Biennial Compensation Report - Virginia Department of Human Resource Management (December 10, 2021)
Summary
A December 10, 2021 cover letter from Emily S. Elliott, Director of the Virginia Department of Human Resource Management (DHRM), transmitting the Biennial Compensation Report - 2021 under § 2.2-1202 B. of the Code of Virginia. The letter says DHRM, in conjunction with Deloitte Consulting, LLP, benchmarked 213 Commonwealth occupations, with an average statewide turnover rate of 12% and 17.2% - 40.8% turnover in the most distressed roles. It says base salaries lag the market average -15.7% and -11.9% respectively versus the private and public sector. The report, an Occupational Recruitment, Retention, & Market Position Analysis of the Commonwealth's Classified Workforce, includes Appendix C on salary structure recommendations.
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EMILY S. ELLIOTT
DIRECTOR
COMMONWEALTH OF VIRGINIA James Monroe Building
101 N. 14th Street, 12th Floor
Richmond, Virginia 23219
Department Of Human Resource Management Tel: (804) 225-2131
(TTY) 711
December 10, 2021
(TYY) 711
The Honorable Luke E. Torian, Chairman, House Appropriations Committee
The Honorable Janet D. Howell, Chairman, Senate Finance Committee
The Honorable Grindly Johnson, Secretary of Administration
Subject: Biennial Compensation Report - 2021
The attached report is pursuant to § 2.2-1202 B. of the Code of Virginia which requires that:
B. The Director of the Department shall, on or before September 1 of each odd-numbered year, submit
a report on (i) the classified job roles that should receive higher salary increases based on identified
recruitment and retention challenges, (ii) the appropriate amount by which the salary of such classified
job roles should be increased, and (iii) cost estimates for funding any salary increases to the Governor
and the Chairmen of the House Committee on Appropriations and the Senate Committee on Finance
and Appropriations.
DHRM in conjunction with Deloitte Consulting, LLP benchmarked 213 Commonwealth occupations
against private and public sector comparators. Among those occupations, the average statewide turnover
rate was 12%, with the most distressed roles ranging from 17.2% - 40.8% turnover. The vast majority of
these distressed roles are assigned to Pay Bands 1 through 4.
Base salaries in the Commonwealth lag the market average -15.7% and -11.9% respectively versus the
private and public sector. However, base salary averages range from 63% above market to -58% below
market depending on the distinct occupation.
Inconsistent appropriated salary adjustments have made it difficult for state agencies to build a proactive
and sustainable approach to addressing compensation, recruitment and retention concerns. The method
of awarding flat rate increases and select compression adjustments continues to stress the classified
salary structure and has accelerated compression issues in Pay Bands 1 through 4. Near term minimum
wage increases (January 2022 & January 2023) will further exacerbate compression in Pay Bands 1
through 4.
The compensation methodology recommended as part of the 2020 mandated Compensation Workgroup
to address these issues was not adopted. Reconsideration of the workgroup’s recommendations should
be explored as a means to provide relief from the ongoing stress on the compensation infrastructure.
This report presents recommendations to properly align strategic workforce methodologies that will
address increasingly problematic challenges with employee pay, compression, recruitment, and retention.
Sincerely,
Emily S. Elliott
An Equal Opportunity Employer
Virginia Department of Human Resource Management
Biennial Compensation Report
Occupational Recruitment, Retention, & Market Position
Analysis of the Commonwealth’s Classified Workforce
Data as of July 2021
Report as of September 2021
1
Table of Contents
Executive Summary ............................................................................................................................................................ 3
Introduction ........................................................................................................................................................................ 4
Purpose........................................................................................................................................................................... 4
Background ..................................................................................................................................................................... 4
Turnover & Market Position Analysis ................................................................................................................................. 5
COVA Occupation Methodology .................................................................................................................................... 5
Turnover & Market Position Methodology .................................................................................................................... 7
Turnover & Market Position Findings............................................................................................................................. 7
Economic Conditions Analysis .......................................................................................................................................... 11
Background & Methodology ........................................................................................................................................ 11
Economic Conditions Analysis Findings ........................................................................................................................ 11
Summary of Findings ........................................................................................................................................................ 14
Recommendation ............................................................................................................................................................. 15
Appendix ........................................................................................................................................................................... 17
Appendix A ................................................................................................................................................................... 17
Appendix B.................................................................................................................................................................... 31
Appendix C.................................................................................................................................................................... 33
2
Executive Summary
The 2021 Biennial Compensation Report produced the following findings:
DHRM in conjunction with Deloitte Consulting benchmarked 213 Commonwealth
occupations against private and public sector comparators
Among those occupations:
The average statewide turnover rate was 12%, with the most distressed roles
ranging from 17.2% - 40.8% turnover.
Base salaries in the Commonwealth lag the market average by -15.7% and -
11.9% respectively versus the private and public sector.
However, base salary averages range from 63% above market to -58% below
market depending on the distinct occupation.
Inconsistent appropriated salary adjustments have made it difficult for state agencies to
build a proactive and sustainable approach to addressing compensation concerns.
The current classified salary structure has become reactive and critically distressed over
time.
The statewide adjustment method of awarding flat rate increases has continued to put
stress on the classified salary structure and has accelerated compression issues in the
lower pay bands.
Near term minimum wage increases (January 2022 & January 2023) will further
exacerbate compression in Pay Bands 1 through 4.
