Table of Contents

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Table of Contents

• Introduction and scope of project . . . . . . . .
  . . .
• Findings
• Current state of elections in San Francisco . . .
  
• Current organizational structure . . . . . . . .
  . . . .
• Current facilities and materials flow . . . . . .
  . . .
• Election trends . . . . . . . . . . . . . . . . .
  . . . . . . . .
• Recommendations
• Organizational structure . . . . . . . . . . . .
  . . . . . .
• Facilities . . . . . . . . . . . . . . . . . . .
  . . . . . . . . . . .
• Additional recommendations . . . . . . . . . . .
  . . .
• Appendices
• Election commission laws in peer cities . . . . .
  .

2 3 4 6 8 12 16 20 21
3
Introduction and scope of project

• The purpose of this project is to mitigate recent
  organizational problems within the San Francisco
  Department of Elections and position the agency
  for success in the future. The San Francisco
  Department of Elections has recently experienced
  significant turnover in key positions including
  the agency director. The agency has also been
  unable to develop a permanent corps of
  experienced election professionals. Furthermore,
  the agency does not have adequate facilities to
  operate efficiently and securely.
• Establishing the "infrastructure of democracy"
  begins with a functioning department of
  elections, with the personnel, facilities,
  technology and budget to accomplish the goal of
  safe, secure, efficient, accurate and accessible
  elections in which the citizens can have
  confidence.
• The scope of this project was two-fold
• Examine the current staffing and organizational
  structure and develop a staffing plan and
  structure that will facilitate the development of
  a corps of permanent, experienced election
  managers.

• Examine the current facilities used by the
  agency, analyze the flow of materials and develop
  recommendations for procuring and fitting out
  appropriate facilities and organizing flows of
  materials and work to make efficient use of the
  space.

4
Current state of elections in San Francisco

• Starting in 2002, the Department of Elections
  reported organizationally to a Board of Election
  Commissioners. The seven Commissioners are
  appointed by elected officials within the City.
  The Director of Elections is appointed by the
  Board of Commissioners. Prior to 2002, the
  agency reported through the Citys Administrative
  Services Division.
• The Department of Elections employs a mix of
  temporary, provisional, probationary and
  permanent staff. The agency has historically
  reduced staff significantly after elections.
  Many of these staff reductions affected
  supervisory and administrative staff as well as
  rank-and-file election workers. The Department
  operates with a budget of 8.8 million (based on
  2002-03 budget).
• San Francisco holds fewer elections per year than
  other counties in the State. This is due to the
  special status of the City and County as one
  governing unit. There are no separate elections
  for other cities, school districts or bond issues
  that typically occur in other populous, urban
  counties.
• San Francisco does have a unique run-off law that
  can force additional elections in certain
  supervisorial districts within the City. This
  effectively lengthens the election cycle beyond
  what occurs in peer counties.

San Francisco has a highly educated, politically
savvy citizenry. This generates a great deal of
visibility over the electoral process in the City
and also generates a high volume of initiatives,
campaign arguments and candidate statements. The
Citys voter information pamphlet or VIP can run
up to 300 pages. Due to the longer down cycles in
election administration in the City, policy
makers have been reluctant in the past to invest
in a more permanent infrastructure for the
Department. This accounts for the haphazard
nature of the Departments facilities and
personnel practices. Indicative of this is the
fact that the human resources official within the
Department is a temporary worker. The Department
uses the Optech optical scan voting system, a
system that is not impacted by the recent
decertification issues within the State. The
Department uses a voter and election management
system produced and supported by DIMS, an
established developer of election systems based
in Oregon. The DIMS system has been used for
several years in the City and is a stable
installation.
5
Current organizational structure

• Given the lack of staff continuity in elections
  administration in San Francisco, a stable and
  mature organization has not evolved in the City.
  This has transpired due to historical and
  structural problems in City administration. For
  years, the elections function was embedded within
  the Department of Administrative Services along
  with other miscellaneous functions such as animal
  control and real estate management.
  Organizational structures are often an accurate
  reflection of the relative strategic importance
  of organizational functions. In the Citys
  structure, the placement of election
  administration demonstrated a relative lack of
  strategic importance and a similarly insufficient
  amount of investment.
• For years, the elections department relied almost
  exclusively on temporary staff hired for an
  election cycle. A corps of experienced managers
  was not allowed to develop and accumulate a base
  of knowledge on how to run an election.
• Currently, the organization has approximately 51
  staffed positions within the Elections
  Department. As seen in the pie chart at right,
  40 or 78 of these staffpersons are temporary.
  Only 7 or 14 of the total complement are
  permanent or probationary. Based on volume
  benchmarks from peer California counties, San
  Francisco should have 26 to 28 permanent staff.

