Section 1 Enforcement

As part of the Budget Analyst"s performance audit of the San Francisco Department of Parking and Traffic (DPT), we reviewed the deployment policies and practices, as well as the availability of Parking Control Officers (PCOs) to work their scheduled assignments in the Enforcement Division. With 354 personnel, the Enforcement Division has the greatest and most consistent exposure to the general public.

As part of this analysis, we examined (a) whether DPT"s current deployment practices result in sufficient enforcement of parking regulations throughout the City; (b) whether planned/budgeted staffing levels are adequate to meet the Department"s objectives with regard to enforcement; and (c) the effect of absenteeism on the deployment of PCOs. To accomplish these objectives, we:

• Reviewed organizational charts, budget documents, and performance measures for the Enforcement Division;

• Interviewed top managers in the Enforcement Division, including the Bureau Chief, Enforcement Director, and the four Assistant Directors, as well as other key supervisors and staff;

• Obtained and examined beat maps and descriptions of PCO assignments;

• Went on a ride-along with a PCO during his regular shift;

• Obtained information from managers and supervisors on daily staffing requirements and general deployment practices;

• Reviewed current PCO assignments by beat, shift, and day of week;

• Reviewed Department-wide and Enforcement Division policies and procedures manuals; and

• Collected and analyzed PCO attendance records for 14 randomly selected pay periods over a two year period (from July 1, 1996 through June 30, 1998).

Organization, Management, and Current Staffing

Enforcement Services, one of the five bureaus of the Department of Parking and Traffic, is headed by the Chief of the Bureau of Enforcement and is separated into two divisions: the Enforcement Division and the Adult School Crossing Guard Program. The San Francisco Police Department (SFPD) work orders funds to DPT to pay for one full-time Q60 Lieutenant, who serves as the Enforcement Director. The Enforcement Division is further divided into four units: Field Operations, Community Services, Special Operations, and Administration, each of which is headed by an Assistant Director of Enforcement who reports to the Enforcement Director and the Bureau Chief. Each Assistant Director is responsible for the management and supervision of up to 13 8216 Senior Parking Control Officers (Supervising PCOs) and/or other clerical and support staff. Supervising PCOs oversee individual details or are assigned to specific geographic areas of the City to supervise PCOs within that area.

PCOs in the Field Operations Unit are assigned to general enforcement, residential permit parking enforcement, Muni-related enforcement, tow routes, yellow zones, and downtown traffic control. Community Services consists of special units for street sweeping, abandoned vehicles, scofflaws and dispatch, and also responds to complaints from the public (the "587/588" Detail). Special Operations handles vehicle and equipment management, budget/overtime planning, and special event planning. Administration handles personnel, payroll, training, tow administration, phones, and modified duty assignments. Exhibit 1.1 below is an organization chart showing the management structure and functions of each unit within the Enforcement Division.

Exhibit 1.1

Management Structure and Functions of
DPT"s Enforcement Division

Descriptions of each PCO field assignment are as follows:

• Morning and afternoon Tow Routes: PCOs ride ahead of tow trucks in order to cite and tow vehicles illegally parked in am and pm towaway zones.

• General Enforcement: Includes enforcement of parking meter regulations, double parking, bus and yellow zones, etc. PCOs assigned to tow routes during morning or afternoon commute hours are assigned to General Enforcement beats for the remainder of their shifts.

• Residential Permit Parking: PCOs "chalk" (i.e., mark) and issue citations to vehicles without residential permit parking permits that have exceeded posted time limits.

• Muni Detail: PCOs ride ahead of buses in the most congested areas of the City, citing drivers who park in bus zones or otherwise block traffic along bus routes.

• Traffic Control Fixed Posts: PCOs control traffic downtown, preventing vehicles from blocking busy intersections. Assignment to the Muni Detail is usually combined with a Traffic Control Fixed Post assignment in the afternoon.

• Yellow Zone Detail: PCOs ride in tow trucks to cite and tow vehicles that are parked in delivery (yellow) zones.

• Street Sweeping: PCOs drive ahead of DPW street sweeping vehicles and issue citations to cars illegally parked in street sweeping zones.

• 587/588 Detail: PCOs issue citations and request vehicle tows in response to complaints from the general public regarding blocked driveways, parking on sidewalks, etc.

• Boot/Scofflaw Detail: PCOs identify vehicles with five or more unpaid citations and either boot or tow such vehicles.

• Abandoned Auto Detail: PCOs respond to reports of abandoned vehicles and have them towed.

• Community Parking Officer (CPO) Unit: A new unit that addresses persistent parking and traffic problems in certain areas of the City.

In total, there are 253 PCOs assigned to the functions described above, plus an additional 12 PCOs assigned to administrative duties, for a total of 265 PCOs. The FY 1998-99 Annual Salary Ordinance authorizes a total of 305 Parking Control Officers for the Enforcement Division. The difference of 40 positions between the 305 authorized PCO positions and the 265 assigned PCOs results from (a) approximately 34 PCOs who are currently on long-term disability or sick leave with an unknown date of return, and are therefore considered unavailable for a regular assignment; and (b) six vacant PCO positions. Thus, only 265 of 299 filled PCO positions are assumed to be available for deployment. Additionally, there are currently 26 filled Supervising PCOs positions.

Table 1.1 below shows a breakdown of PCO positions and Supervising PCO positions by assignment.

Table 1.1
PCOs and PCO Supervisor Positions by Unit/Assignment

In addition to the 332 authorized PCO and Supervising PCO positions shown above, there are 33 other authorized positions in the Enforcement Division, consisting of six management positions, 18 Dispatchers, and nine clerical and support positions, for a total of 365 authorized positions. Of the 365 authorized positions, 354 are currently filled, consisting of six managers (one Bureau Chief, one Enforcement Director and four Assistant Directors), 26 Supervising PCOs, 299 PCOs, 16 Dispatchers, and seven clerical and support staff.

Based on our review and analysis of the operations of the Enforcement Division, we found that DPT is unable to provide an adequate level of enforcement services throughout the City for two principal reasons: (a) high absenteeism among Parking Control Officers; and (b) the failure of DPT to schedule a sufficient number of PCOs to meet its minimum staffing requirements or to adequately enforce parking regulations during all periods when coverage is needed.

This section of the report is divided into two subsections, consisting of two findings and eight recommendations. These subsections are:

• Section 1.1: Parking Control Officer Productivity

• Section 1.2: Parking Control Officer Deployment

Implementation of our recommendations would improve the enforcement of parking and traffic regulations throughout the City, thereby resulting in increased turnover of parking spaces, reduced traffic congestion, and better response to complaints from the public. In addition, DPT could generate potential additional revenues of between $4.3 million and $8.4 million annually.