The combination of stress on the classified salary structure and near term minimum
wage increases supports a recommendation to realign the salary structure over the next
two years.
The compensation methodology recommended as part of the 2020 mandated
Compensation Workgroup to address these issues was not adopted, and therefore is re-
recommended to provide relief from structural collapse and to enable state agencies
the autonomy to proactively address recruitment, retention, and compression
challenges.
3
Introduction
Purpose
This report identifies recruitment and retention workforce challenges by occupation and presents
overviews of the Commonwealth’s market position compared to similar jobs in private industry and
other public sector organizations. This report also analyzes the impact of several economic conditions
affecting the Commonwealth’s workforce as outlined below:
-Impact of the legislated minimum wage increases through calendar year 2023.
-Current salary structure compression in pay bands 1-4.
-Distortion of salary structure ratios in pay bands 5-9.
-Current employee adjustment methodology versus a variable methodology.
The analysis presented in this report is limited to salaried Commonwealth positions whose terms and
conditions of employment are subject to the Virginia Personnel Act (VPA) and are employed in
classified positions. The analysis was also limited to the data readily available to the Department of
Human Resource Management (DHRM) and its central Human Resource Management Systems.
Understanding that each individual state agency is in the most advantageous position to analyze and
manage its workforce and distinct lines of business, the Commonwealth of Virginia maintains a
decentralized salary administration plan and program. This approach delegates authority and
accountability to individual agencies. This will be addressed further in the Methodology portion of the
report.
This report was designed to be an indicator of the Commonwealth’s overall workforce position as well
as identify occupational focus areas for recruitment and retention opportunities based on the data
available to DHRM. It is not intended to identify specific and unique agency workforce challenges.
Background
The Commonwealth’s Compensation Philosophy, codified in 2001, states that the “goal of the
Commonwealth to compensate its employees at a rate comparable to the rate of compensation for
employees in the private sector of the Commonwealth in similar occupations, and consistently recruit
and retain the most suitably qualified employees.”
Pursuant to § 2.2-1202 of the Code of Virginia:
4
B. The Director of the Department shall, on or before September 1 of each odd-numbered year,
submit a report on (i) the classified job roles that should receive higher salary increases based on
identified recruitment and retention challenges, (ii) the appropriate amount by which the salary of
such classified job roles should be increased, and (iii) cost estimates for funding any salary increases
to the Governor and the Chairmen of the House Committee on Appropriations and the Senate
Committee on Finance.
Updates to the 2019 Appropriation Act also required DHRM to convene a workgroup (the
“compensation workgroup”) to develop a methodology that can be used to determine (i) the amount
of funding that should be appropriated for state employee salary increases each year and (ii) how to
distribute that funding to address state agencies' most significant workforce challenges. The
methodology was directed to be data-driven and include (i) recruitment and retention trends for each
job role in the state workforce, (ii) how salaries and total compensation for each job role compare to
similar jobs at other employers, (iii) the extent to which recruitment and retention challenges can be
addressed by salary increases, and (iv) the impact of recruitment and retention challenges in each job
role on state agency operations. DHRM partnered with Deloitte Consulting LLP (Deloitte) to complete
this scope of work. The purposed methodology recommended as a result of this workgroup is further
outlined in the recommendations section of this report.
Although not directly related by mandate, the aforementioned workforce trends analysis was used as a
key input to the economic conditions analysis outlined in the Purpose section above and its outcomes
serve as critical risk factors affecting the Commonwealth’s workforce. In order to capture the full
picture of the Commonwealth’s workforce position, both the recruitment and retention indicators as
well as the economic conditions analysis findings are outlined below.
Turnover & Market Position Analysis
COVA Occupation Methodology
The Commonwealth’s classified workforce is composed of just over 56,000 employees.
The Commonwealth’s job organizational structure consist of seven occupational families, 56 career
groups and three to seven broadly defined roles within each career group. An occupational family is a
broad grouping of jobs that share similar vocational characteristics. A career group is a sub-group of an
occupational family and identifies a specific occupational field common to the labor market. A role
describes a broad group of occupationally related positions that represent different levels of work and
career progression. Roles are further defined by individual agencies through the use of standard
occupational titles (SOC) and through unique work titles developed within each agency.
Due to this broad banded classification structure, decentralized classification authority, and the diverse
nature of the services provided by the Commonwealth’s workforce, multiple and wide ranging
5
occupations as well as multiple industries are often represented within one role code. It is also
common for one employee role title to contain multiple unique Standard Occupational Codes (SOC)
and vice versa; a single Standard Occupational Code (SOC) may contain multiple unique employee role
titles.
Table 1 – COVA Job Structure Analysis
This varying structure dictated the creation of a “Commonwealth Occupation” for the purposes of
benchmarking and analyzing common themes and general occupational indicators. A Commonwealth
Occupation is defined as the unique combination of one employee role code plus one unique standard
occupation code (Role + SOC). Where further clarification was necessary for market benchmarking
base salary levels, the most common working title was used to assist in making the appropriate job
match.
Table 2 - Market Benchmarking Job Match Analysis
Using these Commonwealth occupations to represent one Commonwealth job, DHRM and Deloitte
analyzed data related to each comparator group to indicate recruitment and retention challenges
found across the Commonwealth.
6
All analyses focused on Commonwealth employee and occupation data from June 30th, 2021 and was
subject to the data available to DHRM through central HRIS “PMIS” (Personnel Management
Information System). Therefore, agencies or positions not recorded in these centralized systems were
excluded from this analysis.