6
Current organizational structure

• The lack of continuity has also caused a similar
  lack of development in the Departments
  organizational structure. A logical grouping of
  functions based on process flows, strategy
  considerations, or personnel has not developed.
  This creates a situation where informal lines of
  authority and communication evolve during each
  election cycle. The diagram at right shows the
  organizational structure that existed during the
  summer of 2002.
• As seen in the organizational chart, the span of
  control for the Acting Director is 9, a span that
  is too broad for effective management. This puts
  the Director in the position of having to resolve
  all intra-Departmental problems.
• The chart also shows the employment status of
  each manager. As seen in the chart, none of the
  managers have permanent employment status with
  the City although some of them have been with the
  Department for years on a temporary status.

Current organizational structure San Francisco
Department of Elections
7
Current facilities and materials flow

• Department of Elections Facilities Roster
• City Hall
• Administration
• Precinct/pollworker recruitment
• Campaign/candidate services
• Voter outreach
• Precincting/redistricting
• Voter transactions (affidavits, AV requests,
  etc.)
• Phone bank
• Staging, verification and counting of returned
  AVs
• Pier 29
• Storage of some voted ballots (for election being
  investigated)
• Storage of precinct supplies and supply bins
• Receiving of voted ballots, rosters and supplies
  after election
• Cor-o-van Storage facility
• Storage of voting machines, chairs and tables
  used at polling locations

• The Department of Elections currently operates
  out of six separate facilities spread among the
  City and Alameda County across the bay. The
  sidebar at the right lists the functions
  performed at each facility. The diagram on the
  following page shows how materials and
  transactions flow across facilities.
• As shown in the sidebar and the flow diagram,
  election functions and materials are scattered
  across the city. This presents many key issues
  regarding the efficient and secure storage,
  processing and distribution of election supplies
• Excessive movements of sensitive materials such
  as ballots (voted and unvoted).
• Pier 29, an old waterfront warehouse dating from
  the early 1900s, is not a clean and secure
  location for storing supplies and voted ballots.
  No fire suppression.
• Processing at Brooks Hall occurs in a basement
  area without proper fire protection, security,
  illumination, ventilation or heating. Exhaust
  fumes from forklift vehicles and cold
  temperatures are a major irritant to election
  workers.
• 240 Van Ness is condemned for lack of seismic
  safety features. No emergency exits on 2nd
  floor. Unsafe wiring.
• Hallways and floors in the City Hall must be
  covered and protected during election periods to
  avoid damage from hand carts and movement of
  election materials.
• The Cor-o-van facility is a privately owned
  storage facility the Department shares with other
  storage clients. Logic testing of voting
  equipment is conducted in the aisles of the
  facility in an unsecure setting. Facility is not
  designed for secure storage.

8
Current facilities and materials flow
9
Election trends

• Legal complexity
• An ongoing issue with County election officials
  are the legislative and legal mandates that
  whipsaw election operations. A sampling of these
  mandates include
• Pending and enacted Federal legislation and
  standards address access for multilingual and
  disabled voters. No one debates the merit and
  intent of these standards and mandates, but the
  implementation of these measures and lack of
  Federal funding place additional stress on the
  finances of election administrators.
• State law now requires counties to accept and
  process new voter registrations up to 15 days
  prior to an election. This provision makes it
  much more difficult to prepare voter rosters and
  distribute them to precincts in time for election
  day. Furthermore, some legislators have
  discussed moving the registration cutoff right up
  to and including election day, a daunting
  prospect that could not be realized without
  massive investments in technology.
• Both the State legislature and the courts
  continually tinker with the scope and procedures
  for primary elections. The latest change, the
  third in the last six years, restricts voters to
  voting for candidates from their own party unless
  the voter is nonpartisan. This continuous
  tinkering makes it difficult to keep pollworkers
  up-to-date on the latest procedures.

