of single position classes to provide for
greater flexibility of assignment and opportunity for movement from department to department.
Twelve classes were recommended for a title change. Of these, three were recommended for
adjustments to the salary range due to current responsibilities. Also, two new career ladders were
proposed in two occupational areas: Permit Technician IM and Administrative Analyst IM,
Senior Administrative Analyst and Principal Administrative Analyst.
Current Class Title Recommended Class Title
Administrative Analyst (one pos.) Senior Administrative Analyst
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Administrative Assistant 11(two pos.) Permit Technician IM
Arborist Urban Forestry Supervisor
Assistant to the CAO Principal Administrative Analyst
Deputy Dir. —Development Review Deputy Dir. of Community Development
Deputy Dir. —Long Range Planning Deputy Dir. of Community Development
Field Engineering Supervisor Construction Engineering Manager*
Office Assistant II ** Administrative Assistant I
Recreation Manager 11 Recreation Manager
Wastewater Division Manager Deputy Director of Utilities/Wastewater*
Wastewater Treat. Plant Supv. Wastewater Reclamation Plant Supv.
Water Division Manager Deputy Director of Utilities/Water*
*Recommended for a salary range adjustment due to current job responsibities.
**The unused class of Office Assistant 1 is recommended to be deleted.
Koff recommends eight reclassifications out of the 85 positions surveyed. These are in cases
where the duties of the position or class have significantly changed since the last review,
resulting in a title change, duties, responsibilities, or qualifications change, or a change in salary
range. Those proposed for reclassification are:
Current Class Title Recommended Class Title Salary Impact
Administrative Analyst (one pos.) P. W. Adm. Svcs. Mgr. +6.00%*
Administrative Asst. Il (one pos.) Administrative Asst. III +11.00%**
Asst. City Clerk (vacant) Administrative Asst. III -9.01%**
Human Resources Exec. Asst. Human Resources Tech. (CFE) 0.00%
Management Assistant Administrative Analyst 1 0.00%
Princ. Civil Engr. (one pos.) Supv. Civil Engineer +6.86%*
Recreation Manager I Recreation Manager +6.00%
Supv. Adm. Asst. (one pos.) Administrative Asst. III -4.60%
*These proposed reclassifications are in response to reorganization in the Public Works Department where these single position classifications
were given additional duties and areas of supervision.
**These proposed reclassifications are in response to a reorganization in the City Clerk's office that will ensure greater coverage,cross training
for similarly classified positions and flexibility in rotating assignments as workloads dictate.
Koff found that nine classes appeared to be inappropriately placed within the salary range
schedule based upon their current duties, responsibilities and qualifications. They are:.
Class Title Current Recommended Percent
Ranee Ranee Impact
Chief Building Official 335 345 +4.40%
Police Communications Manager 315 325 +6.00%
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Construction Eng. Manager 305 315 +8.40%
Deputy. Dir. Util./Wastewater 345 350 +11.66%
Deputy. Dir. Util./Water 345 350 +11.66%
Human Resources Tech. (CFE) 360 365 +4.80%
Information Systems Manager 335 345 +4.40%
Legal Asst./Paralegal 368 369 +3.30%
Neighborhood Services Manager 315 325 +6.00%
The charts in Appendix 3 of the attached final report provide a comprehensive illustration of the
consultant's recommendations.
Implementation
Staff is recommending that the Council approve the various recommendations of Koff and
Associates. Because the consultants communicated regularly and openly with staff from the
Human Resources and Administration Departments, and directly with involved employees and
their supervisors, the recommendations contain no surprises. Whatever questions or concerns
City management and affected employees have raised had have been professional and reasonably
addressed.
While the recommendations for changes in title, classification or salary range are relatively
minimal given the number of positions involved in the study, the amount of work necessary to
redraft 66 class descriptions should not go unmentioned. However, it can be concluded that the
City over the last decade since a comprehensive classification study has appropriately maintained
its classification system. Even with the incremental adjustments to classifications that have been
in response to recruitment problems or external labor market realities, the City's classification
system, as evidenced by the few number of changes recommended by Koff, was not significantly
out of balance.
Because of the relatively few changes, the discussions with SLOCEA went smoothly. There
were two recommended reclassifications that translated to salary reductions for two SLOCEA
employees. During the study, one employee transferred to another position in order to avoid the
salary reduction. However, the new position was at a lower level than her previous position.
Because only two out of 85 employees were recommended for a salary reduction, the City
proposed to SLOCEA that to avoid a financial loss to their affected members, implementation of
those recommendations could be deferred.
In other words, the reclassification of the one Supervising Administrative Assistant to
Administrative Assistant III will be deferred until that position becomes vacant. Although the
Assistant City Clerk position became vacant during the study and has been refilled at the
Administrative Assistant III level and therefore technically reclassified in accordance with Koff s
proposal, it is recommended that the previous incumbent who has since transferred be
maintained at the previous level of pay in order to avoid a financial loss.
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The creation of the Administrative Analyst career ladder and the reclassification of the
Management Assistant (2 positions) to Administrative Analyst I resulted in moving those two
positions out of SLOCEA and into the unrepresented Management Group. SLOCEA was
agreeable to that shift of work out of their bargaining unit. Further discussions with SLOCEA
will be held in January to consider other classifications that might be more appropriately placed
in the management group.