Turnover & Market Position Methodology
For the purpose of this study “turnover” is defined as the number of separation instances divided by
the total classified headcount as of June 30, 2021.
Due to the large number of unique jobs found across the Commonwealth, this study used FY20
turnover data to identify the Commonwealth occupations with the highest retention concerns; of
which best represented the Commonwealth’s general population. The benchmarked population
included a diverse mix of management, professional, support, and technical positions. Where possible,
positions benchmarked cover a large number of employees. Furthermore, the base salary and average
benefits value where annualized for part-time employees.
In total 213 Commonwealth occupations were benchmarked, representing 42,029 classified employees
or approximately 75% of the Commonwealth’s classified population.
To determine the Commonwealth position in the market, Deloitte compared employee compensation
to market data illustrating the 25th, median/50th, and 75th percentiles of government and general
industry data for total cash compensation (TCC equal the sum of base salary and annual bonus
awards), and total compensation (TC equals the sum of TCC and the annual value of employee
benefits). The general industry analysis covers 192 COVA occupations; the government industry
analysis covers these and 21 additional occupations found only in government (e.g. law enforcement
roles).
Select Commonwealth agencies apply market-based differentials to national market data to recognize
differences in the local cost of labor and recruiting difficulties in certain locations for select positions.
Deloitte did not geographically adjust the market data to accommodate those unique agency
differentials.
Turnover & Market Position Findings
Turnover:
According to Mercer Saratoga 2020 industry benchmarking data, the average turnover rate was 16%
and 8.3% in the private and public sector respectively. Out of the 213 Commonwealth occupations
selected for benchmarking, there were seven job families that represented the highest turnover
challenges. The Commonwealth’s high turnover roles range from 17.2% - 40.8%, which is significantly
7
above the national average. Administrative and Office staff, which reside in the lower pay bands (1-3),
were one of the job families with the highest turnover recorded. These positions could be leaving the
Commonwealth due to the rapidly increasing starting pay of other private sector administrative or
lower skilled occupations.
Direct Care and Nursing staff were also identified as one of the highest turnover roles. The majority of
the employees represented in this group are also positioned in the lower pay bands (1-4).
The full list of Commonwealth jobs by turnover percentage can be found in Appendix A – Turnover
Analysis by COVA Occupation, including 10 alternate positions considered for benchmarking.
Table 3 - Saratoga Turnover Benchmarking
Participants Median
2020 All 345 16.0%
Total Company Size:
2020 32 13.6%
Turnover / 50,000+
Headcount Industry: Public
2020 21 8.3%
Sector
COVA Statewide
FY 2021 105 12%
Total Turnover
Table 4 – Top Turnover Challenges by Occupational Family
Turnover Indicators by Occupational Family
Number of High Turnover
COVA Occupational Family Average Turnover Rate COVA Occupations
Admin and Office Specialist 22.4% 20
Direct Services Associates 33.4% 20
(Nursing, Psychiatric, & Healthcare Staff)
Registered Nurses/Nurse Practitioners
Law Enforcement 35.8%
17
(Troopers, Corrections, Campus Police, etc.)
Program Administration
25.3% 15
(Community and Social Services)
Information Technology 17.2% 11
Security Management 40.8% 10
Trades Technicians 24.1% 10
8
Market Position:
Compared to the private sector (general industry) as well as the public sector (government industry),
85% and 75% respectively of the Commonwealth’s employees are paid below the market median for
base salary. Considering that the analysis done in 2020 indicated that 84% and 63% respectively were
paid below market median for base salary, we can assume that the 5% state increase awarded in June
of 2021 kept our market position steady against private sector comparators, but did not when
compared to other government industry competitors.
Table 5 - Market Quartile Comparison Overall
The Commonwealth’s overall average position to market has improved slightly from 2020 to 2021
when compared to private sector market base salaries. In 2020 the Commonwealth’s average base
salaries were -16.5% when compared to general industry, where in 2021 that has improved to -15.7%.
However, all other metrics have not improved compared to 2020 data. The Commonwealth’s benefits
package against both private and public sector markets is weakening in value, as well as our overall
position for base salaries compared to other government industry competitors has also weakened
slightly.
Table 6 – Overall Variance to Market Median Year over Year
Private Sector (General Industry) Market Data Public Sector (Government) Industry Market Data
Base Salaries Total Compensation Base Salaries Total Compensation
2020 -16.5% +.6% -10.1% -6.8%
2021 -15.7% -1% -11.9% -10%
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With the averages being noted, it is important to understand the wide range of market variances that
exist across the Commonwealth. Among the positions benchmarked, the Commonwealth has
occupations that are as high as 63% above market averages where others are as low as 58% below
market averages demonstrating that not all positions in the Commonwealth are in distress. State
agencies have a diverse population of occupations and experience unique workforce challenges that
could be industry specific, role specific, or even employee specific. Although the average is hovering
around 15%-16% below market and some occupations are in a critical market position, not all
occupations across the commonwealth are in need of market adjustments. This variance will be
further explored under the Economic Conditions Analysis sections of this report.
Market Movement:
The average market increase for 2021 was reported as 3.0% and is projected to be 3.3% in 2022.
