Mike Faher

Jun. 22, 2008 (McClatchy-Tribune Regional News delivered by Newstex) -- Johnstown officials should not consider large-scale layoffs, but they must focus on improving planning as well as the efficiency of the city's work force, a long-awaited study says.

While proposing a handful of cuts mostly through attrition, a draft of the staffing analysis praises Johnstown's services and actually recommends enhancing the fire department's manpower.

The preliminary document has not been made public, but a copy was obtained by The Tribune-Democrat.

"We are pleased to report that Johnstown's administrative agencies are among the very best we have reviewed and provide an exceptionally high level of service," authors wrote -- in a statement italicized for emphasis -- on the report's first page.

The study was prepared by a Pittsburgh firm and paid for by the state; City Council has approved a cost not to exceed $62,000.

In a financially distressed city with rising costs and budget deficits, the report was highly anticipated. Council members repeatedly have delayed any action on staffing issues, saying they wanted to review the study first.

But if anyone was hoping for specific ways to significantly reduce staff, the study -- at least in its current form -- does not provide that blueprint.

The report does note, however, that officials should consider whether Johnstown "can continue to provide services at such a high level."

Council and City Manager Curt Davis likely will debate the report's findings, which are not binding, in the coming months.

The bulk of the 88-page study is devoted to the police and fire departments.

The city's police union has complained that the department is understaffed; the study recommends a force of 35 to 51 officers.

"Because of the nature of crime in Johnstown, the city should maintain a total force at the high end of that range near current levels," the report says, noting that manpower now stands at 45.

However, the consultant also notes a concern: A wave of retirements is coming.

"This scenario sets the stage for another potential mass exodus/mass hiring situation," the report says, referring to 1989, when the city was forced to hire 20 officers.

The study gives the city's 43-member fire department an in-depth treatment, saying firefighters are well-trained and the department is "on the leading edge of progressive emergency service delivery."

But the consultant says city firefighters often cannot deploy to major emergencies in sufficient numbers to meet national standards.

While Johnstown has more firefighters than other, comparable municipalities, the report says measures such as population and geographic size "do not take into account many of the most important factors in determining fire-protection needs."

Rather, the consultant based his findings on the "large number of extreme and major" fire risks in the city.

He cites the city's high number of aging and deteriorating buildings, saying Johnstown experiences at least four times the number of structure fires that would be expected in a town of 20,000 to 25,000 people.

The document sets three goals: Increase staff, reduce cost and add revenue.

However, it notes that the city's financial constraints mean hiring more firefighters is "out of the question."

So the report offers a variety of proposals -- some of which are sure to ignite controversy.

That includes initiating a transport ambulance service. The department's union has argued that such a move could boost manpower and generate revenue, but city management is not keen on the idea.

Also, the city's two independent ambulance services are sure to fight the proposal.

Another solution could be implementing a "combination" department using volunteers to augment manpower.

The union is not likely to back that idea.

Other proposals include adding part-time staff, training the city's code staff to assist on fire calls and using firefighting assistance from neighboring municipalities.

Staffing levels also are a concern for the city's 31-member public works department, but in a different way. The report commends the department's high service level but questions whether the city can afford it.

Some public works recommendations, if implemented, could lead to job cuts or reassigned workers.

For example, the study says "eliminating curbside leaf collection could allow the department to reduce its staff by 3 to 4 employees through attrition."

Also, the report says the city could reduce residential street sweeping to two or three passes per year, with more sweeping downtown.

That "would allow the department to reduce its staff dedicated to this service by one employee," the document says.

And janitorial services could be contracted out, with staff reduced accordingly, the study says.

The report also contains recommendations for four other city departments:

--Finance: The study found "no glaring problems" but urges less reliance on paperwork and more use of software. Also, the consultant suggests outsourcing garbage billing and possibly eliminating or redirecting a clerk.

--Recreation: Johnstown has done an "impressive job through capital investments in the past 10 years" at a time when many other communities are cutting back on recreational offerings, the study says.

The report recommends better goal-setting and promotion, noting that "whether the city should employ a full-time recreation director has been questioned in the past year despite seemingly high performance of the department."

--Code enforcement: The study says this department is busy, and "residential construction value within the city has grown in recent years."

At the same time, the consultant suggests that the office has a relatively high number of employees and says one position -- a permitting clerk -- could be cut.

The report also strongly suggests that Johnstown adopt an ordinance mandating annual inspections of rental properties -- a measure that failed a few years ago after landlords protested.

--Community development: The report says federal Community Development Block Grant funds, administered by this department, continue to decrease annually.

If that trend continues, the consultant says, the department should reduce its administrative costs and re-evaluate the necessity of the economic-development specialist position.

Newstex ID: KRTB-0101-26149538