During the study, the San Luis Obispo Police Staff Officers (SLOPSOA) negotiated a new MOA
that provided for the Police Communications Manager and Police Records Supervisor to be
placed in their bargaining unit and moved out of the management group. Since those two classes
are now represented, discussions were held with SLOPSOA and they, too, are in agreement with
the implementation of the study which included a salary adjustment based on current duties and
responsibilities for the Police Communications Manager.
Summary
Although staff originally was hopeful that the study would result in a new strategy for
classification that would lead to fewer classifications and broader pay ranges, this was not an
outcome of this study. The study began with a review of 66 classes with a goal of significantly
reducing the number of classes, which was not possible for two reasons. (1) Koff recommended
creation of two additional career ladders for office and administrative support positions. (2) The
City provides a wide variety of services to its citizens and each program area normally requires
qualifications and experience specific to that program area. The career ladders will not only
provide additional professional growth opportunities for employees but will give additional
flexibility to the organization for administrative assignments.
While staff is extremely satisfied with the quality of the Koff study and the open communication
and responsiveness demonstrated by the consultant, as with any classification study there are
some few employees who remain dissatisfied with the outcome. The consultant worked closely
with those employees and made certain that their concerns were heard and that the information
all employees provided was thoroughly evaluated. Extra steps were built into the process to be
certain that employees and their managers had ample time to provide information and to review
preliminary findings from the evaluation. The Koff study represents a "snapshot in time" and
their findings have updated and validated our current classification system. However, as
positions evolve, departments reorganize and the City responds to organizational change,
classification review and analysis will continue to be an activity undertaken by the Human
Resources Department on an ongoing basis.
FISCAL IMPACT
Because the two positions proposed for salary reductions have been budgeted at the higher levels,
there is no need for additional funding to maintain them at their current level indefinitely. The
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other salary range adjustments due to reclassifications and internal adjustments based on current
duties and responsibilities will cost approximately $20,500 for the remainder of this fiscal year
(of that amount $3,900 is in the Utilities Enterprise Funds) and approximately $33,200 ($7,800
in Utilities Funds) in year one of the next two year financial plan. The City's Personnel Rules
and Regulations regarding reclassifications limit the amount of a salary increase to no less than
5% above the current salary rate. Therefore, employees in those classes that are recommended
for salary range adjustments of more than 5% will receive 5% initially and over time will move
through their range in accordance with City policies regarding salary advancement.
The amount needed to fund the recommendations for January 1, 2003 through June 30, 2003, is
available because of salary savings associated with vacancies in the various departments during
this fiscal year, including the Utilities Funds. Required funding for the next two-year financial
plan will be allocated as part of that financial planning process.
ATTACHMENT:
1. Final Report of the Classification and Internal Compensation Review for Selected Classes
for the City of San Luis Obispo, by Koff and Associates.
Full Final Report is available in the Council Reading File.
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ATTACHMENT 1
FINAL REPORT
Of The
CLASSIFICATION And INTERNAL COMPENSATION REVIEW
For
SELECTED CLASSES
For The
CITY OF SAN LUIS OBISPO
December 2002
Submitted by:
KOFF &.ASSOCIATES,INC.
18 Crow Canyon Court
Suite 165
San Ramon, CA 94583
925.831.9794—voice
925.831.9322—fax
E-mail: jkoff(@koffassociates.com
Gail Koff,President/CEO
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December 2, 2002
Ms. Ann Slate
Human Resources Director
City of San Luis Obispo
990 Palm Street
San Luis Obispo. CA 94301
Dear Ann:
Koff & Associates, Inc is pleased to present the final report of the Classification and Internal
Compensation Review for Selected Classes for the City of San Luis Obispo.
This report documents all steps of the data gathering and review processes and provides
recommendations for appropriate classification and internal compensation relationships for
approximately eighty-five (85) positions in two employee groups (which represent
approximately 25% of the City's regular work force):
Office and Administrative Support (represented) - sixteen (16) classifications; and
Mid-Management (non-represented) — fifty (50) classifications.
There were dual purposes for this study. First, to develop a final work product based upon an
organizational structure that allows for future growth and efficient, flexible, cost-effective
customer service delivery, which is supported by updated, accurate and consistent class
descriptions. The second purpose was to conduct a review of internal salary relationships and
develop compensation plan recommendations that ensure internal equity, have understandable
guidelines and are reflective of contemporary standards.
We would like to thank City management, staff and bargaining unit representatives for their
assistance and cooperation, both in the initial data-gathering phases and during the multiple
review processes. Without their ongoing participation, this study could not have been brought to
its successful completion.
We will be glad to answer any questions or clarify any points as you are implementing the
findings and recommendations. It has been a pleasure working with your City on this critical
project.
Since ely, /
Cresident/CE0
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- ATTACHMENT 1
FINAL REPORT For The
CLASSIFICATION And INTERNAL COMPENSATION REVIEW
For SELECTED CLASSES
For The
CITY OF SAN LUIS OBISPO
TABLE OF CONTENTS
Page No.
Background................................................................................................................1
Study Goals and Objectives.......................................................................................1
Classification Objectives
Compensation Objectives
Data Gathering Processes ..........................................................................................2
Reviewand Appeal Steps ..........................................................................................5
Classification Findings...............................................................................................6
The Difference Between Positions and Classifications
The Relationship Between Classification and Compensation
Class Descriptions
CompensationFindings .............................................................................................11
Appendices
I Recommended Classes Descriptions
II Recommended Internal Compensation Relationship Guidelines
III Proposed Compensation Range Schedule
ii
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BACKGROUND
In March of 2002, the City of San Luis Obispo contracted with Koff & Associates, Inc. to
conduct a classification and internal compensation equity study for targeted office,
administrative support and mid-management staff. The City had not had a comprehensive
classification/compensation review in more than a decade, although Human Resources staff has
addressed individual issues and requests, primarily due to retention, recruitment and
reorganization problems. Because only individual requests have been dealt with, there is a
perception that internal equity has been disrupted and that individual concerns have taken
precedence over City needs and strategies. The problem appears to be most acute in the
occupational areas noted above, due both to changing technologies and service expectations.