According to WorldatWork’s “2021-2022 Salary Budget Survey,” after dipping in 2020 because of the
COVID-19 pandemic, total salary increase budgets in the United States beat projections and rose to 3%
in 2021. This survey also found that salary increase budgets are projected to grow beyond pre-
pandemic levels to 3.3% in 2022. This data signals continued economic recovery and an increasingly
tight labor market.
However, a majority of private organizations vary their salary increases based on employee
performance and position in relation to market target. According to a recent survey by Willis Towers
Watson, companies gave management and professional employees who received their top rating an
average increase of 4.5% in 2021, 73% higher than the 2.6% raise given to workers who received
average ratings. According to the Society of Human Resource Management (SHRM), the private
industry best practice is to use a compa-ratio approach (calculated as the employee's current salary
divided by the current market rate) to award employee increase dollars based on the greatest business
need and to ensure the best return on investment (ROI). For the Commonwealth’s population, this
would mean a smaller increase for those occupations that are above market averages (e.g. occupations
63% above market target range) and a larger increase for those occupations below market averages
(e.g. occupations 58% below market target range). This method would also continue to ensure the
Commonwealth’s commitment to a fiscally sound approach to employee compensation.
The market positions for the top turnover roles can be found in Appendix B – Market Benchmark
Results; Table 6 – Market Position of High Turnover Occupational Families.
Market positions for all benchmarked Commonwealth occupations can be found in the accompanying
excel document: Total Compensation Analysis_2021_Final.
10
Economic Conditions Analysis
Background & Methodology
Due to the rapidly moving labor market, increasing turnover rates in critical and hard-to-hire positions
(e.g. many of the front-line workers in the COVID response efforts), and the minimum wage increases
mandated by sub section § 40.1-28.10 of the Code of Virginia, DHRM began to assess the overall salary
distribution of the Commonwealth’s classified workforce and the impact of an increasing minimum
wage on our current classified salary structure.
Through this analysis DHRM was able to identify the population that would fall below the new
minimum wage requirements in each respective year as well as the average salary distribution
compared to the forecasted salary structure in 2022 and 2023. The below analysis findings illustrates
critical areas of compression affecting the workforce. The distribution of average salary to the
minimum of the pay band also represents an inequity among the lower pay bands (1-4) versus the
higher pay bands (5-9).
This analysis was conducted under the assumption that the minimum wage will increase to $11 per
hour in January of 2022 and $12 per hour in January of 2023 and that the classified compensation
structure would adjust according to the minimum wage increase in pay band one and by the
representative percentage to maintain the structure ratios through pay bands 2 through 9. This
adjustment to the classified compensation structure includes a realignment of the all pay bands and
the creation of additional pay bands at the top of the range. This realignment would result in the pay
band minimums for pay bands 5 through 7 decreasing below their current levels. The full, proposed
new 2023 pay bands are detailed in Appendix C of this report. DHRM did not analyze the effect of the
increase in January 2025 to $13.50. The forecasted models also do not take into consideration any
unforeseen legislative changes or funding implications. Lastly, the models depicted below assume one,
three percent increase for all classified employees in calendar year 2022. Standard compensation
practices include annual salary increases for employees. Salary survey companies specialize in
employee pay, but they also inform their clients on how the market as a whole will move. This
information provides insight on ranges for annual increases of employee salaries. Per SHRM, the 2022
annual increase is expected to be three percent, which is on par for salary increases over the past 10
years. In the analysis, one three percent increase was assumed when projecting outcomes of the salary
structure recommendations, to keep up with the assumed market movement.
Economic Conditions Analysis Findings
The figure below is a visualization of the average salary for all employees in each pay band compared
to the range of each pay band projected for years 2022 and 2023. It is intended to show that the
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average salary in pay bands 1 through 4 are hovering the minimums of their respective pay bands
(compression), while average salaries in the upper pay bands are out of alignment with their respective
pay band minimums and maximums. Currently the lower pay bands (1-4), which represent
approximately 70% of the classified workforce, hover the minimum of their respective band. This
indicates severe compression within bands 1 through 4. The forecasted lines for 2022 and 2023 show
that the mandated minimum wage increases further exacerbate that compression at the bottom of the
structure.
The top of the classified structure tells a very different story. The higher level pay bands (5-9) have
averages significantly above the minimum. To the contrary of pay bands 1 through 4, this gap in
minimum and average salary is a structural distortion due to flat percentage increases to employee
salaries over time. Considering that a flat percentage of a larger number represents a larger increase,
this forecasted model becomes more distorted as additional flat rate increases are awarded and
represents an inequity in the population in pay bands 1 through 4.
Industry best practice regarding a compensation structure is to manage to market targets for each
specific occupation, as well as maintain stable ratios throughout the minimum to minimum and
minimum to maximum of each pay band. Due to flat percentage increases and varying changes to the
salary structure, current ratios have become inconsistent through the structure which could be
contributing to already significant compression, recruitment, and retention challenges. Below are two
figures that project out employee salaries compared to the minimum salary of their pay band. The
minimum salaries shown are part of a two phased approach to move the salary structure with the
minimum wage increases, and also build a salary structure that is consistent in width and depth. See
Appendix C for additional details.
Figure 1A – Minimum Salary Distribution versus Pay Band Range
Average Salary by Pay Band Compared to Salary Structure Changes
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*The median salaries and average salaries of grades 1-4 are within 3% of each other
Figure 1B – Projected Employee Population that will fall below Pay Band Minimum
Furthermore, of the employees who are projected to fall below the new role code minimums in 2022
and 2023 proposed in this report, 60% are in high turnover roles indicative of the lower pay bands.