• The State legislature has recently considered
  other changes to the Elections Code such as
  allowing election day registration and
  bifurcating the State primary into two separate
  elections. Changes such as these, while
  well-intended, will place an unimaginable strain
  on the already stressed systems and staff of
  California election offices.
• Election laws specific to San Francisco such as
  instant run-off voting are difficult to implement
  without an automated vote recording system.
  Run-off elections also oblige the Elections
  Department to prepare for a major election while
  the previous election is winding down.
• The increasing complexity of elections make it
  more difficult to rely, as has been the practice,
  on lightly trained pollworkers, many of whom are
  retirees performing this work out of civic duty.

10
Election trends

• Increasing unit costs
• One of the biggest issues facing elections
  officers is the costs of conducting elections
  especially when viewed from a unit cost basis
  (e.g., cost per precinct, cost per ballot cast).
  These cost increases are being driven by several
  factors
• The increasing use of absentee ballots. The
  popularity of absentee voting continues to
  increase at a rapid rate. This trend is
  strengthened by the advent of universal and
  permanent absentee voting whereby anyone can vote
  absentee and, with minimum cause, do so on a
  permanent basis. Absentee voting accounts for
  well over 50 of the votes cast in many areas of
  the west and continues to increase. While
  absentee voting is a popular convenience for
  voters, absentee processing is significantly more
  expensive than precinct voting on a per-vote
  basis and there is no offsetting reduction in
  costs for precinct ballots since the Department
  must order precinct ballots equaling 75 of the
  registered voters for each precinct.
• Increasing number of languages. Most California
  counties provide ballots and election literature
  in multiple languages. San Francisco offers 3
  languages. This is a positive development in
  that the electoral process is made easier for
  new, harder-to-serve populations. Multilingual
  services are extremely expensive especially on a
  per-voter basis. With the addition of new
  languages and more stringent standards for
  translation, the costs continue to escalate.

Technology Part of the aftermath of the 2000
Presidential Election was a nationwide
re-examination of the voting systems used by
states and counties. Older, heretofore reliable
systems such as punchcard ballots have been, or
will soon be, eliminated in most states. Given
the perceived inaccuracies of other paper-based
ballots such as optical scan systems, many
jurisdictions are opting for computerized voting
systems such as the touchscreen voting terminal.
Besides a perception of greater accuracy,
touchscreen voting has one enormous advantage
over older systems the ability to absorb and
contend with the various twists and tinkering of
election laws that takes place around the
country. Because the voting medium is digital
and votes are stored digitally, the logistical
nightmares of dealing with open vs. closed
primaries, multiple languages, run-off voting and
15 day registration are lessened. The downside to
touchscreen voting is the initial capital cost
(e.g., 3,000 to 4,000 per unit). Counties that
merely replace voting booths one-for-one with
touchscreen devices can run up a giant bill for
infrastructure. Unless the units can be
leveraged (i.e., more votes cast per unit)
through more early voting, combining polling
locations, etc. the investment is difficult to
justify economically.
11
Election trends
Technology (continued) The logistics of storing,
programming, staging, delivering, setting up,
taking down and de-programming the units are
awesome for a large, urbanized county. The
pollworker training needs are also significant.
Undoubtedly, implementing touchscreen voting on a
large scale will force many aging pollworkers
into permanent retirement. Another technical
issue involves absentee balloting. Unlike the
tallying of precinct ballots, counting absentee
ballots is slow and labor-intensive. Touchscreen
voting also does nothing for absentee voting
unless it entices formerly serial absentee voters
to vote at some sort of early voting center. New
procedures and technologies such as barcoding the
return envelopes and imaging voter signatures
have increased labor productivity. With the
relentless increase in absentee voting in
California (mirrored by national trends as well),
the Department of Elections must explore
additional technology and process redesign to
control the cost of processing absentee ballots,
improve labor productivity and expedite the
tallying of the ballots. Technologies such as
touchscreen voting devices may make it possible
to offer further choices to voters in the way
they cast ballots. In the future, voters will
increasingly have more options for casting votes
when and where it is the most convenient, perhaps
at other locations than where they live and
during a period of several days, not just on a
single day.
Pollworkers and Polling Locations Next to
decertified election systems, the greatest
strategic challenge for election officers in the
new millenium is the unavailability of
pollworkers. Typically, the Department of
Elections hires up to 2,500 pollworkers for 600
polling locations during a Countywide election.
Most of these pollworkers are retirees and are
increasingly unable to serve. Younger
generations are not as inclined to serve as
pollworkers and, therefore, the productivity of
the pollworker recruiting staff is not keeping
pace with the need. States and counties are
experimenting with ways to ensure adequate
election staffing. In the most extreme case,
Oregon has eliminated the need for pollworkers
altogether by going to 100 voting by mail.
Other jurisdictions are combining polling
locations to leverage pollworkers or recruiting
businesses to run polling locations and provide
workers. Recruiting polling locations is also
getting more difficult as the requirements become
more complicated. In the near future, all
polling locations may be required to be
wheelchair-accessible, a requirement that may
invalidate many existing privately owned
locations that have steps or those affected by
San Franciscos steeply sloped neighborhoods.
Although not currently permitted under California
law, some out-of-state jurisdictions have
experimented with community voting centers set up
in shopping malls, locations that are convenient,
accessible to disabled voters and conducive to
serving a larger geographic area, not just a
neighborhood.
12
Election trends

