R21-163I RESOLUTION R21-163
2
3 A RESOLUTION OF THE CITY OF BOYNTON BEACH,
4 FLORIDA, ACCEPTING THE RECOMMENDATIONS OF THE
5 DIVERSITY AND EQUITY INTERNAL SYSTEMS
6 BENCHMARIQNG REPORT; AND PROVIDING AN EFFECTIVE
7 DATE.
8
9
10 WHEREAS, in July 2020, the Boynton Beach City Commission approved the creation of
11 a Task Force to address racial and social equity in the City; and
12 WHEREAS, through a partnership with Florida International University, the City is
13 undertaking a comprehensive approach to equality and is developing a community needs
14 assessment that will render a racial and social equity strategy with policies and actions focused
15 on healthcare, education, housing, public safety, economic opportunity; and
16 WHEREAS, the City is also reviewing its internal systems, policies, and processes to establish
17 the capacity to assess, implement, and monitor the racial and social equity strategy and foster a culture
18 of diversity and inclusion; and
19 WHEREAS, The internal assessment is an overarching review of the City's policies,
20 processes, and safeguards that will ensure and enhance a culture of diversity, equity and
21 inclusion within the City; and
22 WHEREAS, the City Commission of the City of Boynton Beach deems it in the best
23 interest of the citizens and residents of the City to accept the recommendations of the Diversity
24 and Equity Internal Systems Benchmarking Report.
25 NOW, THEREFORE, BE IT RESOLVED BY THE CITY COMMISSION OF THE CITY OF
26 BOYNTON BEACH, FLORIDA, THAT:
SACA\RESO\Accepting recommentations of Benchmarking Report - Reso.docx
1
27 Section 1. The foregoing "Whereas" clauses are hereby ratified and confirmed as
28 being true and correct and are hereby made a specific part of this Resolution upon adoption
29 hereof.
30 Section 2. The City Commission of the City of Boynton Beach, Florida does hereby
31 accept the recommendations of the Diversity and Equity Internal Systems Benchmarking
32 Report, a copy of which is attached hereto as Exhibit "A".
33 Section 3. This Resolution will become effective immediately upon passage.
34 PASSED AND ADOPTED this 16th day of November, 2021.
35
CITY OF BOYNTON BEACH, FLORIDA
36
37
YES NO
38
39
Mayor — Steven B. Grant
40
41
Vice Mayor — Woodrow L. Hay
42
43
Commissioner — Justin Katz
✓
44
45
Commissioner—Christina L. Romelus
✓
46
47
Commissioner — Ty Penserga
✓
48
49
VOTE
Sy
50
ATTEST:
51
52
53
54
Crdtal Gibson, MMC
55
City Clerk
56
57
58
59
(Corporate Sea[)
SACA\RESOWccepting recommentations of Benchmarldng Report - Reso.docx
2
DIVERSITY AND EQUITY ASSESSMENT
OF CITY SYSTEMS
Prepared for the City of Boynton Beach,
By:
Dr. Meredith Newman
Dr.Susannah Ali
Ms. Ariel Powell
Mr .John South
Department of Public Policy and Administration
Florida International University
F]
TABLE OF CONTENTS
Section
Page #
Executive Summary
6
Introduction
8
Background
8
Purpose of Diversity and Equity Assessment of City Systems
9
Scope of Assessment Report
10
Approach Taken
10
Government Alliance on Race and Equity
11
Commentary
13
Themes from the Academic Literature
15
National and Global Views
17
What We Learned From SHRM
17
What We Learned From IPMA-HR
20
What We Learned From ICMA
23
Historic and Socioeconomic Context
28
The State of Florida Context
28
Historical Overview
29
Demographic Overview
34
Political Overview
45
Economic Overview
48
The City of Boynton Beach Context
49
Historical Overview
49
Demographic Overview
53
Political Overview
62
Economic Overview
63
The State of the City of Boynton Beach's HR Policies and Practices
65
The Structure
65
Organizational Profile
65
Demographics of the City Workforce
66
Contract, Regular, and Bargaining Unit Employees
66
Workforce by Gender
67
Workforce by Race and Ethnicity
67
Workforce by Age
68
Demographic Representation by Occupational Categories
69
Overview of Personnel Policies and Practices Related to Recruitment, Hiring and
Development
70
Organization for Personnel Administration
70
Recruitment and Hiring
70
Retention and Development
75
Discussion 78
Commentary 79
Benchmarking to Best Practices 80
Rationale for Selection of Cities 80
Northwest Case: City of Tacoma, Washington 85
Northeast Case: City of Cambridge, MA 89
Southwest Case: Redwood City, California 93
3
TABLE OF CONTENTS CONTINUED
Section
Page #
Southeast Case: City of Gainesville, Florida
98
Discussion
102
Commentary
103
Recommendations
105
Actionable Proposed Recommendations
105
Systemic Recommendations
105
Tactical Recommendations
108
Diversity, Equity and Inclusion Action Plan
111
Strategy in Diversity, Equity, and Inclusion
111
Proposed Action Plan
111
Key Performance Indicators
114
Conclusion
115
References
117
Appendices
121
Appendix A: Additional Resources
121
Appendix B: List of Interviewees
122
Appendix C: Florida Demographics
123
Appendix D: Redwood City Employee Diversity, Equity, & Inclusion Survey
125
1
LIST OF FIGURES
Figure 1: Map of Florida County Populations
35
Figure 2: Map of Income in Florida Counties by Race and Ethnicity
36
Figure 3: Map of Internet Access in Florida Counties by Race and Ethnicity
38
Figure 4: Map of Personal Computer Access in Florida Counties by Race and Ethnicity
40
Figure 5: County Map of Florida Homeowners by Race and Ethnicity
42
Figure 6: Map of Renters in Florida Counties by Race and Ethnicity
43
Figure 7: Organizational Chart of Florida's Executive Branch
46
Figure 8: Organizational Chart of Florida's Legislative Branch
46
Figure 9: Segregation by Ordinance 37 in 1924
51
Figure 10: Map of Boynton Beach by Race and Ethnicity
54
Figure 11: Map of Income in Boynton Beach by Race and Ethnicity
56
Figure 12: County Map of Boynton Beach Homeowners by Race and Ethnicity
58
Figure 13: Map of Boynton Beach Renters by Race and Ethnicity
60
Figure 14: Steps in the Hiring Process
72
Figure 15: Percentage of Applicants by Gender, 2016-2020
73
Figure 16: Percentage of Applicants by Race and Ethnicity, 2016-2020
73
Figure 17: Locations of Comparison Cities and Boynton Beach
80
Figure 18: Population Estimates of Boynton Beach and Comparison Cities
81
Figure 19: Percentage of Racial and Ethnic Demographics
81
Figure 20: Percentage of Educational Levels of Boynton Beach and Comparison Cities
82
Figure 21: Median Household Income of Boynton Beach and Comparison Cities
83
Figure 22: Percentage of people in poverty in Boynton Beach and Comparison Cities
83
Figure 23: Percentage of Owners Occupying Homes and Renters in Boynton Beach
and Comparison Cities.
84
Figure 24. Timeline of Proposed Action Plan
112
LIST OF TABLES
Table 1: Florida Demographics
Table 2: Boynton Beach Demographics
Table 3: City Workforce by Employee Types
Table 4: City Workforce by Male and Female
Table 5: City Workforce by Race and Ethnicity
Table 6: City Workforce by Age
Table 7: City Workforce Demographics by EEO -4 Category
Table 8: City of Tacoma Community Profile
Table 9: City of Cambridge Community Profile
Table 10: Redwood City Community Profile
Table 11: City of Gainesville Community Profile
34
53
65
66
67
68
69
84
88
92
97
5
1
DIVERSITY AND EQUITY ASSESSMENT OF CITY SYSTEMS
EXECUTIVE SUMMARY
The suite of diversity and inclusion tools and practices that went mainstream in the 1990s are
"grossly insufficient for racial equity work" (Hecht 2020). Rather than focusing "on 'velcro-ing' new
practices and programs onto the existing structures of the workplace in an attempt to help employees of
color better 'fit in' and succeed", today's racial equity and inclusion efforts "must flip that premise on its
head. Instead of trying to change some people to fit the organization, we must focus on transforming
our organizations to fit all people" (Hecht 2020). This transformative approach represents the
framework for the diversity and equity assessment of the City of Boynton Beach's systems. It is one that
is reflected in the cities that we selected for comparison purposes; namely, the Cities of Tacoma WA,
Cambridge MA, Redwood City CA, and Gainesville FL. It is also expressed (implicitly or explicitly) in a
review of the academic and professional association literature. Further support for this approach comes
from interviews with administrators leading their municipalities' efforts in applying an equity lens to
human resources (HR) policies and processes.
The City of Boynton Beach is well positioned to embark on a process of reflection and workplace
policy reforms advanced through an equity lens. The prerequisite of Executive Leadership support is in
place, as is a solid foundation upon which to build. The spark for workplace change has been lit. The City
is committed to building a more diverse, equitable, and inclusive workplace, and an organizational
culture that supports and advances all personnel. This report details the way forward with cautionary
notes along the way.
This report begins with an introduction to situate the sections that follow. Major themes from
the academic literature are presented, followed by national views from three prominent HR professional
associations. The next section focuses on the State of Florida, providing an historical and contemporary
context to the assessment of the City's HR policies and processes. Drawing upon these combined and
multiple sources, recommendations are made — both systemic and tactical recommendations. We then
set forth the diversity, equity, and inclusion action plan with a proposed timeline for implementation.
We conclude by acknowledging that this work — work which interrupts the existing patterns that tend to
maintain the status quo of structural disadvantages around issues such as hiring, pay equity, and
advancement — is hard, is ongoing, and is overdue but is critical and calls for immediate action.
8
INTRODUCTION
Background
Interest and awareness of the need to promote racial and social equity have increased
dramatically as a result of recent events. The COVID-19 pandemic and public protests over police
misconduct have shone a bright light on a wide range of disparities. The tragic killings of three unarmed
African Americans - Ahmaud Arbery, George Floyd, and Breonna Taylor - sparked civil uprisings
nationally and internationally. The clarion call for "Black Lives Matter" was heard around the world, the
assertion that differential outcomes that disfavor minorities should be identified and remediated (Svara,
as cited in Jacob 2020).
The City of Boynton Beach was quick to respond to the call. Recognizing issues around the
country, the City has chosen to proactively work to make Boynton Beach a community that embraces
diversity. As neighboring communities see rapid gentrification, Boynton Beach seeks to create an
inclusive community where people from all walks of life see an opportunity to share in the prosperity
that is on the horizon. The City's vision continues to evolve to align with a vision of a welcoming,
progressive, and prosperous coastal community with a high quality of life that exemplifies diverse,
inclusive, and equitable neighborhood economic and environmental sustainability and resiliency.
In July 2020, the City Commission approved the creation of Task Force to address racial and
social equity. The City Manager formed an internal task force consisting of executive leadership and
engaged FIU as a research partner to help guide the process toward our vision. Understanding that
prosperous cities are cities that embrace equity and inclusion and celebrate diversity, City leadership,
along with FIU, developed a framework that would create opportunities for sustainable cultural and
systems change.
The City recognizes the importance of addressing these issues within the community and the
government itself because inequality manifests itself most clearly at the local level. Even before the
W
current civil unrest across the country, many cities had sought to address inequality through local
policies and programs. This report sets forth how four "best in class" cities are addressing diversity,
equity and inclusion in their workforces. Along with best practices identified from a review of the
academic literature, a document review of three prominent professional associations (SHRM, IPMA-HR,
and ICMA), and an in-depth review of the City's current HR policies and practices, recommendations and
an action plan for implementation will be presented. That the City is engaging in such a close
introspection is, in itself, a testament to its commitment to a more diverse, equitable, and inclusive
workplace.
Purpose of Diversity and Equity Assessment of City Systems
As cited in Exhibit "A" of the Inter -local Agreement between the City and Florida International
University Board of Trustees (FIU) dated September 21, 2020, the "City Commission approved the
creation of a Task Force to address racial and social equity in the City focused on healthcare, education,
housing, public safety, economic opportunity, and internal operations. The initiative aims to create a
framework to address racial and social equity in the delivery of City services for the benefit of all
communities within the City. Through a partnership with [FIU], the City will review its internal systems,
policies, and processes to establish the capacity to assess, implement, and monitor a social and racial
equity strategy and foster a culture of diversity and inclusion. This effort will render the analytical
framework and engagement to develop study findings and present recommended action/policy items.
The initiative will develop baseline evidence -based indicators that can be used to reflect current
conditions and allows for monitoring of changes and progress in the future." Accordingly, FIU is tasked
with the preparation of a Diversity and Equity Assessment of City Systems. Simply stated, the goal of the
report is to benchmark best HR processes, and to interrupt the organizational status quo by identifying
and assessing workplace inequities and, in turn, in developing solutions.
10
1
Scope of Assessment Report
The scope of this report encompasses the first of two steps of Phase I of the project; namely, an
Internal Assessment. The Citywide internal assessment includes a review of the City's HR policies and
processes, national benchmarking, policy recommendations, and a City Diversity, Equity, and Inclusion
Plan. This Plan aims to 1) narrow the gap between the City's HR policies and processes and selected
national "best in class" policies; and 2) set forth the actionable policy recommendations with
measurable key performance indicators.
This assessment is designed to address diversity broadly including (but not limited to) race,
ethnicity, age, religion, gender, sexual orientation, and veteran and disability status. As diversity efforts
in the U.S. context have focused primarily on race over the last 50 years followed by gender, much of
the information that we provide is taken from that literature and context. This is in no way intended to
communicate that the City's efforts emphasize race over the challenges of other communities. In terms
of race, it is important to recognize that very little information goes beyond black and white in race — for
instance, there is still relatively little research on the experience of Asian -Americans. Instead, it is to
demonstrate the complexities that underly efforts to address concerns of historically disadvantaged
groups. It is also to glean from all that we have learned from academic literature, professional
associations and lived experience so that it can be translated where appropriate to efforts to address
the concerns of all populations.
Approach Taken
The primary sources of data collection are 1) a document review of selected preeminent
professional associations, 2) an academic literature review, 3) interviews of administrators who have
responsibilities for addressing workforce equity, and 4) the City's current HR policies and procedures.
11
During this research, the Government Alliance on Race and Equity (GARS) featured prominently, both in
our literature and document review, as well as in our interviews with city administrators. As such, it
merits some discussion.
Government Alliance on Race and Equity
Despite the notion that social equity and inclusion are still untapped research areas (particularly
in the realms of public administration and human resources management), they are largely unknown
concepts for most local government municipalities. Fortunately, there is a highly credible starting point
for any city/county municipality that wants to learn about (and begin engaging in the conversation on)
workplace racial equity. The Local and Regional GARE is a "national network of governments working to
achieve racial equity and advance opportunities for all" (www.racialeguityalliance.org). GARE is a "joint
project of the new Race Forward and the Haas Institute for a Fair and Inclusive Society"
(www.raceforward.org). It represents the alliance of Race Forward and the Othering and Belonging
Institute at UC Berkeley and serves as a think tank to help any local government municipality
incorporate best practices for inclusion and social equity. It supports governments that have made a
commitment to achieving racial equity using their own resources and working in partnership with other
organizations (Svara, as cited in Jacob 2020). GARE "provides a multi -layered approach for maximum
impact: We support a cohort of jurisdictions that are at the forefront of work to achieve racial
equity...We develop a 'pathway for entry' into racial equity work for new jurisdictions from across the
country ... [and] We support and build local and regional collaborations that are broadly inclusive and
focused on achieving racial equity" (www.racialeg uityalliance.org). GARE provides "tangible ways and a
network to bring all the jurisdictions together to build a community of practice" (personal
communication, Dr. Rainty Salk, August 2, 2021).
12
With 360 current members at the local and county level across the country, GARE's potential to
affect racial equity practices for local jurisdictions is still in its infancy. There are only two core members
and one associate member currently in Florida (the City of Gainesville, the City of Hallandale Beach, and
Palm Beach County Community Services Department, respectively). However, GARE's membership
increased by more than 100 jurisdictions last year (RaceForward 2020 Annual Report), driven by
community pressure and by city staff who had already started work to address institutional and
structural racism.
GARE's approach is four -fold:
1) Normalize conversations about race, to have commonly held definitions, and to work from a
shared framework and a shared understanding;
2) Operationalize racial equity, not just by talking about theory but by actually creating change,
and taking ideas and putting them into practice using the Racial Equity Toolkit. The Toolkit focuses on
definitive steps for locally elected officials to take in order to ensure fair hiring practices are followed
and is designed to integrate explicit consideration of racial equity in order to reduce racial inequities and
improve success for all groups. An example is the "legitimacy" of certain job application prerequisites
(such as a mandatory driver's license) that may be based on historical, outdated assumptions, with the
attendant potential for disparate impact.
3) Organize within the jurisdiction by building skills and capacity to actually transform the
organization. For example, interactive Building Racial Equity trainings emphasize how to challenge and
change institutional racial inequities (unlike "diversity trainings" which primarily focus on interpersonal
relations and understanding) (www.raceforward.org). The Race Forward 2020 Annual Report notes that
GARE "administered and analyzed 20 racial equity employee surveys for GARE member jurisdictions to
assess and measure progress of the knowledge, skills and experiences of jurisdiction employees related
to race and equity" (ibid.) amongst their other services.
13
4) Visualize what a transformed organization would look like.
The recommendation to apply for core membership to GARE will be made to the City. We will
also continue to learn as much as possible about GARE's philosophy and future vision in order to help
other South Florida municipalities evolve with respect to how equity and inclusion policies can be
effectively executed. While GARE is clear that they are focused solely on race, we view their approach as
an important starting place that warrants consideration. An interview with Dr. Rainty Salk, GARE's
Research Manager, on August 2, 2021 was informative. Dr. Salk emphasized that GARE's approach is
focused on racial equity, and not on diversity, equity and inclusion, which she notes is "an important
distinction, and that cities need to understand this distinction." She noted that, anecdotally, GARE's
growth in membership is driven by word of mouth, encouragement from other jurisdictions to join, or a
catastrophic event or crisis. "A lot of elected officials who put forward a commitment to racial equity"
turn to GARE, which is "really the only game in town." With respect to normalizing conversations about
race, Dr. Salk identified a disconnect in perception between executive leadership and staff. Leadership
cite a "lack of readiness to engage in this work, and more training to get the staff ready to engage in this
conversation. But in practice, about 94% of staff are ready, willing and able to engage in these
discussions". As a final point, Dr. Salk noted that "part of the challenge is that the activity [to advance
racial equity] sounds simple, a discreet activity, but it's actually a whole host of activities a jurisdiction
might do to embed the work." This sentiment was shared by others whom we interviewed in terms of
taking a holistic perspective to advancing racial equity in the workforce.
Commentary
Local governments vary widely in their character and composition. While this report draws upon
best -in -class HR policies and procedures from a selected city in each of the four regions of the country
(the NW, NE, SW and SE), best practices for building equitable and inclusive organizations for one
14
jurisdiction may not be as effective in others. Recommendations and a plan of action will always require
some level of adjustment relative to the unique nature and idiosyncrasies of each jurisdiction, including
the City of Boynton Beach.
15
THEMES FROM THE ACADEMIC LITERATURE
After reviewing nearly 7,000 research articles from fourteen academic journals, four principal
themes arose from an academic literature review that focused on how research was being conducted
with respect to seven aspects of diversity (gender, race, ethnicity, religion, age, disability, and sexual
orientation) throughout six key factors of a professional career (recruitment/hiring, onboarding,
training, retention, promotion, and turnover).
First, the fields of HR and Public Administration have evolved over the past thirty years, from a
focus on equal employment opportunity and affirmative action (a legal, compliance focus), to issues that
go "beyond compliance." Examples include an examination of "glass cliffs" that prevent women in
managerial/executive positions from reaching senior executive positions, and transgender research.
Second, in addition to the preponderance of research focused on gender and race, research on
ethnicity and sexual orientation is expanding. HR professionals understand that identifying an
employee's presented gender on forms is easier than determining an employee's sexual orientation. HR
data compilation on gender orientation and non -binary identification further complicate gender
identification. Similarly, data collection on racial identification is more complex as more employees now
identify with multiple races and ethnicities. In a recent column by David Brooks in The New York Times
(July 23, 2021, p. A18), he cites research by Alba, Levy and Myers who "suggest 52 percent of the people
who self -categorize as nonwhite in the Census Bureau's projections for America's 2060 racial makeup
will also think of themselves as white. Forty percent of those who self -categorized as white will also
claim minority racial identity." Progressive HR departments are broadening their demographic data in
order to capture a more complete and nuanced profile of their employees.
Third, from a theoretical perspective, the importance of representative bureaucracy cannot be
overstated. Representative bureaucracy is the idea that the demographic make-up of a government
should mirror that of the community it serves. In this way, the unique perspectives of each group will be
16
given voice within government and incorporated into decision-making. More than 25 percent of all
articles reviewed applied representative bureaucracy (or versions founded on it) as the conceptual
framework. People want to work for organizations in which they can relate. It is difficult to recruit
women to join city protective services or the military, and many public sector fields have become
gendered fields. For example, public safety departments (Police and Fire) have historically been male -
dominated. HR departments have traditionally been female -dominated. A lack of gender and racial
representation across the depth and breadth of organizations limits career opportunities and
progression to those who find themselves in the minority, and acts as a brake on efforts of equity.
Fourth, issues of diversity, equity, and inclusion are being discussed at all levels of government
nationwide. This academic literature review supports the proposition that it will take time to achieve
long-term and meaningful equity in the workplace. Municipalities that recognize that reform is needed
(or overdue) and interrupt the status quo (whether by tactical HR adjustments or institutionalized
transformational and synergistic change — or both) are well positioned to advance a more diverse,
equitable, and inclusive workplace. Two generations ago, diversity equaled affirmative action. Today,
the United States has its first woman of color Vice President, its first transgender deputy cabinet
secretary, and the most diverse cabinet, all inspirational symbols for local government municipalities to
follow.