Combined with the minimum wage increases in 2022 and 2023, this signifies that without targeted and
consistent occupational adjustments the Commonwealth occupations that are currently the most
compressed and hard to hire / retain will be further misaligned when compared to market targets as
well as within our classified structure. This population in particular will need dedicated pay actions in
order to bring salaries to their new minimum pay bands. Depending on assumptions, 2,200 to 8,000
employees are at risk to fall below their pay band minimums over the next two years, if the new salary
structure changes are applied. Budgeting for annual adjustments for at risk occupations, can help
alleviate future spending at a large scale.
Table 7 – Majority Distribution under 2022 Salary Structure Minimums by COVA Occupation
13
*assumes all pay band (grade) one employees are increased to the new minimum wage
When considering the industry best practice of awarding annual increases based on performance and
market position as well as the wide range of market benchmarking results (63% above market though -
58% below market), it is concluded that not every position across the Commonwealth is in need of the
same market adjustment.
It is also concluded that in relation to 2020 benchmarking, the Commonwealth’s market position is
weakening. This could be a result of specific occupations (mainly in the lower pay bands) becoming
increasingly compressed and falling further behind the market, while other occupations (typically in
the higher pay bands) are only keeping up with market movement.
This analysis indicates that in order to sustain the Commonwealth’s market position, appropriated
increases should be prioritized annually based on reported market movement. It also indicates the
need for a variable merit/performance structure to ensure the most effective impact on recruitment
and retention.
Summary of Findings
Base salaries of the Commonwealth classified population are on average 15.7% below the private
sector median and 11.9% below the public sector median. Total compensation is on average 1%
below the private sector median and 10% below the public sector median. The Commonwealth is
paying an average of $24,600 more than private companies in benefits, per the Deloitte analysis. It is
likely that benefits data for the private sector is underrepresented, which is lowering the overall total
compensation numbers of the private sector.
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85% and 75% respectively of the Commonwealth’s employees are paid below the market median for
base salary.
Not every position is in need of the same market adjustment. Currently occupations range from 63%
above market though -58% below market, signifying unique workforce challenges across state
agencies.
Recruitment and retention analysis clearly indicates critical challenges within several job families
ranging from 17.2% - 40.8% turnover, which could be caused by a weak market position and
compression within those representative groups.
The current classified salary distribution indicates severe compression within pay bands 1 through 4
while ratios in the higher pay bands have become distorted.
Prioritizing appropriated increases based on reported market movement could sustain the
Commonwealth’s current market position.
The use of a variable merit/performance structure could ensure a proactive and effective workforce
impact on recruitment and retention.
Recommendation
It is the purpose of this report to identify (i) the classified job roles that should receive higher salary
increases based on identified recruitment and retention challenges, and (ii) the appropriate amount by
which the salary of such classified job roles should be increased.
Based on the aforementioned market analysis, DHRM has identified several job families that are
experiencing critical turnover challenges, compression risks in pay bands 1 through 4, and specific
positions with an overall weak market position.
It has also been concluded that in order to keep pace with market competitors, annual employee
increases should be consistent and prioritized. It is recommended that appropriated employee
adjustments be included as part of the biennial budget development process based on reported
market movement. This will allow the Commonwealth to move to a sustainable and steady
methodology for addressing compression, recruitment, and retention risks.
When considering the wide range of our multi-industry and multi-occupational workforce, it is
recommend that the Commonwealth adopt a modern and market based approach to salary
adjustments. It is recommended to empower each agency to award variable increases based on
established metrics such as a performance multiplier component and a market variance component (as
outlined below). This will enable each agency the discretion to address unique workforce challenges
while protecting the stability, equity, and integrity of our overall compensation strategies and
15
structures. This will also support the financial accountability of the Commonwealth’s compensation
approach as well as maximize the workforce impact of appropriated funding.
After a collaborative and iterative design process, DHRM and Deloitte recommend that the
Commonwealth adopt the below compensation methodology:
1. Appropriate funds each year for annual salary increases using market data for merit/performance
budgets to determine the general Commonwealth merit budget.
2. Allocate budgets to each agency to address unique workforce challenges.
3. Instruct agencies to award increases based on performance and market position, as well as
recruitment and retention considerations.
Figure 2 - Illustrative Example of Appropriation Model and Agency Metrics
For the purposes of this example, the following scenario represents an individual employee:
1. The employee is compensated below the market median base salary and met all performance
expectations.
2. The employee received the second highest performance rating.
3. The employee’s occupation has experienced recruitment and retention challenges.
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Figure 3 Illustrative Example of Agency Implementation Process
If this strategy is adopted it is recommended that each agency be required to report to DHRM and DPB
how the allocations were awarded.