• Implications for San Francisco
• The preceding discussion of election trends
  should make it clear that elections will never
  again be a periodic clerical exercise that is run
  twice a year.
• Elections will be less paper-based and more
  computerized. Election offices will need
  relatively fewer clerks and clerical supervisors
  and more technicians and technology integrators.
• Elections will continue to get more expensive.
  Election offices will need more seasoned,
  experienced managers that can budget accordingly
  and find the efficiencies that can control the
  costs of elections.
• Elections will have more procedural twists and
  legislative changes and less consistency and
  simplicity. Election offices, therefore, will
  need more full-time analysts and skilled managers
  and relatively fewer temporary workers to figure
  out how to adapt to a new election model every
  two to four years.
• Pollworkers will be increasingly difficult to
  recruit. Polling locations that are
  ADA-compliant will have to be located and
  recruited. San Francisco, along with other
  counties, will either have to pour more resources
  into recruitment, get creative and figure out how
  to run an election with fewer, more professional
  pollworkers and fewer polling locations or simply
  vote by mail as in Oregon. Each of these options
  require more analysis and preparation time.

The overall implication for San Francisco is that
the Elections Department must start to develop a
core of experienced elections managers that can
anchor the conduct of elections on a year-to-year
basis and contend with the technological,
financial, personnel, legal and procedural
challenges of the future. The next few pages
discuss recommendations that should position the
City to develop this corps of professional
election managers.
13
Recommendations - Organizational structure

• Recommended staffing level
• The Department currently has 11 non-temporary
  positions. Based on benchmarks comparisons1 from
  election offices in peer counties, the Department
  should increase this to 28 permanent
  staffpersons. This staffing complement would, of
  course, be augmented significantly during the
  election cycle as temporary workers are hired for
  additional data entry, warehouse, distribution,
  help desk and recruiting tasks. Based on recent
  history, the Department may hire as many as 125
  additional temporary workers at the height of the
  election cycle.
• Recommended organizational structure
• The diagram on the following page illustrates our
  recommended organizational structure. This
  structure represents an appropriate balance among
  several organizing criteria
• Span of control At 71 for the Director of
  Elections and no more than 31 for any Division
  Manager, the span of control is within a
  manageable range.

Number of management layers the recommended
structure has three layers of management. Many
Section Supervisors will serve as working
managers much of the time thereby reducing the
effective layers. Strategic placement The
structure recognizes the importance of
strategically important functions by carving out
separate sections for key areas such as the VIP
preparation, pollworker recruiting, voter
transactions and absentee ballot
processing. Process flow The structure
recognizes the flow of transactions and materials
and seeks to limit handoffs and process break
points. For example, all absentee ballot
processing is unified within one unit. All
warehouse, inventory and distribution functions
are unified. Adequate number of skilled managers
The structure can be implemented with a minimum
of recruiting. Only 2 of 19 managerial,
professional or supervisorial positions need to
be recruited. Existing staff can fill the
remaining positions. Ease of implementation 12
of the 17 staffpersons considered for positions
within the structure would have to be
reclassified to reflect their role and
responsibility within the organization. The
Department should begin the process of
reclassifying staff as soon as possible.
Note 1 These benchmark comparisons compared
counties based on the number of registered voters
and voter transactions per FTE. Based on these
benchmarks, San Francisco should have between 26
and 28 permanent staff. We selected the higher
figure given that the Department of Elections is
a standalone agency whereas many of the peer
agencies were combined with other functions such
as the Recorder and could share administrative
resources.
14
Recommendations - Organizational structure