While each group had specific concerns, they were overlapping and complimentary.
There were also specific needs of the City, dictated in part by the groups being reviewed and the
organizational climate of San Luis Obispo. Because of the extended time since an overall review
had been conducted, the sensitive nature of many of the classes included for review and the fact
that a high number of the classifications being considered were single-position classes, it was
extremely important that ample opportunity be given for input and review by all stakeholders.
Sufficient steps were built into the process to ensure that deliverables were as reflective as
possible of City goals and values, while meeting all legal requirements.
STUDY GOALS AND OBJECTIVES
The overall goal of any Koff & Associates, Inc. study is to produce a product that meets the
needs of the client, is understandable and justifiable and can be implemented with a minimum of
disruption to agency activities. This is normally accomplished through a fairly traditional
procedure, coupled with an emphasis upon two-way communication so that each study
stakeholder believes that their concerns have been heard, if not always completely satisfied. This
was particularly true with the City of San Luis Obispo, given the City's encouragement of staff
in internal procedure and customer service process development and modification. As there
were two elements to this study,we were guided by separate objectives for each:
Classification Objectives
i To begin the communication process by conducting employee orientation sessions
with staff included in the review, to educate and explain the scope of the study and
describe what are and are not reasonable study expectations and goals;
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➢ To update the classification structure through a comprehensive process of job analysis
including review of existing documentation, position description questionnaire
(PDQ) completion, employee interviews, management interviews and other
professional methods, as appropriate;
➢ To develop class descriptions which include basic documented information for
compliance with the Americans with Disabilities Act and appropriate qualifications,
knowledge, skills and other requirements that are job-related and meet other legal
guidelines;
➢ To allocate each mid-management, administrative and office position to the correct
classification, with the goal of minimizing the number of single-position classes,
where feasible;
➢ To provide a basis for ensuring that the City has adequate career paths and a
classification system that will foster a career service within the City; and
➢ To provide for adequate educational, review and appeal processes that will result in a
product that is easily maintained, understood by all levels of personnel and internally
equitable.
Compensation Objectives
➢ To carefully analyze the scope and level of duties and responsibilities, requirements
for successful work performance and other factors for management, administrative
and office support classes according to generally accepted compensation evaluation
factors;
➢ To recommend appropriate internal salary relationships and allocate classes to ranges
consistent with the City's current compensation range plan;
➢ To provide for adequate educational, review and appeal processes that will result in a
product that is easily maintained, understood by all levels of personnel and internally
equitable; and
➢ To assist the City in developing an implementation plan.
DATA GATHERING PROCESSES
➢ Before beginning the project, we obtained current class descriptions, organizational
charts, MOU's, Personnel Policies, examples of City terminology and format, current
classification procedures and other relevant documentation. In addition, we conferred
with the project management team to clarify processes and timetables.
➢ Several orientation meetings were scheduled on March 7, 2002 with the study
participants, at which point written position description questionnaires were
distributed. While these meetings were not mandatory, they were highly
recommended and well attended. The meetings formed the beginning of the
educational process that continued throughout the study. Project processes were
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explained; expectations were clarified and elements that were not a part of the study
were covered. Questions were answered and hints for completing the questionnaire
were given.
We also provided an e-mail version of the questionnaire so that study participants
could more easily complete the process; however, we required a hard copy with
signatures affixed before we began the evaluation process. Human Resources staff
collected and forwarded questionnaires (and other information provided during the
study), however the information was not "filtered" through them and sent directly to
the consultants. Questionnaires were due to be completed and reviewed by April 5,
2002, and the majority of the study participants met this deadline.
➢ Upon receipt of the questionnaires, they were reviewed and analyzed and interviews
were scheduled with employees and managers. The Human Resources staff was of
great assistance in scheduling the interviews during the week of April 22°a, which
were conducted by experienced consultant staff from both our Northern and Southern
California offices. In all, 85 employees were included in the study; 89 interviews
were conducted (including management), resulting in at least a 95% interview rate for
all study participants. Effectively, the incumbents of every single-position class, all
employees who specifically requested an interview and employees in multi-position
classes who appeared to be misclassified were interviewed.
After interviews were completed, and for the sake of efficiency, consultant staff spent several
hours reviewing preliminary findings and issues prior to having an initial meeting with the City
Administrative Officer, Assistant City Administrative Officer, Human Resources Director and
Human Resources Analyst. While this meeting was merely an overview of our first impressions
and areas of further question and research, it did provide a "reality check" prior to preparing
draft class descriptions and allocation recommendations.
For the classification portion of the study, the next step was the preparation of draft class
concepts, descriptions and an allocation list placing each position studied in one of the
recommended classes was prepared. Resources for the preparation of such documentation were
threefold; the existing class description, position description questionnaire completed by the
employee and reviewed by the supervisor and our interview notes. The resultant-descriptions
and allocation lists went through several subsequent reviews as the following details.
After the classification review processes were completed and agreement was generally reached
by the consultants; staff and management regarding the description of and qualifications for the
work being performed, the classes were further analyzed regarding appropriate internal
placement in the compensation range plan.