Appendix
Appendix A – Turnover Analysis by COVA Occupation incl. 10 alternate positions considered for
benchmarking
Most Populated Average
Working Title Salary for
EE Turnover Annual within COVA Working
COVA Occupation Count Instances Turnover % Position Title
Retail Manager II-General & Buyer/Product
Operations Managers 3 48 1600.0% Manager $51,220.00
Retail Specialist II-First-Line
Supervisors/Managers of Retail
Sales Workers 6 62 1033.3% Assistant Buyer $34,724.00
Retail Specialist I-Retail
Salespersons 7 32 457.1% Store Clerk $25,855.00
Law Enforcement Officer II-Police
Detectives 3 5 166.7% Lieutenant $59,617.00
17
Direct Service Associate I-Nursing Patient Care
Aides Orderlies & Attendants 18 22 122.2% Assistant $22,301.91
Security Officer III-Protective Advise, Train, &
Service Workers All Other 26 21 80.8% Counsel (ATAC) $36,411.23
Prog Admin Specialist I-1st-Ln
Supvrs/Mgrs of Ofc & Senior Medical
Administrative Support Wrkrs 19 13 68.4% Evaluator $52,963.89
Direct Service Associate II- Psych Care
Psychiatric Technicians 684 442 64.6% Technician $26,190.23
Law Enforcement Manager II-1st-
Ln Supvrs/Mgrs of Police &
Detectives - Lt 48 31 64.6% Lieutenant $105,617.11
Security Manager III-First-Line
Supervisors/Managers of
Correctional Officers 82 43 52.4% Assistant Warden $75,590.40
Human Resource Analyst II-
Employment Recruitment & Health Services HR
Placement Specialists 18 9 50.0% Coordinator $68,250.00
Prog Admin Specialist I-Managers Apprenticeship
All Other 14 7 50.0% Coordinator $52,123.00
Direct Service Associate III-
Psychiatric Technicians 617 302 48.9% Psych Tech III $35,273.85
Security Manager I-First-Line
Supervisors/Managers of
Correctional Officers 413 194 47.0% Lieutenant $49,415.72
Hearing Legal Servcs Offcr I- Adjudication
Paralegals & Legal Assistants 13 6 46.2% Specialist $61,374.75
Most Populated Average
Working Title Salary for
EE Turnover Annual within COVA Working
COVA Occupation Count Instances Turnover % Position Title
Security Officer IV-Correctional Resident Specialist
Officers & Jailers 143 62 43.4% I $40,153.69
Auditor I-Accountants & Auditors 14 6 42.9% Staff Auditor $57,750.00
Human Resource Analyst I-
Human Resources Training &
Labor Relations Specialists AO 132 56 42.4% Personnel Analyst $58,530.31
Counselor Manager-Community
& Social Service Specialists All
Other 52 22 42.3% Program Manager $51,189.46
Law Enforcement Officer II-Police
Patrol Officers 64 27 42.2% Police Officer II $50,323.31
Security Officer III-Correctional
Officers & Jailers 4718 1989 42.2% Corrections Officer $40,013.03
Direct Service Associate III- Senior Human
Healthcare Support Workers All Services Care
Other 19 8 42.1% Specialist $33,365.33
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Human Resource Analyst I-
Compensation Benefits & Job HR Benefits
Analysis Specialists 31 13 41.9% Specialist $58,891.67
Counselor II-Probation Officers &
Correctional Treatment Casework
Specialists 332 137 41.3% Counselor $42,732.05
Food Service Technician III-1st-Ln
Supvrs/Mgrs of Food Preparation Food Operations
& Serving Workers 223 92 41.3% Supervisor $36,859.03
Security Manager II-First-Line
Supervisors/Managers of
Correctional Officers 266 106 39.8% Captain $57,147.56
Licensed Practical Nurse-Licensed
Practical & Licensed Vocational Licensed Practical
Nurses 404 158 39.1% Nurse $50,856.62
Hsekeep &/or Apparel Worker I-
Laundry & Dry-Cleaning Workers 41 16 39.0% Laundry Worker $24,139.00
Hearing Legal Servcs Offcr I-
Administrative Law Judges Hearing Officer
Adjudicators & Hearing Ofcrs 131 51 38.9% Trainee $40,946.53
Security Officer III-Security
Guards 173 67 38.7% Security Officer $37,027.17
Counselor II-Mental Health & Cognitive
Substance Abuse Social Workers 202 77 38.1% Counselor $47,318.33
Trades Technician IV-1st-Ln
Supvrs/Mgrs of Mechanics Trades and Utility
Installers & Repairers 21 8 38.1% Master Mechanic $48,193.43
Most Populated Average
Working Title Salary for
EE Turnover Annual within COVA Working
COVA Occupation Count Instances Turnover % Position Title
Food Service Manager II-1st-Ln
Supvrs/Mgrs of Food Preparation Assistant Director
& Serving Workers 38 14 36.8% of Food Operations $43,377.26
Assistant Manager
Info Technology Specialist I- of Information
Computer Programmers 19 7 36.8% Technology $67,230.00
Law Enforcement Officer I-Police
Patrol Officers 66 24 36.4% Police Officer I $46,554.54
Prog Admin Manager II-
Community & Social Service Evidence Based
Specialists All Other 22 8 36.4% Practice Manager $72,707.43
RN II/Nurse Prct I/Phy Asst-
Registered Nurses 611 222 36.3% Registered Nurse $74,350.73
Registered Nurse Manager I-
Medical & Health Services
Managers 28 10 35.7% RN Care Consultant $89,388.00
19
Grounds
Trades Technician II-Landscaping Equipment