• Proposed organizational structure

15
Recommendations - Organizational structure

• Recommended organizational structure (continued)
• Acceptance by key stakeholders This is
  difficult to determine but given the extreme
  nature of the challenges facing the Department,
  due attention should be given to the need to
  formalize the structure. Preliminary discussions
  and reviews by the Citys Human Resources
  Department were favorable.
• Fit with existing IT systems The proposed
  organizational structure should be able to be
  implemented with minimal changes to the IT
  systems (if any).

Description of organizational units Administrative
Services Division This Division would be led
by a Deputy Director assisted by two analysts.
The Division would perform budget, personnel,
contracting and purchasing functions. IT Services
Division This Division, led by an IT Director
supported by three analysts or management
assistants, would be in charge of network
administration, applications management
(primarily the DIMS system) and special
IT-oriented projects such as GIS or maintaining
the vote uplink system. Voter Services Division
This would be led by a Deputy Director supported
by two Section Supervisors. Voter Transactions
Section Responsible for processing election
transactions such as affidavits, voter address
changes, petition and nomination signatures.
This Section should be co-located with the
Absentee Processing Section so that staff from
both Sections can back each other up depending on
workload. Pollworkers/Polling Locations Section
This Section would be responsible for recruiting,
training, deploying, evaluating and paying
pollworkers and recruiting polling locations
including ensuring that locations are ADA
compliant. In addition, the Section would be
responsible for operating the eight vote tally
uplink sites.
16
Recommendations - Organizational structure
Description of organizational units
(continued) Candidate Services Division This
Division would be led by a Deputy Director and
supported by two Section Supervisors. Campaign/Can
didate Services Section This Section would be
responsible for candidate filing, campaign
finance reporting, nominations and operation of
the phone bank during election time. VIP/Ballot
Design/Mapping Section This Section would be
responsible for preparation of the Voter
Information Pamphlet or VIP, design of ballot
stock, relations with printing vendors and
precincting. Logistics/Absentee Division This
Division would be led by a Deputy Director and be
supported by three Section Supervisors. Inventory/
Ballot Processing Section This Section would
be responsible for storing, staging, deploying
and cleaning supplies, supply bins, voting
machines, voting booths, ballots and related
materials. This Section would also be
responsible for receipt, storage, staging and
distribution of ballots to precincts and
associated supplies.
Inventory/ Canvass Section This Section would
be responsible for post-election canvass. This
Supervisor would also share inventory and
warehouse responsibilities with the other Section
Supervisor. Absentee Processing Section This
Section would handle absentee voting-related
transactions such as AV requests and returned AV
ballots. The Section would work with staff in
the Ballot Processing Section to ensure that
absentee ballots are processed according to
statutory deadlines and handle post office
relations. The Absentee Processing Section
should be co-located with the Voter Transactions
Section so that the staff of the two sections can
back each other up depending on the workload.
17
Recommendations - Facilities

• Recommended Facility Plan
• The Department of Elections, in association with
  the Department of Real Estate and the City
  Architect, should consolidate facilities from the
  present six sites down to three. Four sites
  should be vacated or closed
• 240 Van Ness,
• Pier 29,
• Cor-o-Van Storage, and
• Brooks Hall.
• Two sites should be retained
• City Hall Future use limited to campaign and
  candidate services and early voting.
• Simba storage facility in Alameda until, and if,
  a comparable space can be located in the City or
  on the peninsula. This facility would continue
  to serve as off-site archival storage.
• A new Elections Operations Center should be
  opened. The Center would accommodate all
  election functions except those housed within
  Simba and City Hall. The Center would house the
  election administration functions such as voter
  transactions, recruiting and outreach but also
  have adequate warehousing, processing and staging
  areas to handle ballots, supplies and voting
  equipment.