17
NATIONAL AND GLOBAL VIEWS
To provide a national and global context, a review was conducted of three prominent
professional associations whose focus is on HR and best practices in city and county government and in
industry. Specifically, as association members, we researched the materials of the Society for Human
Resource Management (SHRM), the International Public Management Association for Human Resources
(IPMA-HR), and the International City/County Management Association (ICMA). SHRM characterizes
itself as "the voice of all things work, workers and the workplace... [and] the foremost expert, convener
and thought leader on issues impacting today's evolving workplaces" (www.shrm.org). SHRM has over
300,000 members in 165 countries, and "impacts the lives of more than 115 million workers and families
globally" (ibid). The IPMA-HR is another national and international HR leader, established in 1906. It
describes itself as "the leading public sector human resource organization in the world ... [with] local -level
networking ...available in four U.S. Regions and over 40 Chapters" (www.ipma-hr.org). Parenthetically,
Ms. Julie Oldbury, the City's Director of Human Resources and Risk Management, is the current South
Florida IPMA-HR Chapter President. The ICMA "advances professional local government management
worldwide through leadership, management, innovation, and ethics. Through partnerships with local
governments...., the organization gathers .... management data on a variety of local government services
— all of which support related training, education, and technical assistance." (www.icma.org). It provides
support, ...... peer and results -oriented assistance, and training and professional development to more
than 13,000 city, town, and county experts and other individuals and organizations throughout the
world" (ibid). Taken together, the resources available to us from these three associations provide a rich
foundation for our subsequent research into best -in -class cities and the assessment of the City of
Boynton Beach's workplace policies and practices.
What We Learned From SHRM
18
As one of the leading institutions for human resources matters and issues, SHRM offers
numerous training tools for human resources managers to better respond to the challenges facing
progressive workplaces in the 21st century. The foundational notion of diversity in the workplace lies at
the heart of SHRM's mission, with training tools focused on fostering diversity throughout the hiring,
training, promoting, and retaining phases of a professional career. While SHRM offers different levels of
membership, it also provides training and certification packages for HR professionals as well. The
certification is highly respected in the HR world and can be administered in a class or group setting
should a public or private organization choose to certify high numbers of employees.
SHRM's most significant contribution to any organization hoping to expand the diversity of its
workforce is the wealth of knowledge that is easily accessible on its website (www.shrm.org/). With a
litany of resources such as discussion forums and blogs that maintain the dialogue on current HR issues
and challenges, training for executives and HR managers, and examples of employee handbooks and
sample interview questions, SHRM provides a vast array of information to help organizations achieve
and maintain diversity in its workforce.
Several key findings from SHRM's organizational philosophy are worth highlighting. A major
overall theme is how the landscape of the American workforce has changed due to the pandemic of
2020. Due to recent vaccination successes, and with many organizations hoping to return to a pre -2020
norm, major changes should be expected by employers, including an increased desire of employees to
remain in a virtual capacity, increased burnout of current talent, and public sector positions losing talent
to the private sector. Recommended strategies to deal with this paradigm shift include incentivizing top
performers, using more temporary hires, and expectations to cross -train current talent (Marshall 2021).
Paid family leave is becoming a top benefit for both employees and prospective candidates. COVID not
only disrupted the workforce of America, it also overwhelmed every school and university in the country
as well. Students of every age went into virtual classrooms and many schools are looking at hybrid forms
19
of education as a long-term solution. This translates into more children spending more time at home,
which means parents need to spend more time at home as well, particularly during working hours. The
stress on losing contact with friends and social clubs has been particularly difficult for young Americans
and this stress is manifesting in an increased need for parents to have more paid family leave. Current
Family and Medical Leave Act (FMLA) regulations are being discussed at both administrative and
legislative levels and progressive employers would be prudent to address this need now (Jessup 2021).
Other key findings from SHRM include:
o Strategic reconsideration of minimal education requirements for entry-level positions,
starting with mandates for bachelor's degrees (King 2021).
o Overcoming parochial social restrictions like "qualified woman" or "qualified minority",
when diverse talent is often applying for positions and should be on boarded with
progressive training measures (Sackett 2020).
o There is a highly controversial topic being discussed nationwide on whether or not
vaccination records are required of employees and how HR managers can request this
information. Current legal precedent maintains that proof of vaccination is not a disability
related issue and can be pursued by HR departments. How this should be done is going to
be difficult for HR departments (SHRM Staff blog 2021).
o OSHA has recently released its much -anticipated post -pandemic guidance for the health
care industry, with specific guidance for the public sector forthcoming. It will be important
for HR managers in the public sector to become familiar with potential changes that could
impact operational efficiency (like eventual mandatory vaccinations for all public sector
employees) in order to prevent disruptions to day-to-day operations (Nagele-Piazza 2021).
o While many employees are seeking flexible returns to the office, new hires are looking for
safety guarantees by employers, particular when it comes to healthy and harassment free
workplaces.
o Finally, organizations can encourage SHRM membership of their HR staff by paying for
certification materials and testing fees. This would enable HR departments to stay abreast of
current HR challenges and issues, as well as be both knowledgeable and sensitive to
diversity management issues throughout an organization.
What We Learned From IPMA-HR
For the past several years, IPMA-HR has conducted benchmarking surveys of human resource
officials, government employees, and IPMA-HR members and affiliates. Of those reports, seven are
available for IPMA-HR members from 2013 to the most recent report in 2019. The purpose of the
benchmarking reports is to provide summaries of human resource information and "to identify 'best
practices' in HR, enabling users to learn from leading organizations and adapt and adopt the most
successful approaches" (www.ipma-hr.org). Based upon the topic of the benchmarking reports,
respondents are asked about job duties, the government or municipality that they worked for, and/or
their perceptions about their relationships with their colleagues or superiors. A common theme among
these benchmarking reports is progressiveness and a willingness to do what is necessary for employee
satisfaction and organizational longevity.
Through their benchmarking reports, IPMA-HR has acknowledged and recognized that
governments and organizations need to change with the shifting cultures and norms of society. This
includes a shift in the way that organizations and governments think about their workforce, and how
their workforce may or may not change with the shift in generations. For example, in its 2016 Cross -
Generational Benchmarking Report, IPMA-HR detailed the differences of expectations between
21
Millennials (born 1981-1997), Generation X (born 1965-1980), and Baby Boomers (born 1946-1964).
Compared with Baby Boomers, Millennials and Generation X responded better to opportunities for
advancement and positive relations with their superiors. In addition, Millennials were less likely to stay
at the same job for their entire career when compared with Generation X and Baby Boomers. Not only
do organizations have to manage older generations, but they also have to cater to the attention of
younger generations while at the same time not alienating their older workforce.
Other key findings from IPMA-HR include:
o When it comes to recruitment practices, the organizations with the best practices try to reach a
wider audience beyond the traditional methods that were originally used. These organizations
and governments post to a multitude of sources including the city website, social media
websites like Linkedin and Facebook, host job fairs, and provide a direct contact for applicants
for any questions. These organizations use language that encourages diverse applicants (such as
military veterans) and focus on internal recruitment with employees already tied to the
organization. To be accessible to multiple generations, these organizations accept online and/or
paper applications. In addition to internal recruitment, these organizations have intern
programs that prepare interns for potential employment while at the same time giving the
organization a stable potential workforce. One city that showcases best practices is Laguna
Beach, California. This government updates and communicates with applicants on their status
through email or hard copies (IPMA-HR 2013).
o Implementation of diversity and inclusion efforts are becoming more important for
organizations. Having diversity and inclusion offices or commissions are not enough; instead,
organizations have to actively work towards a more diverse and inclusive workforce. This means
not only being aware and welcoming of every race, gender, ethnicity, and LGBTQA+ members of
society and the workforce, it also means having policies regarding the aging population and
22
armed forces. The City of Hobbs in New Mexico actively recruits veterans, national guards and
reservists for their workforce, in addition to accommodating any disabled veterans (IPMA-HR
2014). Cities such as Hobbs provide training and support to managers and supervisors of former
and current military employees.
o Two of the biggest issues regarding the changing generations are age discrimination and the
retirement wave. Baby Boomers are one of the larger and more predominant generations
currently employed in the workforce. As organizations and governments progress and start
developing more Millennials and Generation Z (born 1997-2015) recruitment strategies, the
older generation is being left behind (IPMA-HR 2014, 2016). To prevent this from occurring,
organizations should have policies that encourage more training and prevent age discrimination.
The retirement wave has the potential to leave a gap in organizational knowledge. Progressive
governments have succession planning that account for a workforce that will be aging out over
the next several years (IPMA-HR 2015).
o Successful governments and organizations realize that employee engagement is essential for
retention. This includes employees having communication with leadership, allowing for
alternative work schedules like job rotation and telecommuting, conducting employee
engagement studies or surveys, and having retention strategies. Communicating with leadership
allows for employees to better connect with the organization's mission and to feel as if they are
being heard (IPMA-HR 2019). As the COVID-19 pandemic has shown, alternative work schedules
are not only possible, but for jobs that deal mainly with computer work, should be optional.
Allowing employees to have the decision of alternative work schedules increases retention,
employee satisfaction, and work productivity (Selden 2009). The City of Santa Clarita in
California has a Strategic Plan & Employee Engagement Initiatives that survey employees every
two years (IPMA-HR 2019). The Santa Clarita 2020 shares the results of the survey with
23
leadership, who are then expected to come up with action plans that address the issues within
the survey. The Santa Clarita 2020 also includes an employee wellness committee, and training
and development programs. The City of Mooresville in North Carolina conducts an organization
wide employee satisfaction survey (IPMA-HR 2018) which serves to increase the buy -in from
employees and the quality of feedback (IMPA-HR 2018). The City of Kansas City in Missouri
formalized a retention strategy called the Workforce Advancement Model (WAM). WAM has
given the city the opportunity to (IPMA-HR 2016, p. 23):
o Create a pool of qualified candidates to fill key positions
o Establish a sense of stability in critical positions
o Identify workforce needs to better target required employee training and development
o Enhance employees' ability to respond quickly to address environmental demands
o The opportunity of knowledge retention with their Knowledge Transfer Tool
o Innovation is key for organizational longevity. If an organization is not willing or able to
innovate, progress, and change, they will stagnate and fail. According to the IPMA-HR Culture of
Innovation Benchmarking Report (2017), medium-sized and large organizations are more likely
to include innovation in their mission statement. Incremental service innovations are the most
common types of innovations. Organizations that "include innovation in their mission, vision, or
value statements gave higher ratings to communication, collaboration, and support for change"
(IPMA-HR 2017, p. 2).
What We Learned From ICMA
One of the principal themes running through our review of ICMA materials is the reference to
GARE, the Government Alliance on Race and Equity. Cities repeatedly cited GARE as being an essential
24
component of their race and equity initiatives. Ashville, North Carolina is one such city that has applied
GARE's racial equity toolkit of standards and programs to the unique needs of their City.
Another central tenet is that a diverse workforce rarely happens organically. High -wage local
government jobs consistently have been disproportionately held by white employees. Moreover, while
racial minorities have been underrepresented in high-level jobs, they have been overrepresented in low-
wage -earning jobs. This trend is similar for women. The metaphors of glass ceilings, glass walls (sex
segregated occupations), and sticky floors (with limited promotional opportunities) capture these
dynamics (Newman 1993). Attention to the composition of a local government is extremely important
because its agencies are key to service delivery and policy implementation (Lipsky, 2010). Research
demonstrates that diverse staffs working in inclusive environments "are more factually accurate,
innovative, and further the potential of their organization" (ICMA Equity & Inclusion Toolkit, p. 20). For
example, one study showed that organizations with the most gender and ethnic diversity were
significantly more likely to outperform less diverse and inclusive organizations (p. 21).
In order to institutionalize positive change in fostering equity and inclusiveness and increasing
diversity and a sense of belonging, progressive cities are taking proactive steps, going "beyond
compliance" to create substantive programs that recruit, hire, and retain underrepresented populations
into their ranks (Smith 2019). For example, the City of Tacoma, Washington adopted their Equity and
Empowerment policy, a framework centered on a vision for an inclusive and equitable city. The Office of
Equity and Human Rights was created to address the policies and procedures that shaped the internal
makeup of the City's workforce (see also the City of Tacoma section, below).
A related central theme is that adopting an equity lens reshapes decisions across all
departments and programs. Advancing equity through local governments requires a fundamental
reorientation of their day-to-day operations (Jacob 2020, p. 8). A quote from the Governing for Equity
25
Project illustrates this point: "I think what we say is that equity isn't like an initiative or a program,
rather it's a fundamentally different way of doing work" (Jacob 2020, p. 9).
Other key findings from ICMA include:
o Many municipalities have shifted their focus from "inclusion and diversity" to "equity", and
specifically racial equity. For example, San Antonio's equity efforts were formally launched in
2015 with the creation of the Office of Diversity and Inclusion, since rebranded as the Office of
Equity. The City of Boulder, Colorado shifted their focus from "inclusion and diversity" to
"equity" staring in 2016. The City created a Racial Equity Core Team of city employees to steer
their efforts on fostering equity (Jacob, p. 30). Inclusion is a state of being valued, respected,
and supported. Equity is the consistent, fair, and systematic impartial treatment of those who
are underserved (Savage 2021). Equity is best understood as a lens through which programs,
policies, and initiatives are ultimately assessed (Jacob 2019). Transforming equity from a value
into practice is ongoing.
o Recruitment and hiring processes are being reconfigured. For example, several cities (such as
Portland, Maine and Tacoma, Washington) participate in "Ban the Box," a fair hiring practice
that enables qualified candidates to advance further in the application process by delaying the
disclosure of a criminal background and giving the hiring manager greater discretion in
determining if a past conviction will affect employment (Smith, p. 18). See Appendix A for an
example of job interview questions to ask local government candidates (ICMA E&IT, p. 25); and
for an example of best practice in job descriptions (Smith 2019).
o Recruitment strategies are designed to be more purposeful and intentional. For example, a
public works supervisor reports that people were always asking his crewmembers how they
were hired within the city, so crewmembers were given a business card that explained how to
26
apply for a city job that could be given easily to people in the community interested in jobs with
the city (Smith, p. 20).
o There is a pipeline problem. Pipelines are networks of employees that are trained, groomed, and
retained to move into new positions when available. However, in some cases, pipelines to
higher-level position are ineffective and in other cases, they are nonexistent. An inadequate
pipeline results in fewer opportunities for underrepresented populations. Hiring practices that
employ external candidates instead of utilizing internal pipelines to identity viable candidates
further limit opportunities (Smith, p. 22).
o A culture change is happening. For example, the City of Decatur, Georgia developed a plan
known as Better Together, the citywide equity, inclusion, and engagement plan (Smith, p. 16).
The City of Portland, Maine's Office of Economic Opportunity leads a municipal "welcome -
ability" process, defining characteristics that display a city's openness, preparedness and
support to integrate newcomers, and to encourage the inclusion of underrepresented groups in
leadership (https://www.portlandofopportunity.com).
o Metrics and accountability are lacking. Jurisdictions acknowledged a need for improvement in
this area and suggested that the paucity of detailed metrics and data are largely due to the
relatively newness of their diversity efforts (Smith, p. 23). Exceptions can be found. For example,
the City of Boulder, Colorado utilizes dashboards to track progress across a range of public
programs. Other cities such as San Antonio, Texas are presenting their equity data in terms of an
equity atlas, which provides a spatial visualization of (in)equity.
o The relationship between offices of diversity, equity, and inclusion and human resource
management needs maturing. Cities described HR departments as "very transactional," and
Diversity, Equity and Inclusion offices as "transformational" (Smith, p. 23). While HR
departments seek to be in compliance, diversity, equity and inclusion officers seek to identify
27
inequities and opportunities for growth (p. 23). Both offices need to work collaboratively rather
than competitively.
o Mentorship programs support the career advancement of employees, especially those programs
that target populations that frequently encounter barriers. For example, San Antonio, Texas,
implemented a Women's Leadership Mentoring Program that matches a female director or
administrator with a professional -level female employee. Similarly, Decatur, Georgia developed
a leadership development program called the Decatur E5 Academy (Engaged, Effective,
Excellent, and Evolved Employees) Academy (Smith, p. 15).
o The allocation of resources to support equity is key. One city manager refers to this
commitment as "doer -ship" — recognizing the strains that implementing and sustaining an
equity infrastructure will place on the existing capacity of the organization, and providing
resources and support to do the work (Smith, p. 16-17).
o Finally, much more work is still needed, despite the initial successes that local governments
have already achieved. "This work doesn't end. It shifts as we make progress but it doesn't end"
(Smith, p. 24).
k,
28
HISTORIC AND SOCIOECONOMIC CONTEXT
Understanding the historical and socioeconomic context of a community is critical for unpacking
the complexities of diversity in a community and as an extension, the challenges within local
governments. In addition to helping identify challenges for the community broadly, it also helps local
governments understand their employees. Most employees are hired from the area. Even those who
are new to an area are more likely to live in neighborhoods that reflect their backgrounds. To look at
the map of demographic distributions in most cities, we see that few places have uniform mixes of
cultures and people. These distinctions are often based on race, nation/culture of origin, religion, and
wealth. To demonstrate how the experience of any group is shaped by history and context, we offer a
broad overview of the black experience in Florida. We choose to use race as the example in this study
for two reasons: 1. Based on Census data, the black community is the largest minority group in the City,
2. The history of the black people in Florida and the City is far better articulated than the stories of other
historically disadvantaged groups. Of course, being better documented does not imply that the story is
thoroughly documented. Information on the black community was scant and information on other
populations was either sparse or non-existent.
The State of Florida Context
Historical Overview
Recognizing that the public sector has played a role in creating an uneven playing field is not a
judgment on those who work in local governments (Jacob, p. 27). It is, however, important for the
leaders and staff of a jurisdiction to understand their institutional history with respect to social inequity.
Accordingly, an historical overview follows.
The history of black people and Florida has been intertwined for centuries, with the first black
person arriving to Florida's shores on a Spanish ship. Even before the United States gained control of
29
Florida, there were reports of black Bahamians migrating to the southern tip of Florida. "Many of the
blacks ... were runaway slaves from West Indian plantations. Others were dropped there after British
sailors liberated slave ships on the high seas when England abolished slavery in 1807" (Dunn 1997, p.
14).
Before European colonialization and settlement of Florida, several tribes called the peninsula
home. Preceding the Seminole tribes, some of these major tribes included, "the Timucua in Northwest
Florida, the Apalachee in the panhandle, the Tocobaga near Tampa Bay, the Calusa in southwest Florida
and the Tequesta in southeast Florida" (Clark 2015, p. 1). The decades and centuries following the
beginning of colonization in Florida can be thought of in four periods: Spanish rule (1513-1763), British
rule (1763-1784), Spanish rule again (1783-1821), and American rule and subsequent statehood (1821 -
present) (Arnade 1963; Clark 2015; Diaz 2016; Wright Jr. 1976).
During Spain's first tenure as the imperialist power governing Florida, Spain established the
oldest city in the United States, St. Augustine (Pittman 2016). Unlike the other Spanish colonies in the
Americas at the time, St. Augustine was considered a failure when it came to producing revenue, with it
mostly serving as a military outpost (Arnade 1960; Clark 2015; Johnson 1989). During Spain's rule of the
Florida colony, black enslaved individuals who escaped from the British colonies were allowed their
freedom, as long as they converted to Catholicism (Clark 2015; Pittman 2016). This law instituted by
Spain's king helped lead to a rush of black enslaved individuals escaping plantations from the north. It
led to the creation of the first free black town or settlement in North America in the 1730s, Garcia Real
de Santa Teresa de Mose, also known as Fort Mose, located not far from St. Augustine (Pittman 2016).
The status of free blacks in Florida changed when the British gained control in 1763 and
reinstituted slavery. Following the Seven Years' War or the French and Indian War, Great Britain
relinquished control over the recently acquired Cuba to Spain in return for control over the Florida
colony. For the next several years, Britain maintained control over Florida, where it split the colony into
30
two parts: East Florida and West Florida. During Great Britain's reign over Florida, it enticed more
residents from the British colonies and the British homeland, it introduced new crops and industries,
increased the number of enslaved individuals within the borders, and built roads to make travel within
the colonies easier (Clark 2015).
Unlike the thirteen colonies that rebelled against British rule during the American Revolutionary
War (1776-1783), the two colonies in Florida sided with Great Britain; it was eventually transferred back
to Spanish rule after Great Britain's defeat (Florida State Department n.d.). Under Spain, Florida
remained two colonies but many of the British settlers left. Instead, many enslaved individuals fleeing
from slavery in the newly independent America escaped to Spanish territory. However, to prevent the
outflow of enslaved individuals into freedom and to expand its military reach, the United States
launched several military expeditions to attack Spanish strongholds, free settlements, and Native
American towns. During the years following American independence and Spanish rule over the Florida
colonies, the United States launched "several official and unofficial U.S. military expeditions into the
territory" which eventually led to Spain "formally [ceding] Florida to the United States in 1821, according
to terms of the Adams-Onis Treaty" (Florida State Department n.d.).
The purchase of the Florida colonies into an American territory did not bode well for two
groups: maroons and Native Americans. Maroon refers to "people demonstrating resistance to their
enslavement by escaping captivity" with one characteristic referring to "long-term or permanent escape
to inhospitable locals where escaped slaves established independent or co-dependent communities with
outsiders" (Howard 2013, p. 33). Many maroons escaped south to Cuba, the Bahamas and other islands
in the Caribbean, while other maroons joined Native American encampments (Dunn 1997). These Native
American and maroon encampments and forts resisted U.S. military attacks and encroachment, while
launching attacks of their own. Ultimately the skirmishes and attacks between the two sides led to the
31
two Seminole Wars and the extermination, genocide, and expulsion of Native Americans and maroons
across the Florida territory.