& Groundskeeping Workers 20 7 35.0% Operator $31,584.00
Admin and Office Spec III-
Purchasing Agents xcpt
Wholesale Retail & Farm
Products 23 8 34.8% Buyer $53,085.56
Law Enforcement Manager I-
First-Line Supervisors/Managers Law Enforcement
Law Enforcement Workers 23 8 34.8% Manager I $100,366.75
Registered Nurse Manager I- Nursing Unit
Registered Nurses 127 43 33.9% Manager $91,300.82
Therapy Assistant/Therapist I- Recreation
Recreational Therapists 65 22 33.8% Therapist I $43,652.18
Admin and Office Spec III- Customer Contact
Eligibility Interviewers Center
Government Programs 298 100 33.6% Representative $32,208.98
Engineering Technician I-
Construction & Building Inspector
Inspectors 18 6 33.3% Apprentice $42,717.44
Therapist II-Recreational Recreation
Therapists 42 14 33.3% Therapist II $41,404.70
Human Resource Manager I-
Human Resources Training & Human Resources
Labor Relations Specialists AO 53 17 32.1% Officer $65,597.04
Most Populated Average
Working Title Salary for
EE Turnover Annual within COVA Working
COVA Occupation Count Instances Turnover % Position Title
Psych I/Psychology Assoc I-
Mental Health & Substance District Mental
Abuse Social Workers 22 7 31.8% Health Clinician $59,981.95
Food Service Technician I-
Combined Food Preparation & Food Service
Serving Wrkrs Incldg Fast Food 101 32 31.7% Technician $22,927.80
Info Technology Specialist III-
Computer Occupations, All Other 64 20 31.3% Project Manager $108,600.92
Psych II/Psychology Assoc II-
Clinical Counseling & School
Psychologists 32 10 31.3% Senior Psychologist $74,359.00
Counselor II-Medical & Public
Health Social Workers 29 9 31.0% Health Counselor $48,137.40
Admin and Office Spec III- Administrative
Procurement Clerks 13 4 30.8% Support Specialist $40,001.00
Emergency Coordinator II-Police
Fire & Ambulance Dispatchers 91 28 30.8% Dispatcher $41,084.26
20
Law Enforcement Officer III-
Criminal Investigators & Special Senior Special
Agents - Senior 72 22 30.6% Agent $101,046.70
Admin and Office Spec III-Human
Resources Assistants Except
Payroll & Timekeeping 95 29 30.5% Personnel Assistant $39,757.00
Registered Nurse I-Registered
Nurses 278 84 30.2% Registered Nurse $69,410.61
Law Enforcement Manager I-1st-
Ln Supvrs/Mgrs of Police &
Detectives - Sgt 200 60 30.0% Sergeant $82,814.77
Law Enforcement Manager II-
First-Line Supervisors/Managers Special Agent In
of Police & Detectives 20 6 30.0% Charge Supervisor $87,363.00
Admin and Office Spec III-Bill &
Account Collectors 27 8 29.6% Legal Collector $35,211.83
Electrician
Trades Technician IV-Electricians 27 8 29.6% Supervisor $51,469.43
Psych I/Psychology Assoc I- Psychology
Mental Health Counselors 78 23 29.5% Associate $56,273.36
Direct Service Associate III-Social Senior Employment
& Human Service Assistants 146 43 29.5% Services Specialist $47,995.43
Direct Service Associate III-
Community & Social Service Offender Grievance
Specialists All Other 34 10 29.4% Counselor $41,398.13
Most Populated Average
Working Title Salary for
EE Turnover Annual within COVA Working
COVA Occupation Count Instances Turnover % Position Title
Outreach
Education Support Spec III- Education
Instructional Coordinators 24 7 29.2% Instructor $39,166.33
Trades Manager I-Administrative Section Manager of
Services Managers 24 7 29.2% Facilities $92,115.89
Computer
Computer Operations Techn II- Operations
Computer Support Specialists 14 4 28.6% Specialist $37,042.00
Human Resource Analyst I-
Employment Recruitment &
Placement Specialists 84 24 28.6% Personnel Analyst $49,549.67
Prog Admin Specialist III-
Community & Social Service Licensing
Specialists All Other 49 14 28.6% Administrator $82,732.85
Education Administrator III-
Education Administrators
Elementary & Secondary School 46 13 28.3% Principal $87,538.82
21
Law Enforcement Officer III-
Police Patrol Officers - Master 96 27 28.1% Master Trooper $97,168.76
Health Care Compliance Spec II-
Compliance Officers xcpt A C H&S
&T 79 22 27.8% Senior Investigator $72,383.70
Store & Warehouse Spec II-Stock
Clerks & Order Fillers 51 14 27.5% Storekeeper $32,379.79
Psych II/Psychology Assoc II-
Psychologists 22 6 27.3% Senior Psychologist $81,884.33
Law Enforcement Manager II-1st-
Ln Supvrs/Mgrs of Police &
Detectives - Cpt 26 7 26.9% Captain $121,820.44
RN III/Nurse Prct II-Registered Senior Certified
Nurses 52 14 26.9% Nurse Practitioner $94,482.81
Trades Technician III-Helpers--
Installation Maintenance &
Repair Workers 26 7 26.9% Utility Lead Worker $52,822.00
Law Enforcement Officer II-Police
Patrol Officers - I 160 43 26.9% Trooper I $48,570.09
Prog Admin Specialist I-Claims
Adjusters Examiners & Veterans Services
Investigators 75 20 26.7% Representative $46,594.45
Scientist I-Life Physical & Social