Based on a complement of 28 full-time permanent
staff and a projected workforce of 100 temporary
workers, the administrative area of the
Operations Center would require approximately
10,000 square feet. It is difficult to estimate
the needs of the warehouse and processing areas
because the current space that is used is so
substandard. Based on observations from other
counties, as much as 30,000 to 40,000 sf could be
required. An ideal site for an Operations
Center would be ADA-compliant, have a loading
dock at truck bed level, sufficient parking and
easy ingress/egress for precinct workers to pick
up ballots and supplies, adequate access to BART
and MUNI, adequate wiring to support the telecom
and computing needs of the Department and
sufficient floor space to accommodate the
processing of ballot, voting machines and
supplies. The Department is currently working
with the Citys Real Estate Management office to
identify and negotiate for a new Operations
Center. A few sites have been researched but
currently no negotiations have been commenced for
any site. A promising site at 945 Bryant Street,
in the SOMA area, has been identified as meeting
many of the criteria. The floor diagrams and
material flow diagrams on the following pages are
based on the Bryant Street site assuming that
will be the presumptive site selected by the City.
18
Recommendations - Facilities

• First floor
• The first floor would be dedicated to all
  supplies, machinery and materials associated with
  precinct voting. This would include
• Eagle voting machines (or touchscreen devices in
  the future),
• Ballots,
• Supply bins,
• Supplies, and
• Booths, tables and chairs.
• The floor space would be used for the following
  processes
• Storage of machines and supplies,
• Logic testing of voting machines,
• Assembly of supply/ballot deliveries for
  precincts, and
• Check-in of precinct inspectors and distribution
  of voting supplies, ballots.

19
Recommendations - Facilities

• Second floor
• The second floor would be dedicated to all
  supplies and materials associated with absentee
  voting and for mail sorting. This would include
• Ballots,
• Supplies, and
• Envelopes.
• The floor space would be used for the following
  processes
• Storage of absentee supplies,
• Storage of absentee ballots prior to staging,
• Staging of absentee ballots, envelopes and
  supplies,
• Assembly of absentee ballot packets,
• Quality control checking of packets,
• Distribution of completed absentee packets to the
  Post Office, and
• Sorting of all incoming mail.

20
Recommendations - Facilities

• The third floor of 945 Bryant Street can serve as
  the administrative component of the Operations
  Center.
• The administrative center should be designed
  according to the final configuration of interior
  walls, wiring and improvements. Any site
  selected for the administrative function should
  incorporate the following features.
• The site should include private offices for the
  Director of Elections, the five Deputy Directors
  and the Executive Assistant.
• Four contiguous rooms should be configured for
  the following functions related to early voting
  and processing absentee ballots
• Receiving, sorting and staging of returned
  absentee ballots,
• Absentee Processing and Voter Transactions
  Sections where absentee ballots are validated
  after being returned from voters,
• A secure area where absentee ballots can be
  tallied and stored prior to and after tallying.
  This room should also have a window for public
  viewing, and
• A public counter for greeting and serving voters
  who drop by for early voting or to pick up
  affidavits.

The building should have security features such
as locked entrances, security badges worn by
staff, security cameras in areas where ballots
are stored or processed (cameras can film to tape
rather than be monitored live), and locked rooms
for storing ballots (especially voted
absentees). A large conference room should be
configured for precinct worker training and for
conducting the post-election canvass. The room
should be locked and guarded during the canvass
process. In addition to the viewing window in the
room used for tallying absentee ballots, other
security arrangements should be made for hosting
election observers on election eve and catering
to the needs of the media.
21
Additional recommendations

• Developing a Strategic Plan
• While the organizational and management structure
  of the Department is stabilizing, the Elections
  Commission and Department should conduct a
  strategic planning process to establish a
  Department-wide focus on key issues and
  strategies and establish a five-year direction
  for the agency as it develops and matures. Key
  components of the strategic plan would include
• The role of the Commission once key personnel
  issues are addressed,
• Exorcising politics from elections
  administration,
• The future technology direction of the agency
  particularly in regard to voting systems,
• How the agency will contend with the dramatic
  growth in absentee voting,
• Strategies for recruiting, training and deploying
  pollworkers,
• Staff development, and
• Strengthening the organizations structure.

22
Appendix 1 - Election commission rules in peer
cities

• Pursuant to a request from the Commission, we
  surveyed other jurisdictions regarding the
  authorizing laws for election commissions in
  those cities. The following pages include the
  laws for two peer cities that responded
• Chicago
• New York City