On March 3 of 1845, Florida became the twenty-seventh state in the United States. The
population of white Americans increased in Florida and the number of cities and towns increased as
well. Much of the development that occurred in Florida focused on the northern end, with little
occurring in south Florida, leaving it underdeveloped and forested. During the American Civil War,
Florida left the Union and joined the Confederate states that rebelled at the idea of abolishing slavery;
the Civil War ended in defeat for the Confederate army. Unlike other states in the Confederacy, no
decisive battles were fought on Florida soil, rather Florida's main contribution to the rebellion was
troops, cattle, and salt (Pittman 2016). Throughout the various wars, skirmishes, and attacks that Florida
faced against foreign nations, maroons both in and outside of Florida were made an offer: fight for us
and we will protect you from enslavement. This was the case with Spain's fight against Great Britain, the
American Revolution, and the American Civil War. In each of these cases, maroons risked their lives to
fight for their freedom.
The period of Reconstruction (1865-1877) followed the American Civil War. During
Reconstruction, the federal government stationed federal troops throughout cities in Southern states
and created organizations that facilitated the establishment of citizenship for those recently freed from
slavery. This period saw a record number of formerly enslaved black people running for and being sworn
into political offices and voting in federal, state, and local offices (Valelly 2004). However, after the end
of Reconstruction and when federal troops left southern states, the backlash against black people was
swift. Although the Reconstruction period was a success in rebuilding the economy and establishing
education systems for cities and states in the south, it was a failure when it came to cementing equal
rights for those who were formerly enslaved (Valelly 2004). With the rise of the Ku Klux Klan, the
number of black people holding office dropped significantly, and the number of lynchings, massacres,
32
and genocides across the South against black people increased. After the end of the World Wars, Florida
saw a large increase in people migrating from the north, particularly veterans who were formally based
in Florida. According to Colburn and Dehaven-Smith,
Southern whites enacted a series of segregation laws at the turn of the twentieth century
that stripped black citizens — who constituted nearly 43 percent of the population — of
their basic rights as citizens. These racial customs influenced the lives of everyone. Ethnic
people of color felt the same sting of racism that blacks did, and those who ignored the
racial traditions did so at their own personal peril. (p. 72)
Florida was not immune to the various violent attacks against black Americans; rather the
history of those attacks was either ignored or erased. Two of the major terror attacks against black
people and towns occurred in Ocoee and Rosewood Florida. The Ocoee Massacre occurred in 1920 and
was carried out by a white mob furious that a black man by the name of Moses Norman was attempting
to exercise his right to vote. The mob stormed the town where he lived and "burned down the home of
every black family," with an estimate between thirty and 60 killed (Pittman 2016, p. 252). The Rosewood
Massacre in 1923 was the result of a white mob attack based upon a false rape accusation by a white
woman against a black man (Pittman 2016). The white mob gathered and formed in Sumner, before
heading to the nearby town of Rosewood. Once in Rosewood, the white mob proceeded to lynch, shoot,
and murder as many black people as they could, in the process erasing the town of Rosewood from
history. In both massacres, there have been no convictions.
The years leading up to the Civil Rights Movement was just as bloody as the years following
Reconstruction. Throughout Florida, black Americans were threatened and intimidated into not casting
their vote. The Reverend Dr. Martin Luther King Jr. visited Florida many times to meet with local civil
rights leaders in their goal of ensuring civil equality (Dunn 1997). One of the first fatalities in the fight for
civil rights occurred in Mims, Florida. Harry T. Moore was a leader in the civil rights movement in Florida
who fought for the right to vote, and against lynching and police brutality. However, on Christmas Eve of
1951, he and his wife were murdered by a bomb that was placed in their home (Pittman 2016).
33
Black Americans in Florida worked with both state and national allies to push for civil rights. In
Tallahassee, students from the historically black college Florida Agricultural and Mechanical University
hosted their own bus boycott in 1956, which would eventually lead to the abolishment of white -only
seating in 1957 (Pittman 1957). In South Florida, civil rights activists worked to desegregate public
facilities, parks, transportation, housing, and many other aspects of life that was off-limits to black
people. One of the first schools to desegregate in Florida was Orchard Villa Elementary School in the City
of Miami in 1959 (Colburn 2007).
Although the Civil Rights Act was intended to facilitate equality amongst the different races and
ethnicities, the implementation of such policies was inconsistent. Black Floridians still faced
discriminatory practices. One such practice was the planned location of interstate 95. "In communities
throughout Florida, politicians, urban planners, and entrepreneurs all welcomed the interstate road
system as an economic boon. They also envisioned highway construction as a convenient slum -razing
method" (Tscheschlok 1996, p. 441) as a way to clear black neighborhoods through eminent domain.
The destruction of several black communities along the route of 1-95 led to an increase in crime and
poverty in these communities. The combination of high crime and poverty along with police brutality
and a discriminatory criminal justice system, facilitated the eruption of several race riots between the
1960s and 1980s including the Liberty City Riot of 1968 and the McDuff ie Riot of 1980 (Dunn 1997;
Tscheschlok 1996).
Hallmarks of the systematic racism that black Floridians faced still exist today. The way that a
person talks, dresses, or wears their hair can affect their job security, ability to secure a house, and
where they may travel throughout the state. Many black Floridians are being priced out of their
neighborhoods because of rising rent and the changing socio -demographics of the state. Even now, the
history of race, slavery, and discrimination in Florida is being challenged. Republican Governors over the
past few years have passed policies that directly and indirectly influence the way that people and
34 41
children see race. Most recently, on June 22, 2021, Florida Governor DeSantis signed a law requiring
public universities to assess "viewpoint diversity" on campus each year through a survey, hinting at "the
potential for budget cuts at universities that do not pass muster" (www.thewashingtonpost.org June 24,
2021). "We do not want [our universities] as basically hotbeds for stale ideology... That's not worth tax
dollars and not something we're going to be supporting moving forward." His office reiterated on June
24 that "taxpayer -funded schools, colleges and universities should be places for education — not
indoctrination" (ibid). Reallocating funding and resources from public schools, and banning public
schools from teaching critical race theory serve to deny the role of black Floridians and the history of
racism and discrimination. Colburn and Dehaven-Smith capture this dynamic:
The challenge for policy leaders in the state is to find ways to promote economic
advancement, while simultaneously encouraging greater understanding of Florida's racial
and ethnic communities. And yet, for the most part, state political leaders have opted to
ignore racial and ethnic issues, worrying that their political futures may be at risk if they
condemn discriminatory behavior. (p. 142)
With this historical and contemporary context in mind, we next present an environmental scan of the
State, given that inequity is correlated with economic and social factors. We begin with an overview of
Florida demographics.
Demographic Overview
According to the U.S. Census Bureau (n.d.), Florida has a population of over twenty-one million
people. Table 1 presents some basic demographic information on Florida's population. As the table
shows, one of the largest age brackets is the retiree, or baby boomer generation. The second largest is
the "working generation" — those between the ages of 18 to 64. It is important for ages to be taken into
consideration when discussing the economy because the larger the elderly population, the more strain
that is placed on the health care system, which in turn would require more funding from the state.
35
Before European colonialization and intervention, the largest ethnic and racial groups comprised
native and indigenous people, including maroons. Now, they only make up about 0.5%. Conversely,
Florida has seen an increase in the Hispanic and Latin American population since the end of World War II
and the rise in violence in their home countries.
Table 1: Florida Demographics
Demographic
Percentage
Age
Persons under 5 years
5.3
Persons under 18 years
19.7
Persons 65 years and over
20.9
Race
White
77.3
Black or African American
16.9
American Indian and Alaska Native
0.5
Asian
3
Native Hawaiian and Other Pacific Islander
0.1
Two or More Races
2.2
Hispanic or Latino
26.4
White, not Hispanic or Latino
53.2
Table 1: Data from U.S. Census Bureau
Figure 1 shows a map of county -level population in Florida. Miami -Dade County in South Florida
has the largest population in the State of Florida with over two million people, while Liberty County in
Florida peninsula has the smallest population with just over eight thousand residents. Some of the more
populous counties are in the central and southern part of Florida, while the least populous states are
located in the northern part of Florida and in the peninsula.
36
Figure 1: Map of Florida County Populations
Number of People In Florida by County N
Total Population
8,390-111,269
111,270-291,740
- 291,741 - 589,806
- 589,807 - 974,546
NM-0�W Ca
- 974,547-2,782,398
R]
100
Figure 1: Data from U.S. Census Bureau
Figure 2 presents the racial and ethnic breakdown by county of Florida residents, overlaid by
median household income of each county. The county with the highest median household income is St.
Johns County in northeast Florida. The county with the lowest median household income is Marion
County in northwest Florida. The residents in St. Johns County are 87% white, 5% black, and 7% Hispanic
or Latino. The residents in Marion County are 56% white, 39% black, and 6% Hispanic or Latino.
37
Figure 2: Map of Income in Florida Counties by Race and Ethnicity
Race by Household Income for White Residents N Race by Household Income for Black Residents N
Florida Counties A Florida Counties A
0 177 __ w .im.. o•..7
NS6 LY-�� �P�w* ,
Race by Household Income for Hispanic or Latino Residents
Florida Counties
N
•.Idn•fsry •
%Hispanic or
Ladno Median Household lneeme
=3-8
$34.015 00 - S39,623.59
O 9. 13
339.823.00.346284.79
14 - 21
• S45.25480- 562,219.93
- 22 - 32
0 952,219 94 - 559,984.56
-33.69
0 $59,964.57• ST7.730A1
•
% Whroo
Mousohold Income
•
• '
42-63
� 536,015.00 -539,823.59
% •Isek er African Amsrlran Heuwheld Ylceme •
s •
3 - 6
P4,015.00 -S30,82369 •
=64-73
S39,623 60.545,284.79
0 9 - 14
5,19,623.60 -945,264.79 •
-
74-79
0 S45,264.80 - 552,219.93
0 - 15 - 23
• S415,211480 -L52,21093 - •
-80-64
0 S52,219.94-359,964.58
-24-30
0 $52,219.94-969,964,56
-85-92
0 $59,954 57 -577,730.51
- 40-55
0 950,964 57 - 977,730 61
160
160
-3•a
SN4
Race by Household Income for Hispanic or Latino Residents
Florida Counties
N
•.Idn•fsry •
%Hispanic or
Ladno Median Household lneeme
=3-8
$34.015 00 - S39,623.59
O 9. 13
339.823.00.346284.79
14 - 21
• S45.25480- 562,219.93
- 22 - 32
0 952,219 94 - 559,984.56
-33.69
0 $59,964.57• ST7.730A1
Figure 2: Data from U.S. Census Bureau
38
Figure 3 shows several maps of households that have internet subscriptions and the racial
makeup of counties in Florida. The county in Florida with the highest percentage of households with
internet subscriptions is Clay County with 91%, while the county with the least number of households
with an internet subscription is Dixie County with 59%. The residents in Clay County are 79% white, 11%
black, and 10% Hispanic or Latino. The residents in Dixie County are 86% white, 6% black, and 5%
Hispanic or Latino. This figure tells us that at least 59% of total residents in Florida counties have
internet subscriptions, but white residents are much more likely to have access when compared with
black and Hispanic or Latino residents.
39 11
Figure 3: Map of Internet Access in Florida Counties by Race and Ethnicity
Race by Intemet Subscripton for White Residents
Race by Internet Subscripton for Black Residents
Florida Counties
Florida Counties
-
• -
Nn
A
•
N
A
.A
%Whae
•
•(
42 - 63 �,,,t, •
% Black or Africayw
n American * •
,'�
64-73
•
��.
_ n
3-8
• __ •
•
74-79
9-14 • .
•
- 80-84
• 1
15-23 •
_ B5.92
♦��
24-39 •
- 40 - 55
% of Internet Subscriptions
59-63
% of Internet Subscriptions
59.83 4111,
- 64 - 73
4
84-73
• 74- 81
■ 74-81
• 82-87 1110
1a8
-A•a
• 92-87
1•u
♦ 88.91
• 88-91
Race by Internet Subscription for Hispanic/Latino Residents
Florida Counties
• .. 1
% Hispanic or Latino a°",,,, �„ I • �•
a, • •;
3-8
9-13 •
14-21
- 22-32
33-69
% Internet Subscriptions
59.63
64-73
I
74-81
150
k 82.87 No.
t 88-91
Figure 3: Data from U.S. Census Bureau
40
Figure 4 shows several maps of households with access to a personal computer and the racial
and ethnic makeup of counties in Florida. The county with the highest percentage of households with
access to a personal computer is Seminole County, with 90% of households having such access. Hendry
County has the least number of households with access to a personal computer at 41%. Residents in
Seminole County are 75% white, 12% black, and 22% Hispanic or Latino. Residents in Hendry County are
80% white, 11% black, and 54% Hispanic or Latino. This figure tells us that at least 41% of residents in
Florida counties have access to a personal computer, but that access varies significantly by race.
Figure 4: Map of Personal Computer Access in Florida Counties by Race and Ethnicity
Race by Personal Computer Access for White Residents Race by Personal Computer Access for Black or
Florida Counties African America Residents, Florida Counties
Race by Personal Computer Access for
Hispanic or Latino Residents, Fkxids Counties
Ole
N
e
% Hispanic or Latino
,° s„ ,— '
�• •
• f
0 3-6
9-13
•^
EM14-21
sa•.a. ca.n
•
a.»e. oo..r
1
%Whjtg fir.awa.,a
t r•awiere
- • •
42-63 •
•
% Black or African American
• •
u3.8
•
64-73
•
• •
• 79-84
+so
O9-t4
• - •
- 74 - 79
r
_. •
• I
15-23
-80-84
r
� •
--�•�-I
- 24 .39
- 85-92
/
•
% or Desktops or Laptops
- 40 - 55
% of Desktops or Laptops
41-52
41-52
53-65
53-85
• 88-78
160•
66 - 78
180
• 79.84
M.
w
• 79-84
• 85-90
85-90
Race by Personal Computer Access for
Hispanic or Latino Residents, Fkxids Counties
Ole
N
k `•moi r--
>wm
% Hispanic or Latino
,° s„ ,— '
�• •
• f
0 3-6
9-13
•^
EM14-21
•
- 22 - 32
a...rm,.t.
•
41%MaM
% Desktop or Laptop
41-52
• 53-65
dp
• 66-78
• 79-84
+so
• 85-90
Figure 4: Data from U.S. Census Bureau
42
Figure 5 shows the racial and ethnic makeup of homeowners in Florida by county. The largest
number of homeowners is in Miami -Dade County with over four -hundred thousand. The least number
of homeowners is in Lafayette County with under two thousand. The largest percentage of white
homeowners are in Sumter County with 90%, while the lowest number of homeowners is in Miami -Dade
County with 52%. The largest percentage of black homeowners are in Gilchrist County at 92%, while the
lowest number of homeowners is in Monroe County with 21%. The largest percentage of Hispanic or
Latino homeowners are in Calhoun County at 98%, while the county with the lowest number of Hispanic
or Latino homeowners are in Jefferson County at 15%. Unlike black residents and Native Americans, at
least 50% of white residents in every county owns a home. Hispanic or Latino residents are more likely
to own and live in their own home in the northern part of Florida.
Figure 5: County Map of Florida Homeowners by Race and Ethnicity
Number of Homeowners In Florida by County N
Honwowrrn
1.397.31.814
31.915-81,940
e1.9�1.1m..1eo
167.161.303.111
30].tti-438.]43
160
1000 A%"
Percentage of Black Homeowners in Florida by County
19 N
o."_ A
XofIs
35-45
_ 45-55
-
56-66
_ 87-92
Mono�CwMy
z1a
Percentage of White Homeowners in Florida by County
N
A
% of White Homeowner
52-53
64-71
72-77
78-83
54-90
W.a.o�a� cavy
szu
O
180
\Yas
Percentage of Hispanic or Latino Homeowners
in Florida by County
% of Hispanic or Latino
15-38
39-50
O
51-60
- 61 - 72
_ 73-98
Figure 5: Data from U.S. Census Bureau
0
,60
N
A
43
44
Figure 6 shows several maps of renters in Florida by county. The county with the largest number
of renters is Miami -Dade County with over four hundred thousand renters. The county with the least
number of renters is Lafayette County with under four hundred renters. The county with the highest
number of white renters is Miami -Dade County at 48%, with the lowest number of white renters
residing in Sumter County. Conversely, the county with the largest number of black renters is Monroe
County at 78%, while the county with the least number of black renters is Gilchrist County at 6%. Finally,
the county with the largest number of Hispanic or Latino renters is Jefferson County at 82%, while the
county with the lowest number of Hispanic or Latino renters is Calhoun County at 1%. Renting and
homeownership is an important distinction to make because it is a sign of generational wealth and
assets. Less than 50% of white residents are renters, compared with black residents who have a
significantly higher percentage chance of renting.
Figure 6: Map of Renters in Florida Counties by Race and Ethnicity
Number of Renters In Florida by County N
L'b",
m1
Renters
361 -13,322
13,323 - 35,921
35,922 - 81,989
® 81,990 - 269,643
- 269,644 - 441,798
MYT40eM C
.1,18!
160
M8M1
Percentage of White Renter in Florida by County
% of White Renters
F719-16
17-23
24-28
- 29.34
-
35-48 sti
r_�
N
A
1W
- Mk.
Mi
Percentage of Hispanic or Latino Renters
Percentage of Black Renters in Florida by County in Florida by County
N
u�an ca..y
ri
et.
w wr.r
% of Black Renters
% Hispanic or Latino Renters
8-30
1-22
31 -43
23-39
- 44 52 . n 40-48
-
53-62
- - 4 83 - 76 9.59
- 60.82
leo
mow.
Figure 6: Data from U.S. Census Bureau
I
MAI
iw
MEMMEMM.
Taken together, the maps tell us that counties with higher median household incomes tend to
have higher percentages of white residents, although this does not hold true for all counties. In addition,
counties with higher percentages of white residents tend to have access to more technological
resources. Compared to white Floridians, black Floridians are more likely to be renters and less likely to
be homeowners especially in South Florida where home ownership is becoming increasingly out of
reach for many. When it comes to those who identify as Hispanic or Latino, there is also a chance that
they may identify with one of the racial groups, such as black or white. That is, an individual can be a
white Hispanic or Latino, or a black Hispanic or Latino.
Political Overview
Florida, like all states, operates under a state constitution that guides the actions and behaviors
of the state and local governments. According to the Florida Department of State (2016):
46
In preparation for statehood, fifty-six delegates from Florida's twenty counties assembled
in the Panhandle town of Saint Joseph (near Port St. Joe) to frame the 1838 Constitution
(cover). The delegates were mainly planters and lawyers from thirteen of the nation's
twenty-six states and four foreign countries; only three were native Floridians. Three
delegates would later become U.S. Senators; two, governors; and five, members of the
state supreme court. The convention was called to order on December 3, 1838 and
elected Robert Raymond Reid of St. Augustine as president. The constitution divided the
government into the traditional three branches — an executive headed by the governor
elected to a single four-year term, a bicameral legislature that met annually, and a
judiciary headed by a supreme court. It banned bank officers, clergymen, and duelists
from election to the legislature and governorship; and declared free men equal while at
the same time preserving slavery. The constitution was approved by popular vote in 1839
and served as Florida's constitution from statehood in 1845 until Florida seceded from
the Union in 1861. (p. ii)
In 1968, after the revision and ratification of the Florida state constitution, authors of the
revised state constitution created a provision that would propose revisions to the state's constitution
every twenty years (Florida Chamber of Commerce 2016). The Constitution Revision Commission (CRC)
was given the power to propose revisions with no oversight except for the ballot box, with the most
recent constitution revision occurring in 2016. The positions within the CRC are appointed. The governor
appoints fifteen people, the state Senate president appoints nine people, the Speaker of the House
appoints nine people, the Chief Justice of the Florida Supreme Court appoints three people, and the
attorney general serves on the Commission.
Figure 7: Organizational Chart of Florida's Executive Branch
Governor
Lieutenant Governor
28 State Agencies
and Departments
Governor and
Cabinet
Chief Financial
Officer
Department of
Financial Services
Attorney General
Department of Legal
Affairs
Commissioner of
Agriculture
Department of
Agriculture and
Consumer Services
Figure 7 shows the organizational chart for Florida's executive branch. Power in the executive
branch is split between the Executive Office of the Governor and the Florida Cabinet. Unlike other
states, both the governorship and cabinet positions are elected positions, with each executive officer
serving four years. Each of the executive officers heads an agency or commission, with the governor
having power over all other agencies and commissions.
Figure 8: Organizational Chart of Florida's Legislative Branch
Speaker of the
House
120 State Speaker Pro Tem
House of Representatives
Representatives
MajorityLeader
Senate
Minority Leader
Senate President
40 State Senators 1 HPresident Pro Te
Majority Leader
Minority Leader
47
48 Al
Figure 8 details the organizational chart for Florida's legislative branch. The legislative branch is
split between two houses, the House of Representatives, and the Senate. There are 40 state senators
who serve four years each, with staggered terms. The Florida Senate includes a president who oversees
the functions of the senate, and a president pro tempore who may conduct floor meetings in the
absence of the president. There is also a majority leader who represents the party that has the majority
in the senate, and a minority leader who represents the opposition party. There are 120 state
representatives who serve 2 -year terms. Unlike the state senators, the terms for all 120 state
representatives are not staggered. Like the state senate, the House of Representatives has a Speaker of
the House that conducts floor meetings and oversees the functions of the House, and a speaker pro
tempore who may stand in for the Speaker of the House. There is also a majority leader and a minority
leader.
Currently, the House of Representatives, the Senate, and the Governorship are controlled by the
Republican Party. Republicans have held the governor's seat since 1999 when Republican Jeb Bush
succeeded Democrat Kenneth H. Mackay. Republicans have controlled the State Senate since 1992,
where they managed to overturn the Democrat's hold on the senate; and have controlled the House of
Representatives since 1997. With the majority that Republicans have enjoyed over the years, many
policies favored by their party have been enacted into law. The Republican Party maintains tight control
over their members, often punishing dissenters with unwanted committee assignments or denying them
benefits.