In determining internal salary relationships, two aspects are generally considered:
➢ The appropriate differential between the different levels in a series (i.e. I, H, III,
Senior, Supervising); and
➢ The appropriate grouping of salary levels for classes in different occupational groups.
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The first relationship is normally quite easy to determine, as there are fairly standard guidelines
that are followed in the Human Resources field. For example, a I- or trainee-level job is
normally 5.0% to 10.0%below the experienced-level job in a series, while a lead job is normally
7.5% to 10.0% above. Supervisory jobs range from 10.0% to 20.0% above the highest-level job
supervised, depending upon variety, complexity and depth of supervisory/management
responsibility.
Because of the manner in which the City's salary plan is structured, percentage differences
among the various salary grades are not consistent, ranging from less than I%to more than 11%.
Nevertheless, we have worked within the City's current grade structure, although we recommend
that this configuration be reviewed and that a more consistent set of grades and ranges (such as
5%between salary steps and 5%between salary ranges) be considered at a future date.
After applying these standard differentials, a set of detailed internal compensation relationship
guidelines were developed for the City and applied to each class in the study. These guidelines,
detailed in Appendix Two of this report, include:
➢ Type and Level of Knowledge and Skill Required
➢ Supervisory/Management Responsibility, Including Organizational Placement
➢ Problem Solving
➢ Authority for Making Decisions and Taking Action
➢ Interaction with Others
➢ Working Conditions/Physical Demands
Although each guideline is defined with several levels of application, a certain degree of
subjectivity still remains. There are advantages to using this approach, however, particularly as
the City relies heavily upon internal compensation relationships rather than market factors.
Advantages include:
➢ The development of a common language and analysis process that-can be used by
Human Resources staff, management, employees and bargaining unit representatives
when considering the"internal value"'or"worth to the City" of one job to another;
➢ A use of an approach that can compare a position in one occupational category to a
position in another, including those not covered by this study (i.e., engineer and
planner,plant operational worker and plant maintenance worker); and
➢ An application of a method of evaluating whether a change in job responsibilities
really results in a change in compensation level,by allowing for a structured dialogue
and evaluation process.
As an example of this last advantage, if an employee or supervisor believes that a salary level
needs to be reconsidered after initial placement or that a position warrants reclassification, some
appropriate questions to ask would be:
➢ What additional knowledge and skills are now required by the position/class?
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How does an employee or job applicant gain the additional knowledge and skills —
through extended training, through a short-term seminar, through on-the-job
experience?
➢ Does the position/class now require new or additional supervisory responsibilities?
➢ Are there are a greater variety of or more complex problems that are facing the
position/class?
➢ Does the position/class now make a greater variety of or more difficult decisions with
a greater consequence of error?
➢ Are the impacts of decisions now greater (effects on staff, budget, department or
Citywide activities, relations with other agencies)?
i Are guidelines, policies and/or procedures provided to staff or are the guidelines
being determined as the job changes?
➢ Is the position/class interacting with City workers, the public or others differently as a
result of this new assignment?
➢ Have the working or physical conditions of the job significantly changed since the
last internal review?
Answers to these and similar questions will assist the City maintaining an equitable set of
internal relationships among class, although market factors may override internal considerations
as a practical necessity.
The major disadvantage to using this approach is that it is qualitative and not quantitative, and
therefore can be viewed as subjective, depending upon the interpretation that each individual
places upon the descriptive words. Finally, it is a somewhat broad system of measurement, and
requires consistent application to recognize small differences between jobs. Nevertheless, we
believe that this approach provides a step forward in the development of an overall equitable
compensation range system for the City.
REVIEW AND APPEAL STEPS
As we noted in our proposal and the beginning of this report, our process normally involves:a
great deal of education, two-way communication and iterative or ongoing development. Using
this approach, we produce deliverables that are uniquely applicable to each client. Given the
organizational climate of the City, a number of review and appeals steps were "built in" to the
study process, which, although they tended to extend the overall timeframe of the study, were
well worth the extra effort by both City and consultant staff. These educational, review and
appeal steps included:
➢ Orientation meetings with all study participants. The purpose and conduct of these
meetings were described earlier in this report.
➢ Management review of class concepts, draft descriptions and position allocations for
their own department. Prior to releasing the draft materials to employees, each
department manager was provided with a copy of all draft information for their
departments. Consultant staff answered questions, clarified recommendations and
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incorporated changes where appropriate. (NOTE: modifications were minor, more in
the nature of "fine tuning".) Communication was normally directly between the
department management and consultant staff by telephone and/or email, although
consultant staff did keep Human Resources apprised of recommended changes and
issues.
➢ Employee review of their own recommended class description. Each employee was
provided with their own class description and given the opportunity to submit their
written concerns (via their supervisor) to our office. Again, most comments were
minor and easily dealt with by telephone or email. If an employee had a major
concern about their description or position allocation, previous information was
reviewed, additional information was gathered from the employee and the supervisor
and a written response was provided with a copy to the employee's supervisor and
Human Resources.
➢ Management and supervisory review of recommended compensation range
placement. At this point, there was general agreement regarding the description of a
class, but an employee or manager could "appeal" our recommendation. Out of the
85 positions studied, we received a total of eight appeals: six from individuals and
three from groups. Several of these appeals were accompanied by letters from the
employee's supervisor and/or manager. All additional information was carefully
considered, follow-up interviews were held and detailed responses were provided to
the appellants, appropriate management staff and Human Resources.
