Recreation Division Seasonal Staffing Wage RecommendationCity of Dubuque
City Council Meeting
Action Items # 04.
Copyrighted
May 2, 2022
ITEM TITLE: Recreation Division Seasonal Staffing Wage Recommendation
SUMMARY: City Manager recommending hourly wage increases for lifeguards at $15
for first year guards, $17 for returning lifeguards and $20 for pool
managers with an estimated impact to the budget of up to $60,781.
SUGGESTED Suggested Disposition: Receive and File; Approve
DISPOSITION:
ATTACHMENTS:
Description Type
Recreation Division Seasonal Staffing Wage City Manager Memo
Recommendation-MVM Memo
Staff Memo Staff Memo
THE CITY OF
DUB
Masterpiece are the Mississippi
TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: Recreation Division Seasonal Staffing Wage Recommendation
DATE: April 28, 2022
Dubuque
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Leisure Services Manager Marie Ware is recommending wage increases for lifeguards,
pool managers and playground/after school staff.
As programs and services began to bounce back from the pandemic in the summer of
2021, the recruitment and hiring of staff was a major challenge. This challenge was not
just seen within the Leisure Services Department but nationally. This shortage in staff
resulted in the altered operations of Dubuque's pools, the marina and several programs.
It also resulted in full-time supervisory staff doing everything they could to fill gaps so
that the community wouldn't see an even greater reduction in services. For several of
the staff, this meant consistent coverage on nights and weekends managing facilities
and programs, lifeguarding, officiating, and more. Last summer was exhausting for the
Leisure Services Department.
As the community and staff continue to become more comfortable with the times we are
living in, there was hope that this summer would start to look a little more normal with
our staffing numbers. With a positive look to the 2022 summer season, staff began
working with the Human Resources Department starting in October of 2021 to review
processes that would improve the next summer's recruitment season. Staff began
finding ways and planning for how to remove any barriers that might prevent people
from applying. This includes but is not limited to offering free training programs over the
winter months, starting the recruitment process as early as December, offering the
increased wages approved for the year prior.
With the help of the Human Resources Department, staff started to recruit for the 2022
summer season in December of 2021. There are 20 seasonal job postings listed on the
City website for the Recreation Division. To advertise and recruit for these positions,
staff have reached out directly to over 85 contacts including partner organizations,
neighborhood groups, coaches, school administrators, local universities, etc. The Park
and Recreation Commission Members have been helping to recruit through their
contacts. With the help of the Public Information Office, over 20 social media posts
have been created and continue to reach thousands of community members. For
example, in February there was a lifeguard post that was seen by over 4,000 people.
Each of these 20 job postings have a minimum number of staff required to effectively
and equitably operate those programs and services. These minimum requirements total
120 employees. Pre-COVID this number was around 200.
As of April 28, 2022, staff have received 140 applications. Of these 140 applications, 73
have been interviewed and the remaining 67 have either been unresponsive to interview
requests, have turned down an interview or withdrew/denied due to the vaccination
requirement.
Of the candidates who have completed the interview process, 66 have moved on to be
hired for their positions. Based on the total minimum staff needed, these 66 potential
employees represent only 55% of the needed workforce.
Included in the minimum number of 120 employees needed for our programs and
services, 30 represent our lifeguard needs. There are currently 43 lifeguard applicants
who have all been contacted for interviews. Of these 43 applicants, 24 are in the
process of being hired and trained with the remaining 23 either being unresponsive or
withdrawing.
Based on Iowa State codes as well as our experience from last summer with limited
staffing, at maximum capacity Flora pool must have a minimum of 20 lifeguards on duty
per shift. To ensure safe coverage, we operate with 23 lifeguards per shift. Factoring in
the need for substitutes, staff availability during the week and the range of schedules
when many staff return to school, we will need 30-35 staff dedicated to Flora Pool to
prevent burn -out. In order to staff Sutton Pool, the number of staff needed is slightly
reduced due to its size. However, staff would need to onboard and train an additional
25 lifeguards and potentially 2 more managers in order to safely open the pool.