Economic Overview
After Texas and California, Florida is the third most populous state in the United States, with a
growing population due to migration from northern states and foreign countries (Economic and
Demographic Research 2020b). Florida's economy is largely dependent upon tourism, the cruise
49
industry, agriculture, the service sector, and population growth (Colburn and Dehaven-Smith 2010;
Economic and Demographic Research 2020a). Florida's general revenue sources come from sales tax,
corporate income tax, highway safety fees, beverage tax and licenses, insurance premium tax, service
charges, tobacco taxes, corporation -filing fees, and other taxes and fees (Economic and Demographic
Research 2011). The largest percentage of Florida's revenue comes from the sales tax, corporate income
tax, and highway safety fees.
Unlike the vast majority of the other states, Florida has no state income tax and operates as a
haven for businesses by providing tax breaks. As a state located in the southern hemisphere, Florida's
mild weather attracts a large percentage of elderly individuals and snowbirds who move to Florida.
Florida is a tourist state, with most of its revenue and funding coming from tourist and supporting
industries such as the service and cruise industries. As such, Florida is particularly sensitive to any
negative impacts to tourism, with the COVID-19 pandemic being the most devastating and recent
example.
The City of Boynton Beach Context
Historical Overview
In the years following Florida's ratification to statehood, there was a considerable effort on the
part of state politicians to increase the state's population. At the time, Florida was the least populous
state in the south, with most of its population migrating from Georgia, Alabama, and South Carolina
(Colburn & Dehaven-Smith, 2010). In their rush towards increasing the population, and the economic
and agricultural development of Florida, "State leaders actively courted land developer Hamilton
Disston, railroad magnates Henry Flagler, William D. Chipley, Henry G. Plant, and other wealthy
investors, often throwing miles of free land at them and negotiation deals — frequently out of a sense of
desperation — that would come back to haunt the state" (Colburn & Dehaven-Smith 2010, p. 18).
50
In 1893 Flagler secured a charter to build his own rail line through the untouched lower east
coast of the state. With Flagler's Florida East Coast Railroad providing the life-giving impetus for the
state's growth, one could argue that he almost single-handedly developed the State of Florida. New
communities flourished along the railroad tracks. The railroad brought tourists from the North for rest
and relaxation in the warm climate and to pamper themselves in the grandiose hotels that Flagler built.
The railroad also enabled the state to bloom as the nation's winter vegetable garden. Blacks served as
the primary labor source in Florida for planting, tending, and harvesting the crops. They also provided
much of the labor to build the railroad and operate the hotels. (Dunn 1997, p. 46-47)
Hagler's railroad tracks extended from the northern part of Florida, through West Palm Beach
and south through Biscayne Bay, the furthest of any other railroad company (Dunn 1997). At the time,
Dade County's border extended further north, encompassing what is now the Palm Beaches and
Broward County (Dunn 1997). Many of the cities founded in South Florida were settled by out-of-
towners who bought several acres of land to develop. Some of those city founders included Julia Tuttle
who helped found Miami, Congressman William Linton who founded Linton now known as Delray, and
Major Nathan Boynton who founded Boynton Beach (DeVries 2006; Dunn 1997).
Nathan Boynton was a Michigan native who traveled down the East Coast Canal on a safari in
Florida in 1894 (DeVries 2006). While on the safari Boynton "was so impressed by the area that he
purchased 500 acres and a mile of the oceanfront" (Historic Sites Survey 1996, p. 14). Two years after his
first journey to South Florida along the newly built East Coast Canal, Boynton began construction of the
Boynton Hotel in the newly named Boynton community.
Even before Boynton became a settlement and incorporated as a town in 1920, there was
already a rich history of black residents settling and farming in the area. There is very little published
history on the black history of Boynton Beach (Anthony 2016). Rather, like the black history of many
towns in Florida, the life and history of black residents are known mainly through city records and oral
51
history. Fortunately, through a grant from the National Park Service, the City of Boynton Beach has
created an historical preservation website that explores the influence and history of African Americans
and Bahamians (Anthony 2016; http://historic.boynton-beach.org/).
One of the first recorded incidents of black settlers in the Boynton Beach area was in the 1980s
when two black families, the Kings and the Cades, arrived to farm the land (Historic Sites Survey 1996).
Another documented presence of black residents was the founding of Boynton Beach's first church, St.
Paul's African Methodist Episcopal Church in 1892 and constituted in 1900 (Works Progress
Administration 1900). As noted, much of the history of black residents and their impact on Boynton
Beach is unpublished, and accounts from residents and their descendants is now being documented by
the City. One such account concerns one of the most well-known black individuals who helped in the
development of black Boynton Beach, Robert E. Wells. According to the Historic Preservation site, Wells,
a Bahamian native, bought land in the area now known as Lake Worth. During his lifetime, Wells helped
found St. Paul African Methodist Episcopal Church, requested a black teacher from Dade County,
attended the signing of the documents that incorporated Boynton Beach as a town, was the leader of
the Boynton Negro Civic League, and bought plats of land that would eventually become the downtown
part of the Negro District in 1925.
In 1907, black residents petitioned the Dade County School Board for a school for black students
(Dade County School Board Minutes 1896). Unlike residents in other parts of Florida who were
segregated and denied their rights through the Jim Crow laws of 1890s, Boynton had no such laws on
file, at least until the next century (Colburn & Dehaven-Smith 2010). Through several ordinances passed
in the 1920s and 1930s, Boynton made segregation into law and instituted sundown laws that
prevented black residents from venturing into the white part of town. Figure 9 shows the area that the
city forced black residents into through its segregation ordinances.
52
4
Figure 9
Segregation by Ordinance 37 in 1924
Boynton Beach, FL Census Tracts
t .,ke Weefi
N
5W.Ch
s
Len1—
ata
W •Worm• �
s _
�1
G—d lY
f
. i
i
owes s.,at` Y
Miles
6- ,
ter, st
S%1rpp �Jn IrfIF, Gamin USGS. Mtwtrap.
i IN4:R1M'VI N(tt:ah lien Jepan. Yl.11 lfn Cera
p
ft
- hftt,f Etnk W—. lThaYa GI NGCC 1:
Cee-ShcetVaa avFlWtwe. ortl t^a GIS UW1 Cnnm
Figure 9: Ordinance 37 created the Negro District between modern day Seacrest Blvd to the West,
Railroad Ave to the East, Martin Luther King Jr. Blvd to the South, and Boynton Canal to the North.
In 1924, City Ordinance 37 instituted segregation and forced many of the black residents and
businesses to retreat into a different neighborhood, which the city called The Negro District within the
Town of Boynton. That same year the City passed City Ordinance 47, which increased the area that fell
within the segregated zone, forcing more black residents westward. In 1933, Boynton passed City
Ordinance 135, which prohibited white residents from black communities, and black residents from any
neighborhood that was not the Negro District, after 9:00 p.m. Sundown laws were not uncommon in the
53
state of Florida during this era and the years afterwards. Colburn & Dehaven-Smith (2010, p. 19) state
that:
A major development of this era that would have long-term consequences was the
geographic segregation of African Americans in Florida. Many Florida cities in the late
nineteenth century restricted black residential areas to the other side of the railroad
tracks or the outskirts of town. Cities on both the east and west coasts of Florida zoned
housing for African Americans along a narrow strip of land that parallel the railroad tracks.
As a consequence, black communities in the state tended to be highly concentrated and
distributed in a linear fashion running from north to south.
According to the City of Boynton Beach's Local History Archive (https://www.boynton-
beach.org/library/archives), due to the shortage of labor as the result of World War II, farm owners
petitioned for the school dates of black children to be changed so that they could work in the field. Farm
owners and growers would proposition children outside of the school to work on their farm rather than
attend school. In 1944, black community members were successful in ending the practice.
In 1954, the United States Supreme Court made a landmark decision in Brown v. Board of
Education of Topeka that ended school segregation. However, the courts placed no timeline on when
and how schools school desegregate; rather they left it up to the individual state and local governments.
This non -enforcement meant that many schools throughout the United States would not desegregate
until many years later. In Boynton, school desegregation did not take place until 1961. The Civil Rights
Act of 1964, passed by the federal government, eliminated all other aspects of formal segregation in
schools, government offices, businesses, and elsewhere. However, aspects of segregation are still
evident in the city today.
Demographic Overview
According to the United States Census Bureau, there are over 78,000 people who live in the City
of Boynton Beach. Table 2 presents some basic demographic information on Boynton Beach's
population. Over twenty percent of the population fall under the retirement age of 65 years and older,
54
which could potentially contribute to the city's health care system. Over 63% of the population identify
as white, 30% of the population identify as black or African American, and 16% of the population
identify as Hispanic or Latino.
Table 2: Boynton Beach Demographics
Demographic
Percentage
Age
Persons under 5 years
5.4
Persons under 18 years
17.3
Persons 65 years and over
21.2
Race
White
63.3
Black or African American
30.3
American Indian and Alaska Native
0.1
Asian
2.5
Native Hawaiian and Other Pacific Islander
0.0
Two or More Races
2.0
Hispanic or Latino
16.3
White, not Hispanic or Latino
49.6
Table 2: Data from U.S. Census Bureau
Figure 10 shows a map of Boynton Beach by race. There is a visible separation between parts of
the town that are mostly white, and those that are mostly black. The census tracts with the higher
percentage of black residents coincides with the original part of the city that was segregated.
Figure 10: Map of Boynton Beach by Race and Ethnicity
White Residents
Boynton Beach, FL Census Tracts
NO
Black or African Americans Residents
Boynton Beach, FL Census Tracts
-Maks �B1.a -Mlles it's w
Hispanic or Latino Residents
Boynton Beach, FL Census Tracts
%14.xa r laXro
o..
-Miles -n'�
N
A
Figure 10: Data from U.S. Census Bureau
N
A
55
56
Figure 11 shows a map of Boynton Beach by race, ethnicity, and income. The census tracts with
the highest median household income is in the southern part of the city, which coincides with white
residents with high median household income. Black residents with high median household income
reside in the central and northern part of the city, while Hispanic or Latino residents with high median
household income reside in the south and southeastern part of the city.
Figure 11: Map of Income in Boynton Beach by Race and Ethnicity
Median Household Income
Boynton Beach, FL Census Tracts
0
]w.4%M we]s]w
N
A
Black or African American Median Household Income
Boynton Beach, FL Census Tracts
N
A
White Median Household Income
Boynton Beach, FL Census Tracts
I
Z M-4 we i4 na,1-
-Milee -,�F]rAf erot �rxa
Hispanic or Latino Median Household Income
Boynton Beach, FL Census Tracts
I
tea.] nnaek«].]tie D,mns,] caaiw
-Miles tl•w.. .. „naeer -Mlles
Figure 11: Data from U.S. Census Bureau
N
A
I-1
57
58
Figure 12 presents homeownership in Boynton Beach by race and ethnicity. There is a higher
white homeownership than there are for black and Hispanic or Latino. For both black and white
homeowners, there is a concentration in the southern part of the city that matches with the census tract
areas with higher median household income.
Figure 12: County Map of Boynton Beach Homeowners by Race and Ethnicity
White Homeownership Black Homeownership
Boynton Beach, FL Census Tracts Boynton Beach, FL Census Tracts
N
A
r
1
x ww s peo`
Qe m n.n
-ee.m —Nlln -r.,00
Hispanic or Latino Homeownership
Boynton Beach, FL Census Tracts
N
A
U^
Ob m
_ ®w K
Figure 12: Data from U.S. Census Bureau
I
N
A
59 11
Ik
Figure 13 presents renters in Boynton Beach by race. There is lower concentration of white
renters than there are black or Hispanic renters. There are more white renters in the north and
northeastern section of the city than there are elsewhere. The concentration of black renters is spread
throughout the city, as is the case for Hispanic or Latino renters.
Figure 13: Map of Boynton Beach Renters by Race and Ethnicity
White Renters Black Renters
Boynton Beach, FL Census Tracts Boynton Beach, FL Census Tracts
2
-PAW
N
A
I
%Whft Yew
md.
Hispanic or Latino Renters
Boynton Beach, FL Census Tracts
j -" - ] N
A
%Hmmk> Wlro
Z
Figure 13: Data from U.S. Census Bureau
n.c+.
N
A
61
62
Political Overview
Located in Palm Beach County, South Florida, the City of Boynton Beach has a commissioner -
manager form of government, as opposed to a mayor -commissioner form of government. A
commissioner -manager form of government places more power in the hands of the city manager and
commissioners, and less in the hands of the mayor. According to DeSantis & Renner (2002), a
commissioner -manager form of government "centralizes supervisory and administrative responsibility in
one individual, allowing the individual's expertise and knowledge of administrative activities to be
developed while vesting all power in an elected governing body to promote representative democracy"
(p. 96). The commissioner -manager form of government changes the power of the mayor from a
"strong" mayor to a "weak" mayor by separating the administrative and legislative responsibilities of the
mayor (Salant 1989).
The City of Boynton Beach elects a mayor and four commissioners, each of whom serves three-
year two -term maximums. The city manager is not an elected position; rather the city manager is
appointed by the city commission. The responsibilities of the city commission include: "creating a
strategic direction for the city, adopting legislation, approving the budget, setting taxes and fees, hiring
a city attorney, appointing board & committee members, and hiring and evaluating a city manager"
(https://www.boynton-beach.orp/city-commission). The city manager oversees the overall
administration of the City including several departments: Art in Public Places, City Clerk, , Community
Standards, Development, Economic Development, Finance, Fire, Golf, Human Resources and Risk
Management, Information Technology, Library, Police, Public Works, Recreation and Parks, and Utilities.
In the United States, federal laws preempt state laws, and state laws preempt local laws.
However, the tenth amendment of the U.S. Constitution states that "the powers not delegated to the
United States by the Constitution, nor prohibited by it to the States, are reserved to the States
63 MI
respectively, or to the people (National Archives n.d.). This means that all powers not explicitly given to
the federal government by the Constitution belong to the States. However, when it comes to local
governments, there is no such provision. According to Swanson and Barrilleaux (2020, p. 674):
Local governments exist because of state government grants of recognition. Some local
governments receive the direct grant of a charter from the state, and others exist because of
state authorizations for citizens who live in a certain area to form a local government. In either
case, the state government grants local governments certain legislative powers... However,
states may also expressly delegate restricted powers to local governments through enabling
legislation... Discretion in this instance is granted to municipalities based on authority that is
expressly given by the constitution or state statutes.
Accordingly, laws passed at the state level override laws passed at the local level through
preemption. If a city passes a ban on plastic straws or tries to pass a local government minimum wage,
the state has the ability to override those decisions, either through the courts or through legislative
action. Local governments and residents who share the same ideology as the state are less likely to face
threats of preemption laws, and are given more autonomy (Swanson and Barrilleaux 2020).
Economic Overview
According to the City of Boynton Beach's website, the city has three main sectors that
contribute to its economy: healthcare/social assistance, retail trade, and accommodation/food services
(https://www.boynton-beach.org/economic-development/economic-overview). The city also boasts
four breweries, and over the past several years has focused on increasing economic and community
development through various projects and agencies. The Boynton Beach Community Redevelopment
Agency (CRA) focuses on revitalizing areas that have deteriorated over the years and increasing the
property tax revenues of the area. In 2017, the city hired a new economic development and strategy
64
director whose focus is on promoting the city's "economy and community through locally based,
regionally driven development" (Engoren 2017). The city has also introduced several programs focused
on helping local businesses thrive, especially during the COVID-19 pandemic. Taken together, this
overview of the City of Boynton Beach's history, political arrangements, and economic development sets
the context for an examination of the City's HR policies and practices.
65
THE STATE OF THE CITY OF BOYNTON BEACH'S HR POLICIES AND PRACTICES
The Structure
As stated in its Strategic Plan Fiscal Year 2020-2021, the City aims to be "a welcoming and
progressive coastal community that celebrates culture, innovation, and business development" (p.7).
With this goal in mind, the City makes efforts to build "a vibrant and sustainable community that
provides exceptional services" (ibid). The City values leadership, ethic, vitality, agility, unification,
compassion, innovation, creation, and inclusion. The City has launched a strategic initiative to "cultivate
consciousness and develop a framework to address racial and social equity in the delivery of City
services for the benefit of all communities" (ibid., p.14). The City is an Equal Opportunity Employer and
prohibits discrimination in all aspects of its personnel policies and practices.
Organizational Profile
Known as "America's Gateway to the Gulfstream," the City is a full-service municipality,
providing every city service for its residents and visitors. Located in the heart of southeast Florida, in the
center of Palm Beach County, the City is a coastal community consisting of 16.5 square miles that
includes four miles of the Intracoastal Waterway and has one of only two operating full-service marinas
in Palm Beach County. The City is the third largest municipality in Palm Beach County. The City's five
elected officials include four district commissioners that serve three-year terms and a mayor -at -large
that serves a maximum of two (three-year) terms. The City Commission creates the Strategic Plan for
the City, adopts legislation, approves the City's budget, sets taxes and fees, and appoints the City
Manager and City Attorney (www.boynton-beach.org). The City's diversity, equity, and inclusion efforts
are managed by the Director of the Human Resources and Risk Management Department with a staff of
66
ten. With 850 employees, the department is "very lean" (City official, personal conversation, June 8,
2021).
Demographics of the City Workforce
Contract, Regular, and Bargaining Unit Employees
The City of Boynton Beach has three groups of employees: contract employees, regular
employees, and bargaining unit employees. Table 3 presents the City workforce by employee types.
Contract employees are individuals hired by direct Letter of Appointment. Regular employees are
employees whose terms and conditions of employment are covered by the Personnel Policy Manual.
Bargaining unit employees are those employees whose positions are covered by collective bargaining
agreements (CGAs) and whose terms and conditions of employment are covered by CBAs.
Based on the records in the City's Master Employee Report, nearly half of the City workforce is
the bargaining unit employee. There are four CBAs for blue collar, white collar, police, and fire
employees, respectively. The City and the Unions affirm their joint opposition to any discriminatory
policies and practices to the extent prohibited by law related to employment. The CBAs set out
provisions relating to grievance and arbitration, hours of work, compensation, benefits, etc. The CBAs
also provide specific details regarding recruitment and selection, discipline and performance
management, professional development, as well as promotion and demotion.
Table 3: City Workforce by Employee Types
Contract Employees
97
12%
Regular Employees
86
11%
Bargaining Unit Employees
451
56%
SEIU Florida Public Services Union, CTW, CLC—
144
32%
Blue Collar
SEIU Florida Public Services Union, CTW, CLC—
81
18%
White Collar
Palm Beach County Police Benevolent
117
26%
Association
67
International Association of Fire Fighters, 109 24%
Local 1891
Total Employees 807*
Note: The percentages of contract employees, regular employees, and bargaining unit employees do not
add up to 100% because of drop plan, part-time, and temporary employees.
Workforce by Gender
Based on the records in the City's Master Employee Report, the City workforce is currently 28%
female and 72% male. Compared to the City's gender demographics in 2019, women are
underrepresented in the City workforce (See Table 4). However, the representation of female increases
substantially when looking at the regular employees and contract employees, which are 49% and 44%
respectively. As shown in Table 4, the female -male parity is stronger regarding the regular employees
and contract employees, while is weaker regarding the bargaining unit employees. This is
understandable in that male police employees and fire employees are in the majority in the bargaining
unit employees.
Table 4: City Workforce by Male and Female
Total
Bargaining
Total
Contract
Regular
Employees
Unit
Population
Employees
Employees
Employees
Female 229 28%
43 44%
42 49%
92 20%
41,385 52.6%
Male 578 72%
54 56%
44 51%
359 80%
37,294 47.4%
Total 807
97
86
451
78,679
Workforce by Race and Ethnicity
Based on the records in the City's Master Employee Report, the City workforce identifies as 0.4%
American Indian, 1.1% Asian, 28.9% Black, 12.8% Hispanic or Latino, 0.1% Native Hawaiian and 55.9%
White, and 0.9% of employees have two or more races. Compared to the total population of the City in
2019, Asian, Black, and Hispanic or Latino are underrepresented in the City workforce, while White
residents have a greater representation in the City workforce (See Table 5).
As presented in Table 5, the demographics of the total employee population are close to the
contract employees, regular employees, and bargaining unit employees. Over half of the employees are
White. The proportion of White employees is nearly 60% in the contract workforce. The proportion of
Black employees is nearly 30% across different types of employees. The proportion of Hispanic or Latino
employees reaches around 20% in the regular workforce.
Table 5: City Workforce by Race and Ethnicity
Workforce by Age
Based on the records in the City's Master Employee Report, Generation X is the largest group in
the City workforce, followed by the Millennials and Baby Boomers. As Table 6 shown, baby boomers
account for a larger proportion in the contract employees than in the regular and bargaining unit
employees. Over half of the regular employees are Generation X. Regarding bargaining unit employees,
the largest group is Millennials.
Total
Contract
Regular
Bargaining
Total
Employee
Employe
Employe
Unit
Populati
S
es
es
Employees
on
American Indian/Alaskan Native
3
0.4%
3
0.7%
0.1%
Asian
9
1.1%
1
1%
1
1.2%
5
1.1%
2.5%
Black or African American
23
28.9
2
27.8
2
29.1
135
29.9%
30.3%
3
%
7
%
5
%
Hispanic or Latino
10
12.8
1
12.4
1
19.8
58
12.9%
16.3%
3
%
2
%
7
%
Native Hawaiian or Other Pacific
1
0.1%
1
0.2%
0.0%
Islander
White
45
55.9
5
57.7
4
50%
244
54.1%
49.6%
1
%
6
%
3
Two or More Races
7
0.9%
1
1%
5
1.1%
2%
Total
80
9
8
451
7
7
6
Workforce by Age
Based on the records in the City's Master Employee Report, Generation X is the largest group in
the City workforce, followed by the Millennials and Baby Boomers. As Table 6 shown, baby boomers
account for a larger proportion in the contract employees than in the regular and bargaining unit
employees. Over half of the regular employees are Generation X. Regarding bargaining unit employees,
the largest group is Millennials.
Table 6: City Workforce by Age
Demographic Representation by Occupational Categories
The City workforce gender and race/ethnic demographics vary across occupational categories.
Table 7 shows the City workforce demographics by Equal Employment Opportunity (EEO) -4 category.