➢ Finally, a follow-up meeting was held with the initial selection committee to review
the study process and answer specific procedural and conceptual questions.
CLASSIFICATION FINDINGS
The Difference Between Positions and Classifications
These two words are often used interchangeably, but have very different meanings. As used in
this report:
➢ A position is an assigned group of duties and responsibilities performed by one
person. A position can be full-time, part-time, regular or temporary, filled or vacant.
Often the word"job" is used in place of the word"position".
➢ A classification may contain only one position, or may consist of a number of
positions. When you have several positions assigned to one class, it means that the
same title is appropriate for each position; that the scope, level, duties and
responsibilities of each position assigned to the class are sufficiently similar (but not
identical); that the same core knowledge, skills and other requirements are
appropriate for all positions; and that the same salary range is equitable for all
positions.
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When positions are classified, the focus is on assigned job duties and the attendant requirements,
not on individual employee capabilities or job performance. Positions are thus evaluated and
classified on the basis of such factors as knowledge and skill required to perform the work, the
complexity of the work, the authority delegated to make decisions and take action, the
responsibility for the work of others and/or for budget expenditures, contacts with others (both
inside and outside of the organization), impact of the position on the organization and working
conditions.
The Relationship of Classification and Compensation
Classification, the description of the work and the requirements to perform the work are totally
separate and distinct from determining the worth of that work in the market and to the
organization. While recommending the appropriate compensation for the work of a class
depends upon an understanding of what that work is and what it requires (as noted above),
compensation level is often influenced by two factors:
➢ The external labor market; and
➢ Internal relationships.
A position classification plan provides an appropriate basis for making a variety of human
resources decisions such as:
➢ Design of an equitable salary structure;
➢ Development of job-related recruitment and selection procedures;
➢ Appraisal of employee performance;
➢ Development of training plans and succession planning;
➢ Organizational development and the management of change;:and
➢ Provision of an equitable basis for discipline and other employee actions.
In addition to providing this basis for various human resources management and process
decisions, a position classification plan can also effectively support systems of administrative
and fiscal control. Grouping of positions into an orderly classification system supports planning,
budget analysis and preparation and various other administrative functions.
Within a position classification plan,job classifications can either be broad (containing a number
of positions) or narrow (emphasizing individual job characteristics). Broad job classifications
are indicated when:
➢ Employees can be hired with a broad spectrum of knowledge, skill and/or academic
preparation and can readily learn the details of the City, the department and the
position on-the-job; or
➢ There is a need for flexibility of assignment within a department or an organization
due to changing programs, technologies or workload.
Individualized job classifications are indicated when:
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➢ There is an immediate need to recruit for specialty knowledge and skills;
➢ There is a minimum of time or capability for on-the-job training; or
➢ There is an organizational need to provide for specific job recognition and to
highlight the differences between jobs.
Most classification plans are a combination of these two sets of factors, and we have chosen the
middle-ground in this study. While we began with 66 classes covered by the study and had a
goal of significantly reducing the number of classes, that was not possible for two reasons: we
recommended creation of two additional career ladders for office and administrative support
positions, and, more significantly, the City provides a wide variety of services to its citizens and
each program area normally requires qualifications and experience specific to that program area.
CLASS DESCRIPTIONS
In developing the new and revised classification descriptions for all positions, the basic concepts
outlined in the prior pages were utilized. The recommended draft class descriptions are included
in Appendix I of this report.
The draft class descriptions are based upon the information from the written position description
questionnaires completed by each employee, from the individual job audit interviews and from
information provided by employees, supervisors and managers during the multiple review
processes. These descriptions provide:
➢ A written summary documenting the work performed by the incumbents of these
classifications;
➢ Distinctions among the classes; and
➢ Documentation of requirements and qualifications to assist in the recruitment and
selection process.
Just as there is a difference between a position and a class, there is also a difference between a
position description and a class description. A position description, that is often known as a
"desk manual", generally lists each duty an employee performs and may also have information
about how to perform that duty. A class description normally reflects several positions and is a
summary document, not listing every duty performed by every employee. The description, which
is intended to be broad, general and informational; is intended to indicate the general scope and
level of responsibility and requirements of the class, not detail specific position responsibilities.
The sections of each class description are as follows:
Title; This should be brief, descriptive of the class and consistent with other titles in the
classification plan and the occupational area. The title of a classification is normally used
for organization, classification and compensation purposes within the City. Often
working titles are used within a department(for example, a City title of Administrative
Assistant, which designates a departmental office administrative support class, may have
a working title of Secretary to the Police Chief or the Finance Director. All positions have
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a similar level of scope and responsibility; however, the working titles may give
assurance to a member of the public that they are dealing with an appropriate individual.
Working titles should be authorized by the Human Resources Director to ensure
consistency within the City across departmental lines.
Definition: This provides a capsule description of the job and should give an indication
of the type of supervision received, the scope and level of the work and any unusual or
unique factors. The phrase "and performs related work as assigned" is not meant to
unfairly expand the scope of the work performed, but to acknowledge that jobs change
and that all duties are not included in the class specification.
Class Characteristics: This can be considered the "editorial" section of the
specification, slightly expanding the Definition, clarifying the most important aspects of
the class and distinguishing this class from the next higher-level in a class series or from
a similar class in a different occupational series.
Examples of Duties: This section provides a list of the major and critical duties,
intended to define the scope and level of the class and to support the Qualifications,
including Knowledge and Skills. This list is meant to be illustrative only. It should be
emphasized that the description is a summary document and that duties change,
depending upon program requirements, technology and organizational needs.