The Leisure Services Department has been working with Strategic Workforce Equity
Coordinator Kecia Dougherty over the last year on the current wages and how they
compare to like positions.
The greatest immediate need for a staffing increase is in lifeguards and
playgrounds/after school program. This need is not only for this season, but to also
build back up the retention numbers for future seasons.
The highest average wage for a lifeguard in Iowa (based on the 38 reporting cities) is
$11.15. Iowa City currently pays the highest wage in the State at $15.50 per hour. In
Dubuque, the lifeguard wage was increased to $12.50 last season.
The playground leaders and after school staff are currently making up to $10.72 per
hour. Although their job skills and training are vastly different than that of a lifeguard,
their direct impact on the youth served throughout the year is extremely important. Not
only do we need people to fill these positions, but we need motivated and passionate
individuals who want to work directly with the youth.
Staff is recommending hourly wage increases for lifeguards at $15 for first year guards,
$17 for returning lifeguards and $20 for pool managers with an estimated impact to the
budget of up to $60,781. In addition, staff is recommending an hourly wage increase for
our playground and after school program staff at $14 for first year applicants and $16 for
returning staff with an estimated impact to the budget of $75,162.
The total $135,943 increase would be offset by $45,938 from savings of only opening
one pool and the remaining $90,005 would be from Utility Franchise Fee Revenues.
I concur with the recommendation and respectfully request Mayor and City Council
approval subject to a future budget amendment.
-AAA4 k�w
Michael C. Van Milligen
MCVM:sv
Attachment
cc: Crenna Brumwell, City Attorney
Cori Burbach, Assistant City Manager
Marie Ware, Leisure Services Manager
Jennifer Larson, Director of Finance & Budget
Shelley Stickfort, Human Resources Director
Kecia Dougherty, Strategic Workforce Equity Coordinator
3
THE CITY OF
DUB
Masterpiece are the Mississippi
TO: Michael C. Van Milligen, City Manager
FROM: Marie L. Ware, Leisure Services Manager
Dubuque
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2aa7.2012.2013
017*2019
SUBJECT: Recreation Division Seasonal Staffing Update & Wage Recommendation
DATE: April 28, 2022
INTRODUCTION
The purpose of this memorandum is to provide information on the current state of the
recruitment and hiring of seasonal staff for the Recreation Division and to recommend
wage increases for lifeguards, pool managers and playground/after school staff.
BACKGROUND
As programs and services began to bounce back from the pandemic in the summer of
2021, the recruitment and hiring of staff was a major challenge. This challenge was not
just seen within our department but both in our industry and nationally. This shortage in
staff resulted in the altered operations of our pools, the marina and several programs. It
also resulted in FT supervisory staff doing everything they could to fill gaps so that the
community wouldn't see an even greater reduction in services. For several of our FT
staff, this meant consistent coverage on nights and weekends managing facilities and
programs, Iifeguarding, officiating, and more. Last summer was exhausting for our
department.
DISCUSSION
As the community and staff continue to become more comfortable with the times we are
living in, there was hope that this summer would start to look a little more normal with
our staffing numbers. With a positive look to the 2022 summer season, staff began
working with the Human Resources Department starting in October of 2021 to review
processes that would improve the next summer's recruitment season. Staff began
finding ways and planning for how to remove any barriers that might prevent people
from applying. This includes but is not limited to offering free training programs over the
winter months, starting the recruitment process as early as December, offering the
increased wages approved for the year prior.
RECRUITMENT EFFORTS & STATISTICS
With the help of the Human Resources Department staff started to recruit for the 2022
summer season in December of 2021. There are 20 seasonal job postings listed on the
City website for the Recreation Division. To advertise and recruit for these positions,
staff have reached out directly to over 85 contacts including partner organizations,
neighborhood groups, coaches, school administrators, local universities, etc. The Park
and Recreation Commission Members have been helping to recruit through their
contacts. With the help of the PIO office, social media posts (over 20) have been
created and continue to reach thousands of community members. For example, in
February there was a lifeguard post that was seen by over 4,000 people.