The EEO -4 category is extracted from the reports that collected by the U.S. Equal Employment
Opportunity Commission from states and localities. There is a stronger representation of females in
Administrative Support and Para -Professionals categories. A larger number of male employees are in
Protective Services, Service Maintenance, Skilled Crafts, and Technicians categories. There is room for
improvement at the City in terms of gender representation in those categories. The White employees
comprise over 50% in Officials/Administrators, Professionals, Protective Services, and Technicians
categories. Black, Indigenous, and People of Color (BIPOC) comprise over 60% in Service Maintenance
and Skilled Crafts categories. There is room for improvement in the Officials/Administrators,
Professionals, Protective Services, and Technicians categories.
Total
Contract
Regular
Bargaining Unit
Employees
Employees
Employees
Employees
Before 1945
9
1.1%
Baby boomers
(1946-1964)
185
22.9%
33 34.0%
20
23.3%
50 11.1%
Generation X
(1965-1980)
317
39.3%
40 41.2%
44
51.2%
193 42.8%
Millennials
(1981-1996)
283
35.1%
24 24.7%
22
25.6%
203 45.0%
Generation Z
(1997-2015)
13
1.6%
5 1.1%
Total
807
97
86
451
Demographic Representation by Occupational Categories
The City workforce gender and race/ethnic demographics vary across occupational categories.
Table 7 shows the City workforce demographics by Equal Employment Opportunity (EEO) -4 category.
The EEO -4 category is extracted from the reports that collected by the U.S. Equal Employment
Opportunity Commission from states and localities. There is a stronger representation of females in
Administrative Support and Para -Professionals categories. A larger number of male employees are in
Protective Services, Service Maintenance, Skilled Crafts, and Technicians categories. There is room for
improvement at the City in terms of gender representation in those categories. The White employees
comprise over 50% in Officials/Administrators, Professionals, Protective Services, and Technicians
categories. Black, Indigenous, and People of Color (BIPOC) comprise over 60% in Service Maintenance
and Skilled Crafts categories. There is room for improvement in the Officials/Administrators,
Professionals, Protective Services, and Technicians categories.
70
Table 7: City Workforce Demographics by EEO -4 Category
Note: BIPOC stands for Black, Indigenous, and People of Color. BIPOC includes Black or African
American, American Indian/Alaskan Native, Asian, Native Hawaiian or Other Pacific Islander, and
Hispanic or Latino.
Overview of Personnel Policies and Practices Related to Recruitment, Hiring and Development
Organization for Personnel Administration
Organizations for personnel administration for the City of Boynton Beach include the City
Manager and the Human Resources and Risk Management Department. The Human Resources Director
is responsible for developing and administering recruitment, hiring, and employee development. The
Human Resources Director is appointed by the City Manager, who appoints, promotes, transfers,
removes, demotes, suspends, or disciplines all subordinate employees (City of Boynton Beach Personnel
Policy Manual, 2011, p.5). The City Manager is responsible to the City Commission for the administration
of the personnel system.
Recruitment and Hiring
The Hiring Process
Total
Female
Male
White
BIPOC*
Employees
Administrative Support
86
10.7%
70
81.4%
16
18.6%
42
48.8%
44
51.2%
Officials/Administrators
23
2.9%
7
30.4%
16
69.6%
15
65.2%
8
34.8%
Para -Professionals
56
6.9%
34
60.7%
22
39.3%
27
48.2%
29
51.8%
Professionals
131
16.3%
48
36.6%
83
63.4%
86
65.6%
45
34.4%
Protective Services
220
27.3%
39
17.7%
181
82.3%
157
71.4%
63
28.6%
Service Maintenance
166
20.6%
14
8.4%
152
91.6%
57
34.3%
109
65.7%
Skilled Crafts
49
6.1%
1
2.0%
48
98.0%
18
36.7%
31
63.3%
Technicians
75
9.3%
15
20.0%
60
80.0%
48
64.0%
27
36.0%
Total
806
228
28.3%
578
71.7%
450
55.8%
356
44.2%
Note: BIPOC stands for Black, Indigenous, and People of Color. BIPOC includes Black or African
American, American Indian/Alaskan Native, Asian, Native Hawaiian or Other Pacific Islander, and
Hispanic or Latino.
Overview of Personnel Policies and Practices Related to Recruitment, Hiring and Development
Organization for Personnel Administration
Organizations for personnel administration for the City of Boynton Beach include the City
Manager and the Human Resources and Risk Management Department. The Human Resources Director
is responsible for developing and administering recruitment, hiring, and employee development. The
Human Resources Director is appointed by the City Manager, who appoints, promotes, transfers,
removes, demotes, suspends, or disciplines all subordinate employees (City of Boynton Beach Personnel
Policy Manual, 2011, p.5). The City Manager is responsible to the City Commission for the administration
of the personnel system.
Recruitment and Hiring
The Hiring Process
71
Based on the document entitled "City of Boynton Beach Hiring Process" that was last updated in
July 2018, Figure 14 describes the following steps in the recruitment and hiring process. In the first step,
the hiring department forwards to Human Resources a position requisition. The request is made
electronically using the requisition form of the NEOGOV Online Hiring Center (OHC). Once receiving the
approval from the Department Head, the Director of Human Resources, and the City Manager, Human
Resources then proceed with the next step of the hiring process. In the second step, the Human
Resources team works in close partnership with the hiring manager to plan the process, including
reviewing the job descriptions, setting minimum requirements, and deciding preferred requirements.
Next, Human Resources will develop the job posting using NEOGOV's Insight and publish it to the
website (www.governmenteobs.com/careers/boyntonbeachfl). Alternative methods of advertising
include but are not limited to newspapers, journals, professional organization websites, other agencies,
and social media. Once Human Resources has officially announced a job vacancy through the posting of
an Employment Opportunity notice on the City's website, the official recruitment process has begun.
Individuals desiring consideration for employment must submit an Application for Employment to
Human Resources via the City's website. The City has "banned the box" on its employment applications
for all positions (except sworn law enforcement officers and certified firefighters as there are statutory
criminal convictions that result in immediate disqualification).
In the screening step, the Human Resources team conducts the initial screening of the
applications and forwards those that meet the minimum requirements to the hiring manager for
additional review. In the meantime, applicants may track the status of their applications by logging in to
their account at any time. Human Resources will conduct phone screens with candidates who meet the
minimum qualifications to ensure that they understand the position requirements, the pay range, and
the schedule. The next step is an additional round of screening that is completed using assessments.
The assessments are scheduled and generally administered by Human Resources. Once evaluated by the
72 11
hiring committee, a list of candidates who have passed the assessments are forwarded to the hiring
manager. After receipt of the eligible candidates, Human Resources prepares, coordinates, and conducts
the structured interviews. Human Resources processes the interview scores for each candidate. Once
that is done, the list of scores is provided to the hiring manager for review. All candidates with a passing
score can be considered for the position. The hiring manager will review the interview scores along with
any other relevant information about the candidates when making the final hiring selection. Human
Resources then gets approval (electronically through NeoGov) from the Human Resources Director and
City Manager to make a conditional offer to the selected candidate.
The conditional offer of employment is conditioned on successful completion of a thorough
background check including a criminal history report, references, public records check, verification of
education and credentials and, when applicable, pre-employment physical, drug screen, and motor
vehicle check. The Human Resources Director reviews the candidate's complete hiring file including
background check information. If a candidate has a criminal history, the Director of Human Resources
conducts an individualized assessment, consistent with the EEOC guidance, as outlined in the City's
Administrative Policy No. 01-001: Consideration of Background Checks in Employment Decisions. The
Human Resources Director and then the City Manager will complete their reviews to approve
(electronically through NeoGov) a final offer of employment. Human Resources will then extend the
final offer of employment to the candidate and establish a start date. New hires are required to
complete a twelve-month probationary period.
73
Figure 14: Steps in the Hiring Process
Position Requisition
Planning to Hire
Advertizing
Screening
Assessments
Interviewing
LSelecting
Offer of Employment
Recruitment Practices
The City's recruitment objective is to efficiently recruit and retain the best -qualified people while
recognizing and encouraging the value of diversity. Based on the data from the City's EEO Summary
Recruitment Report, the degree of diversity in the applicant pool is examined. Figure 15 presents the
percentage of job applicants by gender from 2016 to 2020. Over this period, the percentage of male
applicants is greater than that of female applicants. In 2017 and 2019, the percentage of male applicants
declined compared to the other years. In addition, in 2017 and 2019, the percentages of male and
female applicants were close at nearly 50%.
74
Percentage of Applicants by Gender
70%
60%
50%
40%
30%
20%
10%
0%
2016 2017 2018 2019 2020
■ Male Female Not Answered
Figure 15: Percentage of Applicants by Gender, 2016-2020
Figure 16 shows the percentage of job applicants by race and ethnicity during 2016-2020. The
most applicants are African Americans, accounting for nearly 40% of all the applicants. The second
largest group is White applicants, accounting for nearly 35% of all the applicants. Approximately 15% of
the applicants are Hispanic or Latino.
45%
40%
35%
30%
25%
20%
15%
10%
5%
0%
Percentage of Applicants by Race and Ethnicity
11111111111111111 ■■NO■
W AA H 2M AS Al NH
■ 2016 ■ 2017 2018 2019 ■ 2020
Figure 16: Percentage of Applicants by Race and Ethnicity, 2016-2020
75
Notes: W = White, AA = Black or African American, H = Hispanic or Latino, 2M = Two or More Races, AS =
Asian, Al = American Indian/Alaskan Native, NH = Native Hawaiian or Other Pacific Islander.
Retention and Development
Compensation
The City of Boynton Beach provides the basic compensation, such as overtime pay and
compensatory time, as well as the incentive pay and bonus awards to retain and motivate employees to
improve their performance. The City provides the overtime compensation for employees. Overtime pay
may be given only for authorized or directed time worked more than 40 hours in a seven-day workweek.
In addition, an employee eligible for overtime may be granted compensatory time off at the same rate it
was earned. Employees may accumulate a maximum of 80 hours of compensatory time (City of Boynton
Beach Personnel Policy Manual, 2011) or an amount of hours as specified in individual Collective
Bargaining Agreements. Compensatory time may be taken as earned subject to the approval of the
Department Head/Designee who shall schedule the time off to meet the operating requirements of the
Department.
The City has established the Incentive Pay System to motivate and reward employees based on
their job performance and contributions to the accomplishment of major objectives. The activities
include but are not limited to cost efficiencies, improvements in operations, productivity enhancements,
and so forth. The purpose of the system is to "promote continuous improvement and quality
performance through individual and cooperative effort, assist in career development and advancement,
identify individual training needs, determine suitability for assignment, effectiveness in the assigned
position and identify individual ability for assuming more responsibility" (City of Boynton Beach
Personnel Policy Manual, 2011, p.15).
In addition, the City Manager is authorized to approve a bonus up to $500.00 when such a
bonus is justified, in writing, by the Department Head. By this approach, the immediate supervisor and
76
Department Director can recognize top performance and reward the employee promptly. A separate
allowance will be provided for the bonus and administered under the direct control of the City Manager.
Only one bonus will be allowed to an employee in a fiscal year.
Benefits
In addition to the compensation, the City offers a variety of employee benefits to attract and
retain the best employees. First, full-time employees are eligible for City -observed holidays with pay.
Second, employees (who work at least 30 hours per week) are eligible for insurance benefits effective
the first day of the month following thirty days of employment. Third, each full-time employee earns
vacation leave according to their years of service. Fourth, sick leave with pay is granted to full-time
employees, regarding personal sickness, disability, legal quarantine or because of exposure to
contagious disease. Additionally, 40-80 hours (depending on bargaining agreement) per fiscal year may
be taken for employees for the illness of a family member. The City also offers an emergency cash out of
vacation or sick leave if employees experience a hardship.
Additionally, for those employees who have continuous attendance at work, they are eligible to
receive eight bonus vacation hours on a quarterly basis. For those employees who are members of
military reserve units and who must attend annual training sessions, they are entitled to a leave with
pay. For those employees who face the event of the death of a family member, they are entitled to paid
compassionate leave with 24 hours or 40 hours if leaving the State. For those employees who retire, the
benefits are set forth in the pension plan at the time of retirement.
The City's comprehensive benefit package can be found at the employee benefit webpage
(www.boynton-beach.org/join-our-team/employee-benefits). The City offers group medical insurance
for all employees and their eligible dependents including the domestic partners. The City attaches great
importance to the employee health and wellness. The City has partnered with a company to offer an
Employee Health and Wellness Center that provides clinic services for employees and their dependents
77
as well as retirees who are actively enrolled on the medical insurance plan. The Boynton Beach B.O.D.S.
(Better Our Daily Selves) wellness program provides health screenings, education tools, and programs
that help employees achieve their healthy lifestyle goals.
Professional Development
The City has provided professional development opportunities to support the continuing
education and training for their employees, to help retain employees and increase the available talent
pool for leadership. The City used to offer in-house training programs pertaining to a wide variety of
topics, such as computer programs, supervisory and management skills. It is our understanding that in
this budget year a position dedicated to organizational development and training has been reinstated.
Regarding the external training, the City provides the leave with pay and tuition assistance to support
the employees. Employees have access to the Boynton Beach City Library and its Digital Library to
improve their expertise and skills.
To better solve the possible conflicts of compensation, benefits, and other working conditions,
the City deals with formal grievances promptly. Grievances are coordinated by the Human Resources
Director who ensures the appropriate Department Director is notified and timely files a response.
Performance Appraisal
Accredited departments conduct annual employee evaluations. Human Resources has recently
begun to deploy Perform (a NeoGov module) to aid supervisors and managers in providing "real-time
feedback" to their employees. The City also uses Performance Improvement Plans in situations where
an employee's probation needs to be extended, when an employee's performance has deteriorated
over a period of time, and when an employee's performance falls below standard following deployment
of a new system or process. The Performance Improvement Plan describes the employee's current
performance issues, states the performance expectations for required area(s) of improvement, and
provides an action plan to guide the employee toward improving performance within a defined and
monitored timeframe.
Discussion
The City has made a clear commitment to support the values of diversity, equity, and inclusion
in the workforce. However, there is untapped potential for opportunities to strengthen the City's
workforce. Increasing the representation of females is one such opportunity. Representation can be
viewed in block or segmented equality terms. Block equality focuses on whether differences are present
between groups. Segmented equality looks at differences within a specific group or category of people
(Frederickson 2010). Over half of the total population in the City of Boynton Beach is female, but
females only account for 28% of total City employees. In the bargaining unit employees, the proportion
is even smaller, which is 20%. More importantly, only 30% of the Officials/Administrators are female. In
addition, although the workforce by race and ethnicity representation is mostly consistent with that of
the total population in the City, there is room for improvement in the representation of Asian, Black,
and Hispanic or Latinos in the City workforce. Regarding the representation by occupational categories,
the proportion of White Officials/Administrators, Professionals, and Technicians is much greater than
that of their BIPOC counterparts.
The City has a solid track record of the adoption of several HR policies and practices to promote
diversity, equity, and inclusion. Examples include paying attention to the gender and race/ethnicity of
the job applicants in terms of the recruitment, and providing domestic partner benefits for employees to
achieve a fair and equitable work environment. In addition to the existing policies and practices, more
work remains to be done. Regarding the City's hiring process, a clearer guidance on how to efficiently
recruit the best -qualified people while recognizing and encouraging the value of diversity represents
another opportunity to strengthen the workforce. Furthermore, when selecting job candidates, their
79
potential commitment to diversity, equity, and inclusion in the workplace, in addition to the professional
expertise and skill, can also be assessed. Regarding retention and development, staff training should
include more coaching on fostering an organizational culture that is committed to the values and
practices of diversity, equity, and inclusion. These and other opportunities for advancing the values of
diversity, equity, and inclusion are incorporated into the Recommendations, below.
Commentary
The City of Boynton Beach has effective HR policies and procedures in place that comply with
federal and state EEO and AA legislatively mandated regulations. As such, the City is poised to "go
beyond compliance" by taking a holistic approach to advancing a more diverse, equitable, and inclusive
workforce. The initiation of this City Assessment is a tangible and visible first step in the process. While
specific recommendations and a Plan of Action are presented later in this document, an immediate next
step would be the hiring of an Equity and Inclusion Director charged with spearheading the City's
systemic and synergistic approaches.
80
BENCHMARKING TO BEST PRACTICES
Rationale for Selection of Cities
The cities were selected "opportunistically." The primary three selection criteria for inclusion
were 1) that the jurisdiction had experienced a "critical incident" as a catalyst for reform, 2) that the city
had begun to advance an equity lens in its operations, and 3) it was willing to engage with our team
members and participate in interviews. Each of the four cities can be considered a "Best in Class" city,
with the caveat that they are amongst a number of small -to -medium sized cities who could be similarly
identified. Given the variation across the cities, direct comparisons between the jurisdictions are not
made. Rather, generalities in terms of commonalities and differences are presented.
81
N
Geographical Location of Cities j�
W � E
S
S
Figure 17: Locations of Comparison Cities and Boynton Beach
Figure 17 presents the geographical location of the City of Boynton Beach and the four
comparison cities. The selected cities represent different regions of the United States. The City of
Tacoma is located in the northwestern part of the United States, Redwood City in the southwest,
Cambridge in the northeast, and Gainesville in the southeast. The figures that follow present
comparison data between the four selected cities and the City in terms of population, racial
demographics, educational attainment, median household income, percentage of residents in poverty,
and homeownership.
82
Population Estimate
250,000
200,000
150,000
100,000
50,000
0
Boynton Beach, Tacoma, WA Cambridge, MA Redwood City, Gainesville, FL
FL CA
Figure 18: Population Estimates of Boynton Beach and Comparison Cities. Data sourced from the U.S.
Census Bureau.
Figure 18 presents the population estimate of the City and the comparison cities. With the
exception of the City of Tacoma, all of the comparison cities have a population under 150,000.
Race & Ethnicity
70%
60%
50%
40%
30%
20%
10% I
a1
`eP
�4�
■ Boynton Beach, FL ■ Tacoma, WA Cambridge, MA
Redwood City, CA ■ Gainesville, FL
Figure 19: Percentage of Racial and Ethnic Demographics. Data sourced from the U.S. Census Bureau.
83
Figure 19 presents the percentage of White — Non -Hispanic, Black or African American, White —
Hispanic, Non -White Hispanic, Asians, Native Americans, and people reporting two or more races in the
City and the comparison cities. For all the cities, the group with the highest percentage was non -
Hispanic White. We note that this data is based on 2019 Census data. The 2020 Census data collects
information on race and ethnicity in a far more sophisticated manner but is not available at the time of
this report. Boynton Beach's demographic distribution is similar to the other cities except that it has a
larger Black population (30.3%) than others with Gainesville at 21.8% and all others below 11%, and a
lower Asian population at 2.5% compared to the average for these cities of 9.9%.
Figure 20: Percentage of Educational Levels of Boynton Beach and Comparison Cities. Data sourced from
the U.S. Census Bureau.
Figure 20 presents the educational attainment of residents in the City and the comparison cities
by percentage. All of the cities have over 80% of residents attaining a high school diploma or more,
while only the City of Cambridge has over 60% of its residents having a bachelor's degree or higher.
Educational Attainment
100%
80%
60%
40%
20%
'0%
Boynton Beach,
Tacoma, WA Cambridge, MA Redwood City,
Gainesville, FL
FL
CA
r Percentage of High school graduate or higher
. Percentage of Bachelor's degree or higher
Figure 20: Percentage of Educational Levels of Boynton Beach and Comparison Cities. Data sourced from
the U.S. Census Bureau.
Figure 20 presents the educational attainment of residents in the City and the comparison cities
by percentage. All of the cities have over 80% of residents attaining a high school diploma or more,
while only the City of Cambridge has over 60% of its residents having a bachelor's degree or higher.
11 84
Median Household Income
$140,000
$120,000
$100,000
$80,000
$60,000
$40,000
$20,000
$0
Boynton Beach, Tacoma, WA Cambridge, MA Redwood City, Gainesville, FL
FL CA
Figure 21: Median Household Income of Boynton Beach and Comparison Cities. Data sourced from the
U.S. Census Bureau.
Figure 21 presents the median household income of Boynton Beach and the comparison cities.
All cities fall under $120,000, with the lowest median household income occurring in the City of
Gainesville under $40,000.
100%
90%
80%
70%
60%
50%
40%
30%
20%
10%
0%
Percentage of People in Poverty
■ ■
Boynton Beach, Tacoma, WA
FL
■
Cambridge, MA Redwood City, Gainesville, FL
CA
Figure 22: Percentage of people in poverty in Boynton Beach and Comparison Cities. Data sourced from
the U.S. Census Bureau.
85
Figure 22 presents the percentage of people that are in poverty in the City and the comparison
cities. Matching with the lowest median household income in figure 16, the City of Gainesville has the
highest percent of people in poverty of the cities in the figure. The City of Redwood has the lowest
percentage of people in poverty.
l00%
90%
80%
70%
60%
50%
40%
30%
20%
10%
0%
Boynton Beach,
FL
Homeownership
11111111
Tacoma, WA Cambridge, MA Redwood City, Gainesville, FL
CA
s Percentage of Homeowners Percentage of Renters
Figure 23: Percentage of Owners Occupying Homes and Renters in Boynton Beach and Comparison Cities.
Data sourced from the U.S. Census Bureau and SimplyAnalytics.
Figure 23 presents the percentage of people who own homes and those who are renters in the
City and the comparison cities. The City of Cambridge has the highest percentage of renters, while the
City of Tacoma and Redwood City have relatively similar homeowners and renters.
Northwest Case: City of Tacoma, Washington
Table 8: City of Tacoma Community Profile
Demographic
Population
Population
203,481
Median Household Income
$52,042
Age
Persons under 5 years
6.4%
Persons under 18 years
21.6%
Persons 65 years and over
13.0%
City Workforce
86 41
Total
Minority
Female
3,617
866 (23.94%)
1,168(32.29%)
Race/Ethnicity
White
65.4%
Black or African American
10.5%
American Indian and Alaska Native
1.2%
Asian
9.0%
Native Hawaiian and Other Pacific Islander
1.1%
Hispanic or Latino
11.5%
Table 8: ICMA Equity & Inclusion Toolkit, p. 46 (see also Smith, p. 12).