Qualifications: This element of the description has several sections:
➢ A listing of the job-related knowledge and skills required to successfully perform the
work. They must be related to the duties and responsibilities of the work and capable
of being validated under the Equal Employment Opportunity Commission's Uniform
Code.
➢ Guidelines on Selection Procedures. Knowledge (intellectual comprehension) and
Skills (acquired proficiency) should be sufficiently detailed to provide the basis for
selection of qualified employees.
➢ A listing of educational and experience requirements that outline minimum and
alternative ways of gaining the knowledge and skills required for entrance into the
selection process. These elements are used as the basic screening technique for job
applicants.
➢ Licenses (and/or certifications) identify those specifically required in order to perform
the work. Note that a California driver's license is not routinely included unless it is
documented in the description that such a license is regularly used in the performance
of the work. Examples of other required certifications include P.O.S.T. certification
for Police sworn staff and Plant Operations certificates for Water and Wastewater
System Operators. These certifications are required by an agency of higher authority
than the City (i.e. the State) and can therefore be appropriately included as
requirements.
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➢ Working Conditions outline requirements for off-hours or shift work, a background
review, regular overtime, required travel, exposure to unusual conditions, outdoor
work in all weather conditions, hazardous conditions or. other job conditions that
may not be immediately apparent to a job applicant to an employee.
➢ Physical Demands identify the basic physical abilities required for performance of
the work. These are not presented in great detail (although they more specifically
covered for documentation purposes in the Position Description Questionnaires) but
are designed to indicate the type of pre-employment physical examination (lifting
requirements and other unusual characteristics are included, such as "maintaining
attention to detail for extended periods of time") and to provide an initial basis for
determining reasonable accommodation.
All class descriptions were updated or newly-created in order to ensure that the format is
consistent, and that the duties and responsibilities and current and properly reflect the
required knowledge, abilities and skills. One major change in the classification plan, as
noted above, was the consolidation of several single-position classes to provide for
greater flexibility of assignment and opportunity for movement from department to
department.
Our proposals include the recommendation for alternately-staffed trainee- and journey-level
classes (UM in two occupational areas. (NOTE: The City currently utilizes this concept, where a
position is needed to be filled on a long-term basis at the II or experienced level, but for
developing promotional opportunities, or because skilled workers are not found in the labor
market, or for cost-control reasons, an employee may be appointed at the trainee or I level, and
promoted internally when fully functioning at the II level.)
➢ Permit Technician UII
These positions support to the Community Development. Department by providing
information to the public, processing and issuing building and planning permits and
giving technical/office support to these functional areas. As the positions are normally
filled by individuals with well-developed office support skills and as it takes an extended
period of time to learn the City's building/planning procedures, the alternately-staffed
approach provides for recognition of the acquisition of additional knowledge and for the
retention of trained staff.
➢ Administrative Analyst IM
Senior Administrative Analyst
Principal Administrative Analyst
The classes replace the current classes of Management Assistant, Administrative Analyst
and Assistant to the CAO. Only the I and II levels would be alternately-staffed; the
others would be filled through the City's budgetary and competitive examination
processes. Creation of this series provides for a more consistent and visible
administrative support series for the City.
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There is no immediate salary impact as a result of these recommendations.
Twelve classes were recommended for a title change. These changes do not have an immediate
salary effect, although three were recommended for compensation range placement modification
due to current responsibilities.
Current Class Title Recommended Class Title
Administrative Analyst (one pos.) Senior Administrative Analyst
Administrative Assistant II (two pos.) Permit Technician I/II
Arborist Urban Forestry Supervisor
Assistant to the CAO Principal Administrative Analyst
Deputy Dir. —Development Review Deputy Dir. of Community Development
Deputy Dir. —Long Range Planning Deputy Dir. of Community Development
Field Engineering Supervisor Construction Engineering Manager
Office Assistant II * Administrative Assistant I
Recreation Manager II Recreation Manager
Wastewater Division Manager Deputy Director of Utilities/ Wastewater
Wastewater Treat. Plant Supv. Wastewater Reclamation Plant Supv.
Water Division Manager Deputy Director of Utilities/Water
• NOTE: The unused class of Office Assistant I is recommended to be deleted.
For purposes of analysis and clarity, we separated recommended changes to the
classification/compensation system with potential salary impact into two areas:
➢ Reclassification, in which the duties of the position or class have significantly changed
since the last review or preparation,of a class description,resulting in a possible change
in title, a change in the duties,responsibilities and qualifications of the class and a change
in recommended compensation range for the position or class.
➢ Salary Change, in which the duties, responsibilities and qualifications of the class are
appropriately described (although a title change may be recommended for conformity);
however, the internal compensation range relationships appear to be inappropriate based
upon application of the internal compensation factors.
There are only eight recommended reclassifications in the study group, a minimal number out of
85 positions surveyed. The positions/classes proposed for reclassification are:
Current Class Title Recommended Class Title Salary Impact
Administrative Analyst(one pos.) P. W. Adm. Svcs. Mgr. +6.00%*
Administrative Asst. II (one pos.) Administrative Asst. III +11.00%
Asst. City Clerk (vacant) Administrative Asst. III -9.01%
Human Resources Exec. Asst. Human Resources Tech. (CFE) 0.00%
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Management Assistant Administrative Analyst I 0.00%
Print. Civil Engr. (one pos.) Supv. Civil Engineer +6.86%
Recreation Manager I Recreation Manager +6.00%
Supv. Adm. Asst. (one pos.) Administrative Asst. III -4.60%*
*Upon vacancy
COMPENSATION FINDINGS
Finally, there were nine classes that appeared to be inappropriately placed within the
compensation range schedule. We drew no opinions regarding why these inequities have
occurred; only performed an independent analysis regarding the appropriate internal placement
based upon their current duties, responsibilities and qualifications.