Each of these 20 job postings have a minimum number of staff required to effectively
and equitably operate those programs and services. These minimum requirements total
120 employees. Pre-COVID this number was around 200. The following chart
summarizes where these employment efforts are to date.
As of April 27, 2022
QTY
Notes
Job Titles Posted
20
Minimum Staff Needed
120
To operate programs and services with minimal operation changes
Applications Received
140
Interviewed
73
Moved onto Hiring Process
1 66
55%of the minimum 120 employees needed
As of April 28, 2022 staff have received 140 applications. Of these 140 applications, 73
have been interviewed and the remaining 67 have either been unresponsive to interview
requests, have turned down an interview or withdrew/denied due to the vaccination
requirement.
Of the candidates who have completed the interview process, 66 have moved on to be
hired for their positions. Based on the total minimum staff needed, these 66 potential
employees represent only 55% of the needed workforce.
PROGRAM/FACILITY IMPACTS
Included in the minimum number of 120 employees needed for our programs and
services, 30 represent our lifeguard needs. There are currently 43 lifeguard applicants
who have all been contacted for interviews. Of these 43 applicants, 24 are in the
process of being hired and trained with the remaining 23 either being unresponsive or
withdrawing (8 of which were due to the vaccination requirement).
Based on Iowa State codes as well as our experience from last summer with limited
staffing, at max capacity Flora pool must have a minimum of 20 lifeguards on duty per
shift. To ensure safe coverage, we operate with 23 lifeguards per shift. Factoring in the
need for subs, staff availability during the week and the range of schedules when many
2
staff return to school, we will need 30-35 staff dedicated to Flora Pool to prevent burn-
out. In order to staff Sutton Pool, the number of staff needed is slightly reduced due to
its size. However, staff would need to onboard and train an additional 25 lifeguards and
potentially 2 more managers in order to safely open the pool.
There are currently 20 applications received for the playground positions with a need for
24 staff to fully operate the program. Of those 20 applicants, there are 12 in the hiring
process. The remaining 8 candidates have either been unresponsive to interview
requests or denied the position due to the vaccine requirement.
The Port of Dubuque Marina is advertising for its seasonal dock attendant positions. To
operate the marina at full capacity, this would require a minimum of 12 employees. As
in the past 2 seasons, staff has operated the marina gas dock with 6 to 8 staff while
leaving the store closed. To date, the Marina Attendant position has 6 applicants, 3 of
which have interviewed and are in the hiring process.
As shown by the 55% of the total employees needed who are in the hiring process, the
above are just examples of potential service interruptions that are likely to take place
during this hiring crisis.
WAGES AND COMPARISONS
A seasonal/temporary position working in the field of Parks and Recreation presents a
great opportunity for our local youth and young adults to gain valuable experiences and
skills that will help them in their careers and life. Unlike other local seasonal positions
posted throughout the community which are predominantly private businesses, these
positions within our Department are truly seasonal in nature (meaning summer only or
program based) and are largely subsidized with tax dollars.
Staff developed a set of categories used to define each position's role within the
department. These categories/positions are defined by leadership, direct impact,
customer service, and labor. Leadership roles equate to positions that manage staff,
have programmatic influence, cash control oversight and/or have qualifications or
certifications specific to the position. Direct impact positions are those employees who
work directly with youth, underserved populations and through other support programs
specific to community safety and relationship building. Customer service positions are
our receptionists, cashiers and other direct service staff. Finally, our Laborer positions
directly relate to the beautification of public spaces through grounds maintenance such
as mowing, weeding and trash removal.
Our department has been working with Kecia Dougherty, Strategic Workforce Equity
Coordinator over the last year on our current wages and how they compare to like
positions.
3
The lowest average wage within the department are our direct impact providers. These
are our lifeguards, playground leaders, after school program leaders and site
supervisors, all of whom have a daily connection with the community. They are our
front-line staff who fill the roles of being mentors, educators, safety nets and sounding
boards for engagement mainly with the youth. These are also the programs/services
within the Department that have the largest staffing needs. The average wage for these
positions is $11.68.