The port city of Tacoma is one of a relatively small number of cities that are on the forefront of
addressing and advancing equity and inclusion. The goal for the City was not just transforming HR
systems best practices, but "anti -racist systems transformation" - undoing institutional and systemic
racism. Starting internally, city leaders' attention was placed on recruiting, hiring, and retention
practices, underscoring their commitment to developing a city workforce that better reflects the
community it serves.
In 2015, the Office of Equity and Human Rights (OEHR) was created, with a director and 10 full-
time staff. This took place within the context of police transformation in the City, and with a sense of
urgency to move forward. The scope of the Office's portfolio is both external and internal. Externally,
the focus is on "healing the heart of Tacoma" in response to the passage of Resolution 40622, An Anti -
Racist Tacoma. The Racial Equity Framework is the foundation of the City's equity work, and works with
a number of community commissions (such as Disability Rights, and Human Resources) to empower the
commissions. The discussion that follows focuses on the internal -facing work only.
The equity infrastructure of the City extends from the OEHR to include a Racial Equity Action
Plan (REAP) for every City department, designed to improve the diversity of workplaces, produce
tangible outcomes (not just transactional), and strengthen community engagement. An Equity and
Empowerment Think Tank comprises representatives from each department. Their work considers the
area to focus on first "because there are so many." The OEHR conducted, and presented to the City
87
Council on May 11, 2021, a Workforce Equity Study, in consultation with GARE. According to the City's
Interim Chief Equity Officer, "the GARE network was instrumental in operationalizing [our] racial equity
work."
The OEHR addressed the policies and procedures that shaped the internal makeup of the City's
workforce. This process reviewed recruitment, hiring processes, employee education, and succession
planning. It revealed flaws in hiring processes that involved unneeded requirements (e.g., driver's
license requirement for an accountant position), early exclusion of qualified candidates, or unneeded
measures of candidate fitness (Smith, p. 12). Mary Morrison, Organization Development Manager,
underscores these efforts: "'Qualified' — it is used as code. We need to challenge what we mean by
qualified" (Smith, p. 18). She also speaks to the pipeline problem discussed above: "We have to be more
intentional about looking at the pipeline for both gender and race. There are jobs so deeply designed for
men and we don't even think to challenge or change them" (as cited in Smith, p. 21).
In a relatively short time, the OEHR has redesigned multiple internal workforce policies and
procedures. According to the City's Interim Chief Equity Officer, "we are now successful in hiring a more
diverse workforce." Interviewing practices have been modified to include diverse interview panels. To
improve retention, new employees are assigned mentors who provide guidance and advice. The OEHR
created useful internal documents, such as a handbook called Recruiting, Hiring, and Retention: Applying
an Equity Lens to Recruiting, Interviewing, Hiring & Retaining Employees. The handbook, which has been
distributed to local governments nationwide, identifies tangible ways to apply an equity lens to hiring.
These measures included reviewing job descriptions, eliminating unneeded requirements (see also the
discussion of "Ban the Box"), including statements about diversity, and the development of appropriate
supplemental questions about the candidate's ability to work in an environment serving a diverse
community. They conducted multiple and ongoing training sessions for staff around race, unconscious
bias, and equity. Future work will include efforts to strengthen succession planning, adoption of more
88
accurate performance measures for positions (Smith, p. 13), and the ongoing development and
assessment of department -wide anti -racist strategic plans.
In an interview with the City of Tacoma's interim Chief Equity (CE) Officer on June 7, 2021, she
identified their primary focus as introducing the conversation on race. This focus has two dimensions -
equity training for all employees, and engaging in "uncomfortable" conversations with executive
leadership. The Equity 101 training relates to the history of the City and racial injustices. She indicated
that the employees were largely unaware of this history. The training is in its fifth year, and all
employees have now received this training. "We led with race intentionally." Staff pushed back on the
single focus on African Americans, but the strategy was that by raising up blacks, "we will lift all minority
groups." The language used in the training presented roadblocks. Discussion of a "white supremacist
culture" was objectionable to many staff. In answer to the question, how do we want to talk about this,
the answer was to "bring data to the forefront, to disaggregate all the data." The goal was, as stated
above, not just transforming HR systems best practices, but "anti -racist systems transformation" -
undoing institutional and systemic racism by "comprehensive change that fundamentally enhances and
radically re -imagines the way we operate as an organization and ultimately, the way we serve you
(www.citvoftacoma.org).
For the executive leadership, it was considered essential to "bring them to a place of
understanding." Over a period of six weeks, "uncomfortable and emotional" conversations took place,
to hear about the "hard stories" of the experience of minority staff and administrators, and to be
"vulnerable" in the process. Spending more time with the executive leadership was essential before
making recommendations for systems change.
The overarching goal of this foundational (and ongoing) work is anti -racist systems
transformation. It's "so important for HR professionals to understand a welcoming environment. It's not
just about hiring... it's not just about having a diverse applicant pool, it's also having a diverse interview
89
panel [who have taken unconscious bias training], and it's about how best to manage a diverse
workforce." It is also about having sufficient bandwidth to carry the work forward. In this regard, equity
committees with diversity champions have been established in each department to carry the work
forward. The CE Officer identified a number of challenges, not least that managers are now tasked with
managing a more diverse workforce without the accompanying training on how best to do so. She also
cited problems of retention, especially women of color. The City's equity work is ongoing, and builds
upon its impressive record of accomplishments to date.
Northeast Case: City of Cambridge, MA
Table 9: City of Cambridge Community Profile
Demographic
Population
Population
118,927
Median Household Income
$103,154
Age
Persons under 5 years
4.4%
Persons under 18 years
12.2%
Persons 65 years and over
11.1%
City Workforce
Total
2,775
Minority
1,020 (36.75%)
Female
1,304 (46.99%)
Race/Ethnicity
White
66.1%
Black or African American
10.7%
American Indian and Alaska Native
0.2%
Asian
16.7%
Native Hawaiian and Other Pacific Islander
0.1%
Hispanic or Latino
9.5%
Table 9: Data from U.S. Census Bureau; City of Cambridge April 2021 Executive Summary
Cambridge is a "very progressive city with very civic -minded and engaged residents" (personal
communication with Betsy Allen, July 14, 2021). Within this context, the City of Cambridge is committed
to a progressive approach to diversity, equity, and inclusion. According to the City's website, the Office
of Equity and Inclusion (OEI) upholds, reaffirms, and guides the City's commitment to equal employment
M
opportunity; helps City departments build and support a workforce that continually reflects the diversity
of the people the City serves; and conceptualizes and cultivates equity and inclusion as singular
organizational priorities, placing these principles at the heart of what the City's workforce does. All of
this, in turn, helps the City of Cambridge to both maintain a workplace culture where all employees can
flourish and deliver high quality, exceptional customer service to all (www.cambridge ma.gov).
The organizational structure of the City facilitates accountability and responsibility for advancing
equity and inclusion. The Office of Equity and Inclusion (OIE) has an overarching mandate across all 44
City departments. The Director reports to the City Manager. The Personnel Director reports to the
Assistant City Manager of Fiscal Affairs who in turn reports to the City Manager. This reporting structure
avoids any operational issues between equity and inclusion, and personnel. Parenthetically, the
Department of Workforce Development reports to the Assistant City Manager for Human Services, and
its focus is on professional development within the department itself.
OEI's work includes, among other things, monitoring all equal employment opportunity and
non-discrimination laws to ensure compliance, and monitoring the workplace climate for the presence
of behaviors, actions, inactions and personal interactions that may lead City of Cambridge employees to
feel disrespected, devalued, or unwelcomed. Further, OEI maintains and evaluates demographic data
and processes workforce reports for the Equal Employment Opportunity Commission; ensures
adherence to Affirmative Action Plan goals; investigates formal complaints of alleged discrimination; and
reviews and approves construction bids for compliance with the Minority Business Enterprise Program.
In addition to these legal and regulatory compliance actions -- vital and bedrock components of OEI's
work in support of both the City and its employees -- the department uses a four -pronged approach and
strategic directions to accomplish its overall mission and achieve its goals (www. cam bridgema.gov):
• OEI provides structure for all City diversity, equity and inclusion initiatives by formally aligning
the City's personnel policies in support of equity and inclusion. The processes of recruitment,
91
hiring, and promotion provide a salient example of such alignment. The Director of the OEI
characterizes these hiring processes as a three-legged stool:
o Structure and process aligned with respect to recruitment, hiring, and promotion (RHP);
documents are updated
o Leadership training on the updated RHP structure, processes and documents
o A comprehensive learning plan to train employees on the revised RHP processes at
every level (to begin in September 2021), thereby synergizing the efforts across the
organization.
Alignment is also central to the City's Anti -racism E&I Initiative. For the past three years, the
City has built teams of leaders and managers across departments to participate in bi-monthly
training focused on how people are to be treated. The training is intended to build competency
in how best to lead a diverse workforce, and includes training on micro -aggressions and cultural
competency.
• OEI advances departmental level implementation of diversity, equity and inclusion (DEI) efforts
through its Equity and Inclusion Partner (EIP) project. This is a targeted and strategic project
intended to operationalize DEI efforts at the departmental level by engaging with individual
departmental partners. Working in consultation, the OEI and the department develop a mini -
plan around specific interventions that the department needs (Police, Fire, and Public Works
departments' specific needs will differ from those of the department of Community
Development, for example), and then the personnel department is brought in to assist in the
department's efforts. Ongoing conversations between the OEI and the department builds buy -in
from the department and a sense of ownership. "The onus is on the department and the
spotlight is on them to take charge" (OEI Director personal communication).). The approach is
collaborative (motivated by "carrots" rather than "sticks"), and avoids much of the pushback
92
that can be expected from a more confrontational, directive, and punitive approach. To date,
the City has not tied employee performance to results, in recognition that it takes time to
develop buy -in. The OIE's philosophy is to let E&I approaches develop "organically"; that
managing a diverse workforce and advancing racial equity and inclusion is "not intuitive to most
people. We assume the best intentions and give them the support they need... We don't have
the stick because you have to have the three-legged stool and change hearts and minds and
have the structure to support it" (Ms. Allen).
• OEI collaborates with the City Manager's Office to equip leadership and management staff with
adaptive and cultural competency skills through targeted and continuous learning and best
practices seminars.
• OEI facilitates and institutionalizes increased antiracism, diversity, equity and Inclusion training
for staff at all levels. The training consists of bi-monthly seminars and is mandatory for selected
participants.
An interview with the Director of the OEI on June 15, 2021 was further instructive. She indicated
that the City "had been making [DEI] strides since the 1990s with Valuing Diversity, our mandatory half
day workshop for all new employees." The City's Police Department came under scrutiny in 2009 with
the Henry Louis Gates incident (https://www.nytimes.com/2009/07/21/us/21gates.htmi) which led to
reforms in the Police Department. The City's far-reaching DEI efforts were launched almost a decade
later.
In speaking about any initial pushback, she responded that "pushback isn't the right word."
When she hears from departments that "we don't have time [to consider E&I efforts, it's not my job]",
her office "tackles that head on — you will be doing your job through an equity lens — it is your job." She
stated that it "took a year for this to set in — you can't order them to do it."
93
The City is an associate member of GARS. The membership is "not exceedingly helpful but you
get out of it what you put into it, especially learning from peers. The resources and annual conferences
are additional member benefits.
As a final note, the City of Cambridge functions in a highly political environment. Not unlike the
other selected cities, any "airing of dirty laundry" about racial injustices is fraught with conflict. The City
embarked on a town hall listening tour to hear from the community and their workforce, and then "got
out in front with the communication. We've seen the light. We are intentional, deliberate and strategic
about being equitable and inclusive and we are taking several steps, and showing a good faith effort, to
buy some time with the community and put some dollars behind it" (Ms. Allen). Based upon the
experience of the OEI to date, this approach is proving effective.
Southwest Case: Redwood City, California
Table 10: Redwood City Community Profile
Demographic
Population
Population
85,925
Median Household Income
$117,123
_
Age
Persons under 5 years
6.3%
Persons under 18 years
21.4%
Persons 65 years and over
12.7%
City Workforce
Total
Minority
Female
Race/Ethnicity
White
58.6%
Black or African American
1.7%
American Indian and Alaska Native
0.7%
Asian
14.5%
Native Hawaiian and Other Pacific Islander
1.0%
Hispanic or Latino
35.4%
Table 10: Data from U.S. Census Bureau
94
The City of Redwood City is located in the heart of Silicon Valley and serves as the county seat
for San Mateo County. Redwood City has a rich history, and is the oldest city on the San Francisco
Peninsula (incorporated in 1867). It has long been considered a regional epicenter for progressive
thought and ideals sitting adjacent to Stanford University. The City is a charter city with a council-
manager form of government in a majority -minority jurisdiction. The City's vision and mission
statements are, respectively, a community where people of all backgrounds and income levels can
thrive; and building a welcoming Redwood City through collaboration, responsiveness and excellence
(www.redwoodcity.org 2020 Strategic Plan). The City is organized into ten Departments. The HR division
is one of three divisions within the City's Administrative Services Department, with a staff of seven.
The City has established a solid framework to address racial inequities that were detailed in a
2018 report by the County Health Department (Health Equity & Race, San Mateo County Health
Government Alliance on Race & Equity Initiative). As with the City of Tacoma, Redwood City
intentionally decided to lead with race — a transformative approach. Declaring that race matters —
structural racism, institutional racism, individual racism, and racial equity — the City moved to formalize
their commitment. Resolution No. 15877, adopted by the City Council on August 10, 2020, declared
"that black lives matter and [reaffirmed] the City of Redwood City's commitment to racial equity"
(www. redwoodcity.org). The Resolution commits the City to, in part, "[i]mproving diversity in its hiring
practices, promotions within City departments, and appointments to City boards, committees and
commissions, as well as rooting out all forms of bias, discrimination or harassment within City
government, wherever that may exist ... [and] [s]trengthening the City's commitment to diversity, equity
and inclusion within the City organization and in the provision of City services..." (Equity and Social
Justice Sub -Committee meeting, April 15, 2021). On October 12, 2020, the City's 2020 Strategic Plan was
amended to include the foundational principle, "Redwood City will put equity first, urging a collective
restart so that policies serve the entire community" (ibid).
95
More recently, the City has elevated diversity, equity and inclusion in a number of ways. The
context of 2020 — issues of racial equity and policing, and the budget cuts within the City's public safety
departments (Police and Fire) — became the catalysts for reform. In December 2020, the City's first
Equity and Inclusion Officer (E&I) joined the City Manager's Office. The first staff member is expected to
be hired in a few months, as a Management Fellow, a two-year contracted position that will report to
the E&I Officer. The E&I Officer (as does the Director of Human Resources) reports directly to the
Assistant City Manager for Administrative Services, focused internally (the other Assistant City Manager
is externally -focused on the community). This is viewed as an effective organizational structure, given
that the "City Manager is very interested in equity and inclusion... There are enough touch points with
the City Manager and the City Council in order to have power to be effective" (personal communication
with Briana Evans, July 13, 2021). The E&I Office has a budget of $550,000 for a two-year budget cycle
(2021-2022).
On March 8, 2021, the City Council Sub -Committee on Equity and Social Justice (E&SJ) was
created, consisting of three members of the City Council, appointed by the Mayor and serving for one-
year terms. The Committee, with the support of the Assistant City Manager (the E&I Officer serves as
staff liaison), "help[s] the City apply an equity lens to its policies and delivery of services, in accordance
with the City's Strategic Plan and Resolution 15877" (ibid). Among its other charges, it supports the City
staff's development and implementation of an Equity Plan that would include establishing metrics for
long-term change in the vein of a "movement evaluation."
Internal diversity, equity and inclusion (DEI) work is organized around five strategies crafted
from staff input on internal opportunities and challenges, namely:
- Honor the experiences and engage the leadership of people and groups most impacted
- Grow institutional capability and resilience to support an inclusive workplace
- Build strong, diverse career pipelines and promotional pathways
90
Facilitate transparent, open communication and feedback across and between levels in the
organization
Apply an equity lens in our work (ibid).
Key DEI actions include providing DEI -related training to staff (such as unconscious bias and
cultural humility training), strengthening feedback and reporting, improving internal communication,
and proactively affirming inclusion in HR processes (ibid). The City operationalizes equity through an
equity lens by seeking answers to the following questions: (www.redwoodcity.org, Diversity is a Fact,
Equity is a Goal, Inclusion is a Practice):
- Who would benefit or be burdened by this proposal?
- What do the various data tell us about who is affected?
- How do we engage those who are not often represented in decision-making or those most
impacted by inequities?
- Who sits at the decision-making table? Who has the power to invite or participate? Whose
interests are represented?
- How can we advance equity through the implementation of the policy or program?
- What unintended consequences might be produced by the program or policy?
- How will we be accountable to, and communicate with, the staff (and the community)
through implementation?
During two interviews with Redwood City's E&I Officer (on April 21 and July 13, 2021), we
learned that the Sub -Committee on E&S1 expects to submit a draft Equity Plan to the City Council at the
end of August (2021), some five months after the Sub -Committee was created. The goal is long-term
institutionalize change. The Plan will include an "anchor institution" strategy, an equity index, and
guidance to staff to how to include an equity lens to their work. The equity index will be refined over a
period of four months, during which time decisions will be made regarding which indicators to include.
97
The Equity Plan is modeled on the City of Long Beach Equity Toolkit (Long Beach Equity Toolkit). The E&I
Officer noted that the Long Beach toolkit "is more ascetically pleasing and more concrete" than the
GARE toolkit which she described as "hard to use for staff." In the meantime, she leads the IDEAL
Program (Inclusion, Diversity, Equity, Accessibility, and Leadership) in the City Managers Office. She is
working on all -staff training on applying an equity lens to the City's workforce, as a tactical strategy. As
part of this process, she is engaging with individual departments (including Police and Fire) to identify
short-term professional development needs, and to support long-term career advancement (e.g., Parks
Department).
In terms of pushback, the E&I Officer stated that there is "not a lot of pushback." Pushback was
evident, however, in a number of circumstances. For example, the City's Art Commission has
commissioned a racial equity mural. The feedback is that "this is not a good use of our government
dollars ... I don't believe racial equity is real." Another form of pushback is characterized as follows: "I
would like to see you do X and if you don't do this, then nothing is worth doing, nothing you're doing is
worth it". She stated that "we expect pushback, but it's challenging when pushback is from supporters".
Pushback from staff has been limited. Listening sessions with staff, a staff survey (see Appendix D), and
clarity around "communicating who is doing what" have proven effective. She stated that affordable
housing is the "most crucial issue of the City." As such, her office is examining the impact on the City's
workforce on recruitment and hiring. She is looking at living wages and whether the City is able to
develop a local preference in hiring; "there is a legal component to this." As a final note, the City has
linked up with five other cities who are interested in equity work but do not have the resources to hire
an E&I Officer.
98
Southeast Case: City of Gainesville, Florida
Table 11: City of Gainesville Community Profile
Demographic
Population
Population
133,068
Median Household Income
$34,004
Age
Persons under 5 years
3.9%
Persons under 18 years
13.2%
Persons 65 years and over
10.8%
City Workforce
Total
2,307
Minority
680 (29.48%)
Female
696 (30.17%)
Race/Ethnicity
White
65.4%
Black or African American
21.8%
American Indian and Alaska Native
0.4%
Asian
7.2%
Native Hawaiian and Other Pacific Islander
0.1%
Hispanic or Latino
11.9%
Table 11: Data from U.S. Census Bureau
The City of Gainesville has a well-developed diversity, inclusion, and equity organizational
infrastructure, and a documented robust process for identifying underrepresentation and
underutilization of women and minorities in the City's workforce. The Office of Equal Opportunity (OEO)
was established in 2018. The catalyst for action was a report released that same year from the
University of Florida Bureau of Economic and Business Research (the BEBR Report) which identified the
glaring racial disparities across Alachua County. Commissioner Johnson, an African-American woman,
committed to fund the Office with two full-time staff in a workforce of 2,000 plus employees. The
current staffing of the Office also includes one other equity specialist, and two additional lines, currently
vacant (an Equity Specialist and a Data Analyst). The OEO Director, a Charter Officer, reports to the
Commission as does the City Manager, with the HR Director reporting to the City Manager. Relatedly, it
is noted that in 2019, the City Commission passed a resolution "confirming that race and equity is a core
value that will be incorporated into the updated version of the City of Gainesville's Comprehensive
99 41
Plan... [which] serves as a guideline for governing the city over the next 10 years (Gail Johnson, The
Gainesville Sun, February 14, 2020). Workforce equity is included in the Plan "so that hiring, training and
promoting a racially and culturally diverse workforce within all departments, at all levels, is evident in
outcomes" (ibid).
The (interim) director has overall responsibility for the implementation of the Equal
Employment Opportunity Policy (EEOP) and the City's voluntary Affirmative Action Plan (AAP). It is noted
that the inaugural Director, Ms. Taneesha Marshall, resigned on April 30, 2021 in protest to "escape a
toxic situation" (see wcbj.com TV news for details).
In November 2002, the OEO was reorganized by a charter amendment, elevating the position of
Equal Opportunity Director as a Charter Officer reporting directly to the City Commission. In 2010, the
City Commission adopted the Dismantling Prejudices & Biases Initiative as an effort to address the issue
of racism, particularly institutional racism, and the centuries' long impact of such a phenomenon. In
2016, the Dismantling Prejudices & Biases Initiative was folded into the Citizens Diversity & Inclusion
Advisory Committee.
The OEO's mission is as follows: "Our office provides expertise, tools, data and programming to
promote diversity, equity and inclusion. We drive cultural transformation through education, policy
development and guidance, the celebration of diversity, and fair and objective responses to complaints
and concerns" (www.cityofgainesville.org/OfficeofEgualOpportunity/AboutOEO). In 2019, the OEO
broadened its mission which is reflected in its new name, the Office of Equity and Inclusion (OEI).
The OEI reviews all job descriptions, hires, transfers, demotions, promotions, and terminations
for compliance with equal opportunity laws, policies, procedures, and related guidelines, and monitors
voluntary affirmative action targets, providing on-going support to hiring managers and departments.