Class Current Recommended Percent
Title Range Range Impact
Chief Building Official 335 345 +4.40%
Communications Manager 315 325 +6.00%
Construction Eng. Manager 305 315 +8.40%
Depty. Dir. Util./Wastewater 345 350 +11.66%
Depty. Dir. Util./Water 345 350 +11.66%
Human Resources Tech. (CFE) 360 365 +4.80%
Information Systems Manager 335 345 +4.40%
Legal Asst./Paralegal (CFE) 368 369 +3.30%
Neighborhood Services Manager 315 325 +6.00%.
During the study, several questions were raised whether the representational unit of individual
classes should be changed (i.e. from represented to mid-management, etc.) This was beyond the
scope of this review, and we declined to make recommendations regarding this matter.
As noted above, we recommend creation of two additional class series with alternately-staffed
opportunities where they had not existed prior to this study. We recommended allocation of
employees placed in these ranges series to a level equivalent to where they are currently.
allocated, as we had no access to the education, experience and/or performance records of any
employee. The City has a process in place for moving individual employees from one range to
another in alternately-staffed situations, and we anticipate that there will be some sight impact
as departments recommend that individual staff members are ready for promotion from the I to
the II level within the series.
Finally, we must remind the City that a classification plan is a constantly changing entity, as
City needs, programs and technologies change. Several departments are currently in the process
of reorganization and we anticipate that the Human Resources Department will be analyzing
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reclassifications on a regular basis to recognize the ongoing effort to improve the delivery of
services to City businesses, residents and visitors. TOhis is no reflection upon the current study,
which is a"snapshot in time", however, with recognition of the realities of fluctuation in public-
agency financing, programmatic changes and service expectations, regular modifications to any
classification/compensation plan must occur.
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ATTALG�IENMT I
Appendix One
Recommended Classes Descriptions
(PLEASE SEE READING FILE)
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Appendix Two
Recommended Internal Compensation Relationship Guidelines
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APPENDIX TWO
Recommended Internal Compensation Relationship Guidelines
The following factors were considered when considering each class (current and proposed) for
internal compensation range placement. The same general considerations were used when
developing the job classifications; however, the guidelines were more specifically defined when
making internal compensation comparisons.
1. Type and Level of Knowledge and Skill Required
This factor defines the level of job knowledge and skill, including those attained by formal
education, technical training, on-the job experience and required certification or professional
registration. The type, length and complexity of training and/or certification (i.e. eight hours
of training vs. the equivalent of several college or technical school courses obtained over
several months) may influence the rating and the experienced and/or first supervisory level.
The varying levels are as follows:
A. The basic or entry-level into any occupational field
This entry-level knowledge may be attained by obtaining a high school diploma,
completing specific technical course work or obtaining a four-year or advanced
college or university degree, depending upon the occupational field being considered.
B. The experienced or journey-level in any occupational field
This knowledge and skill level recognizes a class that is expected to perform the day-
to-day functions of the work independently, but within guidelines (written or oral)
and with supervisory assistance available in unusual situations. This level of
knowledge is sufficient to provide on-the-job instruction to a fellow employee or an
assistant when functioning in a lead capacity. Certifications, such as found in the
City's Water and Wastewater class series, may be required for demonstrating
possession of the required knowledge and skills.
C. The advanced level in any occupational field
This knowledge and skill level is applied in situations where an employee is required
to independently perform or deal with virtually any job situation that may be
encountered. Guidelines may be limited and require creative application; problem
solving may be involved. Supervisory knowledge and skills are considered in a
separate factor and should not influence any assessment of this factor.
D. Total mastery of one or more occupational fields
This level normally requires an advanced level of college or university education and
significant creative experience. It is normally found in a research, educational or
product development setting rather than in a service delivery or operational
environment.
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2. Supervisory/Management Responsibility, Including Organizational Placement
This factor defines the supervisory and managerial responsibility, including short- and long-
range planning, budget/program development and administration, resource allocation, policy
and procedure development and direction of staff. City-wide programs and/or responsibilities
tend to be of greater overall impact that department-wide programs and responsibilities and
should be considered in making compensation recommendations. Organizational placement
(i.e. reporting relationships) may also be considered for impact and consequences of action.
A. No ongoing direction of programs or staff
The employee is responsible for the performance of his or her own work and may
provide side-by-side instruction to a co-worker on a project basis.
B. Lead direction of staff
The employee performs the full range of work, and in addition, may plan, assign,
direct and review the work of staff performing similar work to that performed by the
employee on a project or day-to-day basis. Training in work procedures is normally
involved. At this level, the title of "Senior" may be added to the description. The
assignments emphasize performance of the work, rather than direction of staff.
C. Full first-line supervisor
The employee performs the lead duties listed above, and, in addition, makes effective
recommendations and/or carries out selection, performance evaluation and
disciplinary procedures. If staff supervision is not involved, the employee must have
programmatic responsibility, including developing and implementing goals,
objectives, policies and procedures and budget development and administration. In
the City's classification structure, this level may be titled "Supervisor" or
"Coordinator".