The greatest immediate need for a staffing increase is in lifeguards and
playgrounds/after school program. This need is not only for this season, but to also
build back up the retention numbers for future seasons.
BUDGETIMPACT
Pools
The highest average wage for a lifeguard in Iowa (based on the 38 reporting cities) is
$11.15. Iowa City currently pays the highest wage in the State at $15.50 per hour. In
Dubuque, the lifeguard wage was increased to $12.50 last season. Due to the level of
responsibility for this position, staff would propose an increase in wage and the addition
of a retention wage. For new lifeguards, the hourly wage is recommended to be
increased from $12.50 to $15 per hour. For returning lifeguards, that retention wage is
recommended to be set to $17 per hour. The goal for the retaining wage is to increase
the numbers of returning staff.
The recommended increase in lifeguard wages would create compression in the wage
scale for pool managers that supervise the lifeguard staff. The current Pool Manager
wage of $18 per hour is recommended to increase to $20 per hour.
Based on 50% new staff and 50% returning staff, this would increase the remainder of
FY 22 and all of FY 23 budget for employee expense account numbers in 10034300 by
$60,871 for wage, FICA and if applicable IPERS for the lifeguard and pool manager
wage adjustments recommended.
Based on the operation of 1 pool this season and the current year to date budget for the
pools, there would be an estimated savings in wages of $99,329 in FY22. The revenue
is projected to drop $53,391 with the opening of just one pool. This means there would
be $45,938 in FY22 budget available to cover the proposed wage increases through the
last quarter of FY22 and July and August of FY23.
Playground/After School Leaders
The playground leaders and after school staff are currently making up to $10.72 per
hour. Although their job skills and training are vastly different than that of a lifeguard,
their direct impact on the youth whom we serve throughout the year is extremely
important. Not only do we need people to fill these positions, but we need motivated
and passionate individuals who want to work directly with the youth. Staff is
12
recommending a similar approach to the lifeguard wage recommendation with a starting
wage and a retention wage. For these positions, the proposed starting wage would be
increased from $10.72 to $14 per hour with a retention wage of $16 per hour. This
would have a fiscal year increase in account number 10034420 in FY 22 of $15,010 and
a FY 23 impact of $60,152 for a total impact of $75,162.
To further help offset these increases (both pools and playgrounds), the Finance
Department has identified increased Utility Franchise Fee Revenues as a funding
source.
In this tight job market, we do want to caution that the increases in wages may help but
we are not assured that it will result in full staffing. Additionally, if persons apply to be
lifeguards that do not have certification there is significant training time for the
certification and the onboarding training before they can be placed on deck at the pool.
Staff will continue to work with Kecia and the rest of the Human Resources team to
review and potentially recommend additional wage increases to several of the other
seasonal/temporary positions. Comparisons need to be made for similarly situated
position on the wage plan that are not called out in this memo.
All fees (programs, rentals, daily admits, etc.) have been set for the current pool season
for the summer of 2022. If this recommendation is approved the pool rentals which are
all booked and in the past were done at a break-even will now be done at a loss. This is
noted so that you are aware of it, not that we recommend any changed in fees for the
summer of 2022 season. What we will consider in the future is any adjustments to fees
that may be necessary to consider in the summer of 2023 season. Those adjustments
would be brought forward for consideration at a later time.
RECOMMENDATION
Staff is recommending hourly wage increases for lifeguards at $15 for first year guards,
$17 for returning lifeguards and $20 for pool managers with an estimated impact to the
fiscal budget 10034300 of up to $60,781. In addition, staff is recommending an hourly
wage increase for our playground and after school program staff at $14 for first year
applicants and $16 for returning staff with an estimated impact to the fiscal budget
10034420 of $75,162.
The total $135,943 increase would be offset by $45,938 from savings of only opening
one pool and the remaining $90,005 would be from Utility Franchise Fee Revenues.
Upon approval we would notify all currently hired staff in these positions of the wage
change and start advertising the new wages immediately.
Memo prepared by: Dan Kroger, Recreation Division Manager
cc: Kecia Dougherty, Strategic Workforce Equity Coordinator
Jenny Larson, Director of Finance & Budget
461