Voluntary means the AAP is not mandated by the federal government but both the EEOP and the AAP
are approved by the City Commission, making both documents enforceable.
100
Affirmative Action Plans analyze the composition of the workforce and determine areas in which
minorities and women are underrepresented or concentrated. A diagnostic component of the annual
AAP includes a job group analysis, which compares the representation of minorities and women in the
workforce with the estimated available qualified minorities and women who could be employed by the
City in positions. Other components include an availability analysis, a comparison of incumbency vs
estimated availability, placement goals, identification of problem areas by organizational unit and job
group, hires, promotion practices, compensation systems, and the development and implementation of
action -oriented programs. These programs are intended to remove identified barriers, expand
employment opportunities, and produce measurable results. (Further details are available at
www.CityofGainesville/OfficeofEgualOpportunity/AffirmativeActionEgualOpportunity/AffirmativeAction
Plans(AAP). An annual Diversity Work Plan is also required by each department. The Office provides
annual mandatory Diversity Training for all employees, designed to provide employees a broad
perspective on the issue of diversity and how it impacts the workforce. The training reviews all Equal
Opportunity policies and procedures, and raises sensitivity to diversity and inclusion in the workplace.
The OEI champions decision-making through a race and equity lens. An equity core team has
been established with half of the City's departments represented. The remainder will follow in 2021 to
assist in achieving this goal (Gail Johnson, The Gainesville Sun, February 14, 2020).
An interview with the Diversity Equity and Inclusion (DEI) Manager, on June 11, 2021, was
instructive. He stated that in the last two years, the Office of Equity and Inclusion shifted its focus from
EEO to equity and inclusion (the new name of the Office) — beyond compliance to federal and state
employment laws and towards a holistic assessment of the HR systems and equity structures within the
city's workforce. One of the first and fundamental initiatives addressed workforce demographics — how
and what data are collected. The challenge for the City is that their demographic data is not
disaggregated by race, but rather combines race and ethnicity, making comparisons and analyses with
101
census data impossible. Any data reconciliation relies upon the executive leadership and the HR
department making this a priority, which to date has not fully occurred. As noted earlier, it is imperative
that the equity office and HR department work collaboratively in order to effect positive systemic
reform.
The City's HR systems date to the 1980s; the Personnel Policy Manual has not been updated
since 2011. Not surprisingly, there are a number of policies and procedures that are outdated. For
example, one of the minimum qualifications is proficiency in a typing test. The DEI Manager stated that
the test represents a financial hardship for many lower -socioeconomic applicants; applicants can be
assumed to be proficient in typing if they hold a degree or have work experience. Similarly, the Fire
Department requires applicants for entry-level firefighters to complete a three-month course which is
scheduled to match the schedule of current fire-fighters; namely 2 days on with 1-2 days off. This
schedule is difficult if not impossible for applicants who are working full-time. Recognizing the
limitations of this restricted schedule, the City approved a special line of funding to waive the fee for the
course and provided financial incentives for participation. "Rates of black firefighters shot up. But the
financial support has now been withdrawn, and we are back to the same problem."
In a frank comment, the DEI Manager characterized his office's work as "pushback is really the
job." He stated that the "most critical component is the buy in by the highest person. They have to be
the champion; the City Manager needs to be the loudest voice. We are doing the work in spite of the
leadership." He cited the organizational structure — the HR director reports to the City Manager, and the
Equity and Inclusion director also reports directly to the City Manager. This arrangement makes it
difficult for the E&I office to work effectively with the HR department if the executive leadership is
"disinterested."
In a more optimistic perspective, the DEI Manager acknowledges the potential for positive
change management in the organization. The City joined GARE in 2019 and is utilizing the Racial Equity
102
Tool Kit. The (anti -racist) tool is in place. However, the implementation has not followed. He likens the
situation to a chainsaw in the hands of a toddler—the tool is sharp but ineffective; "it's like putting a
foreign tool in people's hands." As in the case of the City of Tacoma, coaching of senior leadership, and a
shared definition of equity and success, is a necessary prerequisite to recommending programmatic
reforms. Without the leadership "having an internal motivation to do it", programs may be adjusted but
systems will remain largely unchanged. As a final comment, he stated that RACE for Equity is a clata-
driven Results -Based Accountability (RBA) framework within GARE. Created in 2018, RACE for Equity
advocates "for equity to play a central role in the work of every organization ... and system..."
(RACEforequity.net). Membership in GARE and utilization of RBA will be recommended to the City of
Boynton Beach.
Discussion
The four selected cities, each in their own right focused on advancing diversity, equity and
inclusion, differ in their approach and experiences. While they each had a "critical incident" that served
as a catalyst for action, and an online equity and inclusion presence, their experiences are unique in
practice. The City of Gainesville's website documents portray a city that has a focused and
comprehensive structure and processes designed to identify and rectify racial inequities in the
workplace. Implementation in practice is less clear. Challenges of data reconciliation, an organizational
structure that impedes decision-making and accountability, and an executive leadership that may not be
fully motivated to change management and workplace reform are also part of the picture. While a
strong web presence in equity and inclusion may be a necessary prerequisite to advances in actual
practice, the example of the City of Gainesville suggests that it is not sufficient.
The approach taken by the City of Tacoma and the City of Cambridge is a holistic and synergistic
one, strategic and intentional in addressing past racial injustices and deliberate in implementing
103
comprehensive workplace reforms with organizational support and leadership buy -in. Redwood City is
moving towards approving an Equity Plan which will be transformative in nature. Their website presence
is consistent with actual practice, and their E&I workforce efforts extend beyond their online identity. As
with the City of Gainesville, efforts to address racial inequities take place within a political context, and
clear communication with the community and the workforce, listening to service recipients and staff, is
key.
The degree of pushback varies across the cities, as does their means to minimize it. Conflict
should be understood and embraced as part of the process. "Conflict is not only incidental but is
required for transformation to occur and be sustained. It's been said that conflict —from discomfort to
active disagreement — is change trying to happen" (Hecht, 2020). Membership in GARE is largely
beneficial, as is coaching and training of executive leadership, followed by all staff training. Competency
in managing a more diverse workforce is not assumed. Efforts to institutionalize interconnected systems
change and reform specific workplace policies, when undertaken in tandem, are likely to have more
effective outcomes.
Commentary
Our research into the actual experience of cities striving towards more equitable workplaces
highlights the difficulties in implementing systemic reforms. Documented policies and procedures, and
contracted tools only go so far. Without an accompanying focused commitment to meaningful
implementation and ongoing support, the best -laid plans have limited impact. This leads us to a further
recommendation to the City of Boynton Beach; namely, that the City take the necessary time to reflect
upon the recommendations that follow before acting on implementation. Race Forward, a national
organization at the forefront of advancing equity with experience in dozens of local jurisdictions, lends
support to this recommendation. The organization has long discouraged rushing to action before laying
104
crucial foundations (www.redwoodcitV.org, Equity and Social Justice Sub -Committee meeting, April 15,
2021). The City of San Carlos, CA's experience is also illustrative. In their 21 Day Social & Racial Equity
Challenge, they close, in part, as follows: "Though many people want to jump to action sooner instead of
later, action without a vigorous self -education and self -reflection practice can unexpectedly reproduce
the very power and privilege dynamics we seek to interrupt in this work." (www.cfsancarlos.org/21-dav-
equity-challenge)
105
RECOMMENDATIONS
Actionable Proposed Recommendations
Michelle Bachelet, the United Nations High Commissioner for Human Rights, in speaking about a
recently released report calling for measures to dismantle discrimination, said: "The status quo is
untenable... Systemic racism needs a systemic response." (Nick Cumming -Bruce, The New York Times,
June 29, 2021, p. A9). This general sentiment is shared by each of our interviewees and is a common
theme in the academic and professional literature. In order for greater diversity, equity and inclusion to
be institutionalized within a municipality, the process should be systemic, holistic and synergistic. The
City of Tacoma exemplifies this approach, as anti -racist systems transformation. The recommendations
that follow are presented first from a systemic perspective. The more "tactical" recommendations then
follow.
Systemic Recommendations
1. Integrate equity into the City's Strategic Plans
2. Appoint/hire a Director of Equity and Inclusion (E&I) charged with spearheading the City's
approaches.
3. Provide the necessary financial and administrative support for the Director's role.
4. Embark on a listening tour by holding town hall sessions with City staff (and with the
community). Provide opportunities for staff to engage in meaningful conversations about
diversity, beginning with race. It is important that the staff feel a sense of ownership of the
changes being considered for implementation. Engaging the staff in developing meaningful
problem statements and solutions is a means to this end. Prepare for the uncomfortable
and unfamiliar.
106
5. Conduct an employee survey of diversity, equity, and inclusion (see Appendix D for an
example from Redwood City).
6. Formally adopt a definition of equity. Early investment in defining the meaning and scope of
equity concepts is a best practice that encourages productive discussion by offering words
for concepts and topics many individuals do not discuss explicitly with colleagues
(www.redwoodcity.org, Equity and Social Justice Sub -Committee meeting, April 15, 2021).
7. Coach the City's Executive Leadership on the state of the organization's workplace diversity,
equity and inclusion to bring them "to a place of understanding" such as occurred in the City
of Tacoma. Recognize the history of institutional racism within the City of Boynton Beach.
An historical awareness (for example, Tacoma's Equity 101 training that covers the history
of the City and past injustices) promotes, normalizes and operationalizes such
understanding. Creating a shared definition of equity and success is a necessary prerequisite
prior to any rollout of systems and procedural changes.
8. Identify equity -specific policy priorities.
9. Codify equity commitment and attendant protocols. Align the City's personnel policies
(hiring, recruitment, and retention) in support of equity and inclusion. Such alignment
requires collaboration and cooperation between the E&I director and the HR director.
10. a. Specific to hiring - expand outreach opportunities to attract a more diverse applicant pool
and integrate racial demographics into the screening matrix (see also Tactical
Recommendation #2 below). b. Specific to recruitment - evaluate new and existing position
descriptions to reduce barriers to access (for example, higher education and professional
associations). c. Specific to retention - create support structures for employee racial and
ethnic affinity groups. This approach can then be extended to other forms of diversity.
107
Explore and implement compensation for language skills (City of Boulder CO, Racial Equity
Plan, February 2021).
11. Provide leadership training on how best to manage a diverse workforce, and on the updated
"aligned" structures and processes.
12. Provide introductory Equity Training to all employees, including the history of institutional
discrimination, implicit bias, and micro -aggression training. Use the "train -the -trainer"
model to continue to build internal expertise.
13. Nurture an organizational culture that prioritizes "humanity. People need the ability to work
with the dignity of having their histories acknowledged and their life experience valued"
(Hecht, 220).
14. Provide New Employee Orientation that grounds new staff members in the City's
organizational culture and in what the city is working towards.
15. Acknowledge that systemic change management is, by definition, challenging. Pushback is
to be expected and anticipated. As the City of Cambridge illustrates, being intentional,
deliberate and strategic about being equitable and inclusive is key.
16. Recognize that the City Manager (in concert with the City Commission) is the
"Communicator in Chief". The City Manager should be the most vocal voice for equity, by
communicating clearly and realistically, and amplifying the voices of the executive
leadership.
17. Provide training on communications and messaging about equity to appropriate staff.
Intentionally set aside defensiveness in favor of expressions of openness and candor.
18. Establish (or departments can create their own) equity committees with diversity champions
in each department to advance departmental level implementation of diversity, equity and
108
inclusion. The City of Cambridge's Equity and Inclusion Partner (EIP) project is one such
model. Another is the City of Bounder's Racial Equity Teams.
19. Join GARE as a Core Member and apply its racial equity toolkit of standards and programs to
the unique needs of the City.
20. Remain connected with the professional associations, such as IPMA-HR, to promote the
systemic, holistic, and synergistic transformation.
Tactical Recommendations
1. Begin by addressing racial equity as a gateway for addressing issues related to additional
forms of diversity.
2. Establish clear equity expectation language and implement in handbooks and scopes of
work.
3. Recruitment and hiring, utilize the existing NEOGOV Online Hiring Center to strengthen
analysis about applicant flow. As all individuals must complete an official application via the
City's webpage to be considered for a position, Human Resources can better utilize data
from the electronic applications through the NEOGOV's Analytics and Reporting software.
The analysis about applicant flow could be linked to each phase of the hiring process, from
screening, assessing, interviewing, to selecting, which is incumbent on NeoGov making
these features available. The data analysis will facilitate and support a diverse applicant pool
and thus ensure greater diversity, equity, and inclusion in the City workforce.
4. Strengthen metrics and accountability by utilizing dashboards to track progress and/or
present equity data in terms of an equity atlas, which provides a spatial visualization.
5. Provide business cards to staff that explain how to apply for a city job that can be given to
people in the community interested in a city job.
109
6. Host job fairs to provide a direct contact for potential applicants for any questions, and
introduce intern opportunities to prepare interns for potential employment.
7. Reconsider minimum educational requirements for entry-level positions.
8. Retention and development, provide additional opportunities for employee -focused talent
and skills development through training and mentoring. The existing training has covered a
wide range of topics. Conduct a regular survey to capture the specific need and demand for
training activities of employees. Utilize the Credit for Attending Training to attract and
encourage employees to develop their expertise and skills.
9. Launch a formal mentoring program and target populations that frequently encounter
barriers. The City of San Antonio's Women's Leadership Mentoring Program, and the City of
Decatur's development program called the Decatur E5 Academy (Engaged, Effective,
Excellent, and Evolved Employees) Academy are two such examples.
10. Compile internal documents, such as handbooks and brochures, identifying policies and
practices addressing diversity, equity, and inclusion.
11. In recognition that COVID-19 resulted in a new norm, consider additional flexible
arrangements and modes of work in a post -pandemic workplace, such as job rotation and
telecommuting. Alternative work schedules increase retention, employee satisfaction, and
work productivity. In a recent NY Times (July 2, 2021) article entitled, Returning to the
Office? The Myth of Serendipity, the author (Claire Cain Miller) states that "there is no
evidence that working in person is essential for creativity and collaboration. It may even
hurt innovation... because the demand for doing office work at a prescribed time and place is
a big reason the American workplace has been inhospitable for many people. "That's led to
a lot of the outcomes we see in the modern office environment — long hours, burnout, the
110
lack of representation — because that office culture is set up for the advantage of the few,
not the many"(Spaulding, as cited in Miller 2021).
111
DIVERSITY, EQUITY AND INCLUSION ACTION PLAN
Strategy in Diversity, Equity, and Inclusion
The workplace is in a state of flux. How work is organized, where it is performed, and who holds
which positions is an increasingly dynamic process. The COVID-19 pandemic, the Black Lives Matter
movement, and political, racial and civil unrest have combined to shift the contours of the meaning of
work and workplaces. Within this context, the City of Boynton Beach is assessing how best not only to
respond to the "new normal", as the City's reimagines what work and the workplace looks like, but to
embrace the opportunity to engage in systemic and procedural changes in HR through an equity lens.
The City's 2020-2021 Strategic Plan references diversity, equity and inclusion in broad terms.
One of the top six priorities for the City is to become a "high performing organization" (p. 5). One of the
four competencies is: "We are a community of inclusion and belonging — we value our residents and
embrace our diversity" (p. 9). One of the strategic initiatives is to "Cultivate consciousness and develop a
framework to address racial and social equity in the delivery of City services for the benefit of all
communities within the City" (p. 14). This initiative is the focus on the externally -oriented phase of the
inter -local agreement between the City and FIU. Phase 1 of the project, the internal assessment, is not
specifically mentioned. As noted above, it will be important in terms of executive leadership
communication and staff buy -in that this internally -oriented work — to advance a more diverse,
equitable and inclusive workplace in order to become a "high performing organization" - be articulated
in the City's 2021-2022 Strategic Plan.
Proposed Action Plan
The Action Plan mirrors the systemic and tactical recommendations above. The following
timeline is proposed:
112
September — October 2021
- Present Benchmarking Report to City Commission for review and input
November - December 2021
- Formal City Commission approval and adoption of Benchmarking Report
January 2022
- Appoint/hire a Director of Equity and Inclusion (E&I) charged with spearheading the City's
approaches
- Join GARE as a Core Member
- Connect with professional associations such as IPMA-HR
January — February 2022
Executive Leadership coaching on the state of the organization's workplace diversity, equity
and inclusion, and on how best to manage a diverse workforce
Formally adopt definition of equity
March —July 2022
- Hold town hall listening sessions with City staff
- Conduct employee survey
- Identify equity -specific policy priorities
- Establish departmental equity committees
- Provide equity training to all employees
August — September 2022
- Executive leadership and departmental director training on the updated "aligned" structures
and processes
- Begin the process of aligning the City's personnel policies in support of equity and inclusion
(see also Tactical Recommendations, above)
113
Proposed Action Plan
9/1/21 10/1/2110/31/2311/30/2112/30/211/29/22 2/28/22 3/30/22 4/29/22 5/29/22 6/28/22 7/28/22 8/27/22 9/26/22
Present Benchmarking Report to City Council for review and input
Formal City Council approval and adoption of Benchmarking Report
Appoint/hire a Director of Equity and Inclusion
Join GARE as a Core Member
Connect with professional associations such as IPMA-HR
Executive leadership coaching
Formally adopt definition of equity
Hold town hall listening sessions with City staff
Conduct employee survey
Identify equity -specific policy priorities
Establish departmental equity committees
Provide equity training to all employees
Executive leadership and departmental director training
Begin process of aligning personnel policies in support of equity and inclusion
Timeline
Figure 24. Timeline of Proposed Action Plan
114
Key Performance Indicators
Performance indicators can utilize transactional and/or transformational metrics. Transactional
metrics are quantifiable internal markers intended to show what has been accomplished.
Transformational metrics, which are often qualitative, show how people and the organization have been
altered through collective efforts. In this report, transactional metrics would measure whether the
specific systemic recommendation has been achieved. For example, did the City approve the
benchmarking report? Was an E&I director appointed/hired? and so forth (a yes or no response).
Transformational metrics, on the other hand, attempt to measure the impact of different systemic
recommendations. For example, did the executive leadership coaching result in a growing
understanding on the state of the organization's workplace DEI? To what extent did the town hall
listening sessions with staff lead to a sense of ownership of the changes being considered for
implementation? Similarly, how effective was the all -staff equity training? To what extent is the staff
better informed about the history of systemic discrimination, and has competency in implicit bias and
micro -aggressions? Clearly, transactional metrics can be readily identified, whereas transformational
metrics involve a more nuanced consideration. Accountability that attaches to transactional metrics is
clear-cut; accountability for transformational goals is more subtle. In the final analysis, it will be
important for the City to demonstrate an early success in the implementation of one or more of the
proposed actions. Such early successes demonstrate the City's commitment to, and support of, a
diverse, equitable and inclusive workplace, and builds momentum for subsequent actions that follow.
115
CONCLUSION
As the American novelist and social critic, James Baldwin said: "Not everything that is faced can
be changed, but nothing can be changed until it is faced." The City of Boynton Beach is facing issues of
diversity, equity, and inclusion with a clear-sighted, analytical approach. This report has presented the
major takeaways from the academic and professional literature, has situated the study of the City of
Boynton Beach within the State of Florida context, has researched the state of the City's HR policies and
procedures, and has benchmarked HR processes to best practices in four selected cities, representing
regional coverage.
The Cities of Tacoma, Cambridge, Redwood, and Gainesville are on the forefront of addressing
and advancing equity and inclusion. However, they are not alone. Our research identified a number of
other cities whose record of advancing diversity, equity, and inclusion is noteworthy. The Cities of
Mountain View CA, Minneapolis MN, Long Beach CA, Sunnyvale CA, and Palo Alto CA are actively
addressing DEI at the municipal level and advancing equity work. So too are the Cities of Boulder CO
which has developed a model Equity Plan, and San Carlos CA which has put together some valuable
resources (see Appendix A).
The recommendations presented are informed by the experiences of these cities. Interviews
with City Administrators revealed the contours of applying an equity lens in sharp relief. Visible and
vocal commitment by the cities' executive leadership is key, as is listening to and learning from town hall
sessions. As Brooks recently opined (2021, P. A18), "Racism is not something we are gently moving past;
it's pervasive". Each of the four cities appears to support this proposition, and "led with race" with the
goal of systemic and synergistic transformative and holistic change. Each city has established an E&I
Office (or equivalent) charged with leading the efforts. The cities recognize that pushback is to be
expected, and each has proceeded with patience. A shared sentiment is that this work is hard, is on-
going, and is overdue.
116
We conclude by thanking the City of Boynton Beach for the opportunity to collaborate in such a
timely, valuable, and rewarding project. We have learned a great deal in the process, and we trust that
our research and insights provide food -for -thought for the City's executive leadership, and a willingness
to continue to "move the DEI needle" forward. We congratulate the City for its commitment to the
endeavor.
117
REFERENCES
Anthony, Attiyya. 2016. Boynton Beach awarded grant to help document city's black history. South
Florida Sun -Sentinel. https://www.sun-sentinel.com/local/palm-beach/boynton-beach/fl-
boynton-beach-black-history-website-20160414-story.html
Arnade, Charles W. 1960. The Failure of Spanish Florida. Cambridge University Press.
Arnade, Charles W. 1963. Recent Problems of Florida History. The Florida Quarterly, 42(1), p. 1-15.
Boynton City Ordinance 37, 1924. https://www.boynton-
beach.org/sites/default/files/documents/library/1924-02-20%20City%20Ordinance%2037-
segregation.pdf
Boynton City Ordinance 47, 1924. https://www.boynton-
beach.org/sites/defa ult/files/documents/libra ry/1924-11-18%20City%20Ordinance%2047-
segregation.pdf
Boynton City Ordinance 136, 1933. https://www.boynton-
beach.org/sites/default/files/documents/library/1933-11-21%20CitV%20Ordinance%20136-
sundowner.pdf
Brooks, David. 2021. How Racist is America? The New York Times, July 23, p. A18.
Clark, James C. 2015. Hidden History of Florida. Charleston, SC: The History Press.