D. First full managerial level
The employee is considered mid-management, often supervising through subordinate
levels of supervision. In addition to the responsibilities outlined above,
responsibilities include allocating staff and budget resources among competing
demands and performing significant program and service delivery planning and
evaluation. Normally, this level would be titled a program or division manager.
Depending upon the size of the organization, there may be more than one "D"-level
class within a department or occupational series.
E Department managerial level
The employee is the director of a specified department, normally reporting to the
Chief Executive Officer(i.e. City Administrative Officer).
F Chief Executive Officer level
The employee has total administrative responsibility for the City.
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3. Problem Solving
This factor involves analyzing, evaluating, reasoning and creative thinking requirements. In a
work environment, not only the breadth and variety of problems are considered, but also
guidelines, such as supervision, policies, procedures, laws, regulations and standards
available to the employee. Consequence of error (i.e., impact upon City and/or departmental
activities) should also be considered.
A. Structured problem solving
Work situations normally involve making choices among a limited number of alternatives
that are clearly defined by policies and procedures. Supervision, either on-site or through
a radio or telephone, is readily available.
B. Independent, guided problem solving
Work situations require making decisions among a variety of alternatives; however,
policies, procedures, standards and regulations guide the majority of the work.
Supervision is generally available in unusual situations.
C. Application of discriminating choices
Work situations require searching for solutions and independently making choices among
a wide variety of policies, procedures, laws, regulations and standards. Interpretation and
evaluation of the situation and available guidelines are required. Application of these
guidelines to the work of others may be required.
D. Creative, evaluative or analytical thinking
Work situations require the analysis and application of organizational policies and goals,
complex laws and/or general business or ethical considerations. Situations are not clearly
defined and may have significant impact upon City finances, operations and/or service
delivery.
4. Authority for Making Decisions and Taking Action
This factor describes the degree to which employees have the freedom to take action
within their job. The variety and frequency of action and decisions, the availability of
policies, procedures, laws and supervisory or managerial guidance and the consequence
or impact of such decisions are considered within this factor. As above, situations are not
clearly defined and may have significant impact upon City fmances, operations and/or
service delivery.
A. Direct, limited work responsibility
The employee is responsible for the successful performance of his or her own work with
little latitude for discretion or decision-making. Direct supervision is readily available.
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Appendix Two
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B. Decision-making within guidelines
The employee is responsible for the successful performance of their own work, but able
to prioritize and determine methods of work performance within general guidelines.
Supervision is available, although the employee is expected to perform independently on
a day-to-day basis. Emergency or unusual situations may occur, but are handled within
procedures and rules. Impact of decisions is normally limited to the department or
function to which assigned.
C. Independent action with focus on work achieved
The employee receives assignments in terms of long-term objectives, rather than day-to-
day or weekly timeframes. Broad policies and procedures are provided, but the employee
has latitude for choosing techniques and deploying staff and material resources. Impact of
decisions may have significant department or City-wide service delivery and/or
budgetary impact.
D. Decisions made within general policy or elected official guidance
The employee is subject only to the policy guidance of elected officials and/or broad
regulatory or legal constraints. The ultimate authority for achieving the goals and
objectives of the City are with this employee.
5. Interaction with Others
This factor includes the nature and purpose of contacts with others, from simple
exchanges of factual information to the negotiation of difficult issues. It also considers
with whom the contacts are made, from co-workers and the public to elected or appointed
public officials. Such interaction may involve making significant financial or resource
commitments, subject to elected official approval.
A. Exchange of Factual Information
The employee is expected to use ordinary business courtesy to exchange factual
information with co-workers and the public. Strained situations may occasionally occur,
but the responsibilities are normally not confrontational.
B. Interpretation and Explanation of Policies and Procedures
The employee is required to interpret policies and procedures, apply and explain them
and influence the public or others to abide by them. Problems may need to be defined
and clarified and individuals contacted may be upset or unreasonable. Contacts may also
be made with individuals at all levels throughout the City.
C. Influencing Individuals or Groups
The employee is required to interpret laws, policies and procedures to individuals who
may be confrontational or to deal with members of professional, business, community or
other groups or regulatory agencies as a representative of the City.
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D. Negotiation with Organizations from a Position of Authority
The employee often deals with public officials, members of boards, councils,
commissions and others to provide policy direction, explain agency missions and/or
negotiate solutions to difficult problems.
6. Working Conditions/Physical Demands
This factor includes specific physical, situational and other factors that influence the
employee's working situation.
A. Normal Office or Similar Setting
The work is performed indoors in a normal office or similar setting during regular office
hours (occasional overtime may be required, but compensated for). Responsibilities
include meeting standard deadlines, using office and related equipment, lifting materials
weighing to 20 pounds and communicating with others in a generally non-stressful
manner.
B. Varied Working Conditions with Some Physical or Emotional Demands
The work is normally performed indoors, but may have some exposure to noise, heat,
weather or other uncomfortable conditions. Stand-by, callback or regular overtime may
be required. The employee may have to meet frequent deadlines, work extended hours
and maintain attention to detail at a computer or other machinery, deal with difficult
people or regularly perform moderate physical activity.
C. Difficult Working Conditions and/or Physical Demands
The work has distinct and regular difficult demands. Shift work (24-7 or rotating) may
be required; there may be exposure to hazardous materials or conditions; the employee
may be subject to regular emergency callback and extended shifts; and/or the work may
require extraordinary physical demands.
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Appendix Three
Proposed Compensation Range Schedule
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