Tensions, Trends and Trade-Offs
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TENSIONS, TRENDS AND TRADE-OFFS: Recommendations Toward an Equitable, Efficient, and Effective New York City Civil Service System A REPORT FOR CITIZENS UNION SUBMITTED BY: Sarah Church, Lyz Crane, Cinthia Ruiz Garcia, Johanna Ryan, Haley Zernich Robert F. Wagner School of Public Service Capstone Team APRIL 23, 2012 1 | P a g e ACKNOWLEDGEMENTS The Citizens Union Capstone Team would like to thank all of the individuals who were willing to speak with us at length about these challenging and complicated issues; our support team at Citizens Union— Rachael Fauss and Alex Camarda—for sage advice and resources provided over the course of the project; our Professor, Charles Brecher, for being a constant source of wisdom and always willing to review another draft; and the Wagner Administration, for their ongoing support and efficiency in managing the Capstone process. 2 | P a g e TABLE OF CONTENTS EXECUTIVE SUMMARY ................................................. 5 Project Purpose ........................................................................................................................................................ 6 Methodology .............................................................................................................................................................. 6 Areas of Inquiry......................................................................................................................................................... 7 Recommendations .................................................................................................................................................... 9 INTRODUCTION .......................................................... 16 HISTORY OF THE CIVIL SERVICE SYSTEM ............. 22 HISTORY: CIVIL SERVICE ........................................................................ 23 HISTORY: NEW YORK CITY PUBLIC SECTOR UNIONS ............................ 32 CONCLUSION ....................................................................................... 35 RECOMMENDATIONS ................................................. 36 INTRODUCTION .................................................................................. 37 CIVIL SERVICE GOVERNANCE ........................................................... 38 Introduction ............................................................................................................................................................. 38 Governance Chart .................................................................................................................................................. 39 Civil Service Jurisdiction........................................................................................................................................ 40 The State and The City ......................................................................................................................................... 41 Affiliated Public Authorities and The City ........................................................................................................ 45 Department of Citywide Administrative Services and City Agencies ....................................................... 47 Unions and Management (and Employees) ....................................................................................................... 49 HIRING & EXAMS .................................................................................. 54 Development ........................................................................................................................................................... 54 Administration ......................................................................................................................................................... 57 Scoring ....................................................................................................................................................................... 59 Challenging Exams .................................................................................................................................................. 60 3 | P a g e JOB CLASSIFICATIONS ....................................................................... 62 Definition of Manager ............................................................................................................................................ 62 Training and Professional Development ........................................................................................................... 63 Job Classification and Frequency of Exams ...................................................................................................... 65 Provisional Employees ........................................................................................................................................... 67 Outsourced Employees & Temporary Appointments ................................................................................... 69 WORKFORCE MANAGEMENT: PROBATIONARY PERIODS, PERFORMANCE EVALUATIONS & PROMOTIONS ......................................... 72 Probationary Periods ............................................................................................................................................. 72 Performance Evaluations ....................................................................................................................................... 73 Promotions............................................................................................................................................................... 80 WORKFORCE MANAGEMENT: DISCIPLINE, DUE PROCESS, AND DOWNSIZING ............................................................................................ 84 Discipline .................................................................................................................................................................. 84 Due Process and Arbitration ............................................................................................................................... 86 City Downsizing and Layoff Policy...................................................................................................................... 88 SPECIAL SECTION: TEACHER PERFORMANCE EVALUATION AND LAYOFFS .................................................................................................... 91 History of New York City Department of Education ................................................................................... 91 Teacher Performance Evaluations ...................................................................................................................... 92 Layoffs ........................................................................................................................................................................ 95 CONCLUSION ............................................................... 99 CONCLUSION ..................................................................................... 100 RECOMMENDATIONS BY TYPE ....................................................... 102 Labor-Management Committees ..................................................................................................................... 102 Changes to Administration ............................................................................................................................... 102 Pilot Programs ...................................................................................................................................................... 103 Resource Allocation ............................................................................................................................................ 103 Build Infrastructure ............................................................................................................................................. 104 Changes to Oversight ......................................................................................................................................... 104 Notes of Caution ................................................................................................................................................. 104 4 | P a g e EXECUTIVE SUMMARY 5 | P a g e EXECUTIVE SUMMARY PROJECT PURPOSE In January 2011, New York City Mayor Bloomberg released the “Report and Recommendations” of the Mayor’s Workforce Reform Task Force (hereafter referred to as the WRTF Report), which listed a number of recommended changes to the City’s civil service system around Governance, Hiring Flexibility, and Organizational Excellence. Soon after, the Municipal Labor Committee comprised of public sector unions fired back with a detailed analysis of the potentially detrimental effects of the changes (hereafter referred to as the MLC Response). With an interest in identifying common-ground solutions that could overcome these polarized politics, Citizens Union engaged the Wagner Capstone Team to study the civil service system. Citizens Union was founded to advance good government. Civil service reform was one of the first issues it became involved in at the start of the 20th century. In 1976, the organization released a report that made recommendations about how to improve the civil service system. However, many of the problems cited by the report remain today and are still causing tension between stakeholders in the system. The goal of this