City of Boynton Beach. 2017. Strategic Plan Fiscal Year 2020-2021. Boynton Beach: City Commission.
City of Boynton Beach. 2011. Personnel Policy Manual. Boynton Beach: Human Resources.
City of Boynton Beach. 2018. The Hiring Process. Boynton Beach: Human Resources.
Colburn, David R. 2007. From Yellow Dog Democrats to Red State Republicans: Florida and Its Politics
Since 1940, 2nd Edition. University Press of Florida.
Colburn, David R. and Dehaven-Smith, Lance. 2010. Florida's Megatrends: Critical Issues in Florida, 2nd
Edition. University Press of Florida.
Dade County School Board Minutes. October 22, 1896. https://www.boynton-
beach.org/sites/default/files/documents/library/HSPBC%20GSC-Schools3-FS.pdf
DeSantis, Victor S. & Renner, Tari. 2002. City Government Structures: An Attempt at Clarification. State
& Local Government Review, 34(2), pp. 95-104.
DeVries, Janet. 2006. Around Boynton Beach. Arcadia Publishing.
Diaz, Maria Angela. 2016. To Conquer the Coast: Pensacola, the Gulf of Mexico, and the Construction of
American Imperialism 1820-1848. The Florida Historical Quarterly, 95(1), p. 1-25.
Dunn, Marvin. 1997. Black Miami in the Twentieth Century. University Press of Florida.
118
Economic and Demographic Research. 2011. Florida: A Budget Overview. The Florida Legislature Office
of Economic and Demographic Research. Retrieved June 27, 2021, from
http://edr.state.fl.us/Content/presentations/Budget/BudgetPictureSummer20ll.pdf
Economic and Demographic Research. 2020a. Florida: An Economic Overview. The Florida Legislature
Office of Economic and Demographic Research. Retrieved June 27, 2021, from
http://edr.state.fl.us/content/presentations/economic/FlEconomicOverview 2-24-20.pdf
Economic and Demographic Research. 2020b. Florida: An Economic Overview. The Florida Legislature
Office of Economic and Demographic Research. Retrieved June 27, 2021, from
http://edr.state.fl.us/content/presentations/economic/FlEconomicOverview 12-30-20.pdf
Engoren, Jan. 2017. New Boynton economic development director looks to engage businesses,
residents. South Florida Sun -Sentinel. https://www.sun-sentinel.com/local/palm-
beach/boynton-beach/fl-bbf-manager-0426-20170425-story.html
Florida Chamber of Commerce. 2016. Florida Constitution—Revise Responsibly, Every 20 Years.
https://www.flchamber.com/florida-constitution-revise-responsibly-every-20-years/
Florida Department of State. n.d. European Exploration and Colonization. Retrieved June 24, 2021, from
https://www.dos.myflorida.com/florida-facts/florida-history/a-brief-history/european-
exploration-and-colonization/
Florida Department of State. 2016. The Constitution of the State of Florida: As revised in 1968 And
Subsequently amended November 2016. Retrieved June 25, 2021, from
https://files.floridados.gov/media/693801/florida-constitution.pdf
Frederickson, H.G. 2010. Social Equity and Public Administration: Origins, Developments, and
Applications. M.E. Sharpe.
Hecht, Ben. 2020. Moving Beyond Diversity Toward Racial Equity. Harvard Business Review, June 16.
Historic Sites Survey. 1996. City of Boynton Beach, Florida.
Howard, Rosalyn. 2013. "Looking for Angola": An Archaeological and Ethnohistorical Search for a
Nineteenth Century Florida Maroon Community and its Caribbean Connections. The Florida
Historical Quarterly, 92(1), p. 32-68.
ICMA Equity & Inclusion Toolkit. IPMA-HR. 2013. IPMA-HR Benchmarking Survey: Recruitment.
International Public Management Association for Human Resources.
IPMA-HR. 2014. Benchmarking Report: Talent Management. International Public Management
Association for Human Resources.
IPMA-HR. 2015. Benchmarking Report: How Close is Human Resources to Becoming a Strategic Business
Partner? International Public Management Association for Human Resources.
IPMA-HR. 2016. Cross -Generational Benchmarking Report. International Public Management Association
for Human Resources.
119
IPMA-HR. 2017. IPMA-HR Benchmarking Report: Culture of Innovation. International Public
Management Association for Human Resources.
IPMA-HR. 2018. IPMA-HR Benchmarking Report: Beyond Metrics: HR Analytics. International Public
Management Association for Human Resources.
IPMA-HR. 2019. IPMA-HR Benchmarking Report: Employee Engagement & Retention. International
Public Management Association for Human Resources.
Jacob, Benoy. 2019. Advancing Social Equity: Lessons from (and for) Public Managers. PM Magazine,
September 1.
Jacob, Benoy. 2020. Governing for Equity: Implementing an Equity Lens in Local Governments. ICMA
Leading Edge Research Series, December.
Jessup, E. 2021. What Does 'Need for Care' Mean Under FMLA Regulations? Blog.SHRM.Org.
https://blog.shrm.org/blog/what-does-need-to-care-mean-under-fmla-regulations
Johnson, Sherry. 1989. The Spanish St. Augustine Community, 1784-1795: A Reevaluation. The Florida
Historical Quarterly, 68(1), p. 27-54.
King, K. L. 2021. The Pros and Cons of Mandating College Degrees for Employment. Blog.SHRM.Org.
https://blog.shrm.org/blog/the-pros-and-cons-of-mandating-college-degrees-for-employment
Marshall, R. 2021. The Looming Talent Pandemic. Blog.SHRM.Org. https://blog.shrm.org/blog/the-
looming-talent-pandemic
Maurer, J. 2021. Job Candidates Seek Assurances on Workplace Safety, Flexibility. SHRM.
https://www.shrm.org/resourcesandtools/hr-topics/talent-acquisition/pages/iob-candidates-
ask-recruiters-workplace-safety-flexibility.aspx
Nagele-Piazza, L. 2021. Here's What Employers Need to Know About OSHA's COVID-19 Directives.
SHRM. https://www.shrm.org/resourcesandtools/legal-and-compliance/employment-
law/pages/what-employers-need-to-know-about-osha-covid-l9-updates.aspx
National Archives. n.d. Bill of Rights. https://www.archives.gov/founding-docs/bill-of-rights-transcript
Newman, Meredith A. 1993. Career Advancement: Does Gender Make a Difference? American Review of
Public Administration, 23(4): 361-384.
Sackett, T. 2020. Finding Qualified Diverse Talent is NOT Your Issue.
Blog.SHRM.Org.https://blog.shrm.org/blog/finding-qualified-diverse-talent-is-not-your-issue
Salant, Tanis J., Jeffery, Blake R., & Boroshok, Alan L. 1989. County Government Structure: A State by
State Report.
Savage, Laura. 2021. Establishing Inclusion as a Value. ICMA Blog Post, April 13.
120
Selden, Sally Coleman. 2009. Human Capital: Tools and Strategies for the Public Sector. United
States: SAGE Publications.
SHRM Staff Blog. 2021. Ask an Advisor Chat: Managing the COVID-19 Vaccine in the Workplace.
Blog.SHRM.Org. https://blog.shrm.org/blog/ask-an-advisor-chat-managing-the-covid-19-
vaccine-in-the-workplace
Smith, Kendra L., 2019. Beyond Compliance: Recruitment and Retention of Underrepresented
Populations to Achieve Higher Positions in Local Government. ICMA Leading Edge Research
Series, January.
Smith, Kendra. March 11, 2019. Manage This: Promote Inclusivity Through Better Job Descriptions. PM
Magazine.
Swanson, Jeffrey, & Barrilleaux, Charles. 2020. State Government Preemption of Local Government
Decisions Through the State Courts. Urban Affairs Review, 56(2), p. 671-697.
Pittman, Craig. 2016. Oh, Florida! How America's Weirdest State Influences the Rest of the Country. New
York: St. Martin's Press.
Tscheschlok, Eric. 199). Long Time Coming: Miami's Liberty City Riot of 1968. The Florida Historical
Quarterly, 74(4), p. 440-460.
U.S. Census Bureau QuickFacts: Florida. n.d. Retrieved June 27, 2021, from
https://www.census.gov/guickfacts/FL
Valelly, Richard M. 2004. The Two Reconstructions: The Struggle for Black Enfranchisement. University of
Chicago Press.
Williams, John Lee. 1837. The Territory of Florida, or, Sketches of the Topography, Civil and Natural
History, of the Country, the Climate, and the Indian Tribes: From the First Discovery to the
Present Time, with a Map, Views, &C. New York: A.T. Goodrich.
Works Progress Administration. 1900. Historical Records Survey. Saint Paul's African Methodist
Episcopal Church. State Archives of Florida, Florida Memory.
https://www.floridamemory.com/items/show/250475
Wright Jr., Leitch. 1976. Blacks in British East Florida. The Florida Historical Quarterly, 54(4), The Floridas
in the Revolutionary Era: Bicentennial Issue, p. 425-442
121
Appendix A: Additional Resources
o Government Alliance on Race and Equity (GARE)
o International Hispanic/Latino Network
o League of Women in Government (LWG)
o National Forum for Black Public Administrators (NFBPA)
o Women Leading Government (WLG)
o Marin County, CA: Racial Equity Action Plan 2017. 2017.
https://Marin.granicus.com/DocumentViewer
o "Leadership & Ethics." 1CMA. 2017. https://icma.org/topics. leaders hi p -and -ethics
o Decatur, GA: The Better Together Action Plan for Equity, Inclusion, and Engagement.
2015. https://citiesspeak.files.wordpress.com/2017/06/better-together-communty-
action-plan-decatur-georgia.pdf
o Boulder, CO: https://bouldercolorado.gov/services/racial-equity. Racial Equity Plan,
February 2021.
o www.raceforequity.net, Results Achieved Through Community Engagement( RACE)
o www.nlc.org, Race, Equity and Leadership (REAL)
o See ICMA Equity & Inclusion Toolkit, p. 22 for an example of an Equity Manager position
description
o DEI Glossary: Key Shared Language, Frameworks, and Concepts (www.redwoodcity.org
Equity and Social Justice Sub -Committee, April 15, 2021)
o City of Tacoma Office of Equity and Human Rights: Annual Report 2015-2016.
http:/Iwww.cityoftacoma.org
o Long Beach Equity Toolkit
o https://cfsancarlos.org/21-day-equity-challenge
122
Appendix B: List of Interviewees
o Redwood City, CA, Equity and Inclusion Officer (April 21 and July 13, 2021)
o City of Ashville, NC, Inclusive Engagement and Leadership Manager, Office of Equity &
Inclusion (April 30, 2021)
o City of Gainesville, FL, Manager, Office of Equity & Inclusion (June 11, 2021)
o City of Tacoma, WA, Chief Equity Officer (June 7, 2021)
o City of Cambridge, MA, Director, Office of Equity & Inclusion (June 15, 2021)
o Government Alliance on Race and Equity (GARE), Research Manager (August 2, 2021)
123
Appendix C: Florida County Demographics
Counties
Median
Household
Income
percentage
White
Percentage Black
or African
American
percentage
Hispanic or Latino
Total
Population
Alachua
$48,775.15
68.5
20.01
10.13
268,484
Baker
$63,672.64
81.8
13.46
3.00
28,108
Bay
$51,907.06
79.9
11.29
6.96
187,361
Bradford
$47,306.85
76.1
20.66
4.23
26,452
Brevard
$54,058.17
81.3
10.24
10.90
589,806
Broward
$57,169.43
59.3
29.05
30.26
1,959,014
Calhoun
$38,717.47
78.6
12.14
6.61
14,312
Charlotte
$48,771.32
89.0
5.57
7.77
183,777
Citrus
$41,592.98
91.6
3.04
6.10
144,208
Clay
$62,887.38
78.6
10.67
10.26
212,931
Collier
$65,892.11
87.5
7.32
28.09
378,731
Columbia
$45,284.79
76.4
17.44
6.72
69,677
DeSoto
$34,957.67
83.1
11.93
32.25
36,968
Dixie
$37,691.11
86.3
6.33
5.08
16,547
Duval
$53,487.17
58.8
29.79
9.99
945,064
Escambia
$49,154.65
66.3
21.99
6.35
315,666
Flagler
$53,575.08
81.6
10.40
10.96
111,269
Franklin
$43,136.97
80.6
12.85
5.83
11,775
Gadsden
$41,492.69
41.9
54.54
10.71
45,512
Gilchrist
$42,863.34
90.8
6.20
6.44
17,769
Glades
$39,623.59
78.7
13.67
21.69
13,397
Gulf
$44,911.15
77.6
18.38
5.39
16,210
Hamilton
$35,717.40
59.7
35.29
9.37
14,126
Hardee
$38,655.36
77.9
8.44
45.56
27,085
Hendry
$40,244.18
80.8
11.36
54.06
40,552
Hernando
$46,219.98
87.9
5.45
13.86
186,305
Highlands
$37,160.65
76.5
9.80
20.55
103,357
Hillsborough
$56,044.75
68.7
16.79
29.12
1,425,814
Holmes
$38,765.50
87.8
7.29
2.86
19,262
Indian River
$52,219.93
85.0
9.38
12.83
155,717
Jackson
$38,478.23
68.6
27.31
5.07
48,116
Jefferson
$48,542.34
62.8
33.44
4.71
13,932
Lafayette
$41,167.92
78.9
14.60
16.43
8,650
Lake
$51,939.76
81.8
10.91
15.97
349,490
Lee
$54,729.11
83.7
8.78
21.66
753,839
Leon
$51,460.60
60.7
30.96
6.57
291,740
Levy
$37,437.36
87.0
8.50
8.91
39,732
Liberty
$36,604.09
79.7
16.40
5.71
8,390
Madison
$34,015.00
56.3
39.36
5.86
18,210
Manatee
$56,051.12
84.8
8.79
16.97
392,411
Marion
$43,383.08
80.7
12.89
13.71
354,847
Martin
$57,844.67
86.7
6.05
13.84
161,619
Miami -Dade
$48,729.21
74.1
17.47
69.19
2,782,398
124
Monroe
$67,375.91
87.0
8.08
24.97
77,502
Nassau
$67,513.93
89.6
6.37
4.48
82,950
Okoloosa
$62,188.47
76.6
10.25
9.88
206,738
Okeechobee
$40,544.84
85.9
8.93
25.71
41,103
Orange
$54,229.44
62.7
21.01
32.07
1,380,752
Osceola
$49,737.70
71.6
11.53
54.95
362,395
Palm Beach
$59,984.56
72.2
19.20
22.81
1,491,299
Pasco
$50,409.16
86.1
6.11
15.52
527,716
Pinellas
$51,313.41
79.9
10.44
10.18
974,546
Polk
$48,240.79
76.8
15.36
22.80
691,852
Putnam
$35,286.27
78.4
16.83
11.33
72,234
St. Johns
$77,730.61
87.7
5.30
7.29
250,982
St. Lucie
$49,401.43
72.6
20.22
19.52
315,482
Santa Rosa
$66,046.24
84.0
6.47
6.03
176,141
Sarasota
$58,498.72
90.2
4.69
9.46
424,076
Seminole
$63,348.09
75.2
12.03
22.00
466,476
Sumter
$56,127.50
88.6
7.12
5.66
129,844
Suwannee
$42,501.46
80.2
15.35
9.53
44,182
Taylor
$37,097.27
72.9
22.62
4.62
21,873
Union
$39,083.40
73.1
23.13
5.71
15,258
Volusia
$46,258.72
81.3
11.01
14.28
540,943
Wakulla
$62,219.45
81.7
14.81
3.92
32,257
Walton
$53,888.43
85.2
4.60
6.65
69,648
Washington
$36,833.33
79.4
16.07
3.98
24,453
125
Appendix D: Redwood City Employee Diversity, Equity, & Inclusion Survey
Please mark one answer:
1. 1 feel a sense of belonging in my workplace at the City of Redwood City.
Strongly agree — Somewhat agree — Somewhat disagree — Strongly disagree — Don't know
2. 1 see leaders in the City taking action that demonstrates the City's value of diversity, equity, and
inclusion.
Strongly agree — Somewhat agree — Somewhat disagree — Strongly disagree — Don't know
3. The City is authentically committed to diversity, equity, and inclusion.
Strongly agree — Somewhat agree — Somewhat disagree — Strongly disagree — Don't know
4. 1 have faced or witnessed workplace prejudice or discrimination while working for the City.
Strongly agree — Somewhat agree — Somewhat disagree — Strongly disagree — Don't know
5. People of all cultures and backgrounds are respected and valued in the City.
Strongly agree — Somewhat agree — Somewhat disagree — Strongly disagree — Don't know
6. The City effectively communicates information about its DEI goals, values, and priorities.
Strongly agree — Somewhat agree — Somewhat disagree — Strongly disagree — Don't know
7. My department has taken steps to advance equity.
Strongly agree — Somewhat agree — Somewhat disagree — Strongly disagree — Don't know
8. Leadership in my department takes strict action against discrimination.
Strongly agree — Somewhat agree — Somewhat disagree — Strongly disagree — Don't know
9. Leadership in my department communicates the importance of addressing racial inequities and
achieving racial equity, and demonstrates a commitment to diversity, equity, and inclusion.
Strongly agree — Somewhat agree — Somewhat disagree — Strongly disagree — Don't know
10. Leadership in my department demonstrates a commitment to meeting the needs of people with
disabilities and other special needs.
Strongly agree — Somewhat agree — Somewhat disagree — Strongly disagree — Don't know
11. 1 feel included at work, both when engaging in work activities or socially.
126
Strongly agree — Somewhat agree — Somewhat disagree — Strongly disagree — Don't know
12. 1 think it is valuable to examine and discuss the impacts of race.
Strongly agree — Somewhat agree — Somewhat disagree — Strongly disagree — Don't know
13. 1 have a basic understanding of concepts related to diversity, equity, and inclusion (i.e., cultural
difference, systemic racism, gender inclusivity, and racial equity) and feel competent in
discussing and addressing such issues.
Strongly agree — Somewhat agree — Somewhat disagree — Strongly disagree — Don't know
14. 1 am comfortable talking about my background and cultural experiences with my colleagues.
Strongly agree — Somewhat agree — Somewhat disagree — Strongly disagree — Don't know
15. 1 mask or downplay aspects of my physical, cultural, spiritual, or emotional self at work.
Strongly agree — Somewhat agree — Somewhat disagree — Strongly disagree — Don't know
16. 1 have sufficient support to develop my professional skills and progress my career.
Strongly agree — Somewhat agree — Somewhat disagree — Strongly disagree — Don't know
17. 1 have received or witnessed inappropriate jokes or comments from my colleagues related to
race, ethnicity, gender, sexual orientation/identity, or people with disabilities.
Strongly agree — Somewhat agree — Somewhat disagree — Strongly disagree — Don't know
18. While at work, I have received or witnessed inappropriate jokes or comments from members of
the public related to race, ethnicity, gender, sexual orientation/identity, or people with
disabilities.
Strongly agree — Somewhat agree — Somewhat disagree — Strongly disagree — Don't know
Multiple Choice Question
Please mark as many answers as apply:
Which topics would you like to explore in a staff training event?
(Check all that apply.)
o Diversity -building recruiting strategies
o Cross-cultural communication tools
o Inclusive leadership
o Equity in the workplace
o Implicit bias
o Structural racism, local history, and contemporary oppression
127
o White privilege: meaning and impacts
o Off-duty social media and its career impacts
o Microaggressions
o Cultural humility
o Dialogue on experiences of race and identity
o Other, please specify:
I would have more capacity to be active in advancing diversity, equity, and inclusion (DEI) if...
(Mark all that apply.)
o I had more information so I knew what to do
o I received training
o I had more time
o I had the support of my supervisor or manager
o I had peer support
o My manager/supervisor or peers had more expertise and capacity
o I had more strategies to handle stress
o DEI strategies received more funding
o I am happy with my current level of engagement
Open Response Questions
What ideas and actions do you recommend the City take to improve diversity, equity, and inclusion
outcomes?
What could the City do to better support you as an employee?
Is there anything else you would like to share?
Demographic Information
Please note: In the context of the broader DEI survey, the following demographic information will help
underscore the needs of diverse segments of Redwood City staff. Respondents' individual identities will
be protected with care and information will be reported out only in the aggregate. All of this
information is VOLUNTARY and CONFIDENTIAL.
Age
o 16-23 years
o 24-39 years
o 40-55 years
o 56+ years
o Prefer not to say
Race/Ethnicity
(Select all that apply.)
o African
128
o American Indian or Alaska Native
o Asian
o East Asian
o Asian Indian/South Asian
o Southwest Asian
o Filipino/Pacific Islander
o Black or African American
o European
o Hispanic or Latinx
o Caribbean
o Central American
o South American
o Middle Eastern/North African
o Native Hawaiian or another Indigenous Pacific Islander
o White or Caucasian
o Another race/ethnicity:
o Prefer not to say
Language
Is English a native language for you?
o Yes
o No
o What is/are your native language(s)?
Are you fluent in a language other than English?
o Yes, (state language):
o No, I am not fluent in a language besides English.
Gender Identity
o Female
o Male
o Trans Female
o Trans Male
o Gender Queer/Gender Nonbinary
o Another gender identity:
o Prefer not to say
Sexual Orientation
Do you identify as LGBTQ+?
o Yes
o No
o Prefer not to say
Do you have a disability or learning difficulty?
(select all that apply)
129
o Difficulty seeing
o Difficulty hearing
o Physical/mobility disability
o Developmental disability
o Learning disability
o Chronic health condition
o Mental health challenge
o Dementia
o Other:
o Decline to state
o I do not have a disability or learning difficulty
Department
o Administrative Services
o City Attorney's Office
o City Clerk's Office
o City Manager's Office
o Community Development and Transportation
o Fire
o Human Resources
o Library
o Parks, Recreation, Community Services
o Police
o Port of Redwood City
o Public Works Services
o Prefer not to say
Do you supervise or manage other people?
o Yes
o No
Work Status
o Fulltime employee
o Part-time/casual employee
o Contract employee