Science Occupations 105 28 26.7% Epidemiologist $51,533.17
Store & Warehouse Spec III-Stock Storekeeper
Clerks & Order Fillers 98 26 26.5% Supervisor $39,127.95
Most Populated Average
Working Title Salary for
EE Turnover Annual within COVA Working
COVA Occupation Count Instances Turnover % Position Title
Trainer and Instructor II-Training
& Development Specialists 80 21 26.3% Trainer Instructor II $56,128.90
Admin and Office Spec III-Court DMV Customer
Municipal & License Clerks 797 209 26.2% Service Generalist $34,191.91
Admin and Office Spec II-
Bookkeeping Accounting &
Auditing Clerks 23 6 26.1% Fiscal Assistant $37,456.08
Procurement Officer I-Purchasing
Agents xcpt Wholesale Retail & Procurement
Farm Products 180 46 25.6% Officer I $59,495.62
Prog Admin Specialist I-
Community & Social Service Human Services
Specialists All Other 231 59 25.5% Program Specialist $52,240.85
Human Resource Manager II-
Human Resources Managers All
Other 59 15 25.4% HR Manager $110,378.10
22
Security Officer IV-First-Line
Supervisors/Managers of
Correctional Officers 641 161 25.1% Sergeant $44,891.12
Compliance/Safety Officer III-
Construction & Building Construction Safety
Inspectors 12 3 25.0% Coordinator $57,750.00
Health Care Compliance Spec I-
Eligibility Interviewers Dental Analyst
Government Programs 224 56 25.0% Trainee $43,802.39
Law Enforcement Manager I-1st-
Ln Supvrs/Mgrs Protective Assistant Special
Service Workers All Other 16 4 25.0% Agent in Charge $69,118.00
Procurement Manager II- Procurement
Purchasing Managers 60 15 25.0% Manager $85,932.00
Therapist III-Occupational Occupational
Therapists 36 9 25.0% Therapist $76,987.67
Trades Technician III-Industrial Power Plant
Machinery Mechanics 16 4 25.0% Mechanic $46,806.73
Auditor I-Tax Examiners
Collectors & Revenue Agents 77 19 24.7% External Auditor $46,984.88
Probation Officer I-Probation
Officers & Correctional
Treatment Specialists 1222 299 24.5% Probation Officer $44,432.41
Natural Resource Spec II-
Protective Service Workers All
Other 112 27 24.1% Park Ranger $41,730.71
Most Populated Average
Working Title Salary for
EE Turnover Annual within COVA Working
COVA Occupation Count Instances Turnover % Position Title
Natural Resource Spec II-
Biological Technicians 17 4 23.5% Fish Culturist $38,072.69
PR & Mktg Mgr III-Public Communications
Relations Managers 17 4 23.5% Director $106,896.25
Transport Opertns Manager I-1st-
Ln Supvrs/Mgrs of Construction Maintenance
Trades & Extraction Wrkrs 319 75 23.5% Supervisor $53,575.78
Admin and Office Spec II-Office Office Services
Clerks General 1108 259 23.4% Specialist II $34,884.64
Food Service Technician I-Cooks
Institution & Cafeteria 91 21 23.1% Dietary Aide $28,759.77
Security Officer I-Security Guards 13 3 23.1% Security Guard $34,059.00
Procurement Officer II-
Purchasing Agents xcpt
Wholesale Retail & Farm Procurement
Products 118 27 22.9% Officer II $70,311.38
23
Direct Service Associate III- Human Services
Nursing Assistants 35 8 22.9% Care Worker $34,541.62
Equipment Serv Repair Tech I-
Automotive Service Technicians Equipment Repair
& Mechanics 57 13 22.8% Technician $45,375.50
Physician Manager I-Public District Public
Health District Directors MD 22 5 22.7% Health Director $195,145.50
Food Service Manager III-Food Director of Food
Service Managers 53 12 22.6% Operations $54,598.87
Admin and Office Spec III-
Information & Record Clerks All Program Support
Other 240 54 22.5% Technician III $37,155.69
Education Support Spec II-Health
Educators 27 6 22.2% Health Educator $43,783.04
Hearing Legal Servcs Offcr II-
Administrative Law Judges
Adjudicators & Hearing Ofcrs 81 18 22.2% Appeals Examiner $63,611.38
Gen Admin Manager I- General
Administrative Services Administrative
Managers 59 13 22.0% Manager I $109,866.71
Environmental Specialist I- Food Safety
Agricultural Inspectors 64 14 21.9% Specialist $52,951.61
Admin and Office Spec III-Medical
Records & Health Information Senior Medical
Technicians 55 12 21.8% Records Technician $47,467.00
Counselor I-Social Workers All
Other 46 10 21.7% Social Worker $46,617.58
Most Populated Average
Working Title Salary for
EE Turnover Annual within COVA Working
COVA Occupation Count Instances Turnover % Position Title
Psych II/Psychology Assoc II- Senior Psychology
Mental Health Counselors 65 14 21.5% Associate $73,430.96
Admin and Office Spec II-
Secretaries Except Legal Medical
& Executive 168 36 21.4% Senior Secretary $44,000.00
Info Technology Specialist II-
Database Administrators 14 3 21.4% Reporting Analyst $86,310.50
Compliance/Safety Officer III-
Occupational Health & Safety
Specialists 89 19 21.3% Safety Specialist $46,124.46
Direct Service Associate III-
Pharmacy Technicians 33 7 21.2% Pharmacy Assistant $44,394.14
Electronic Technician II-Electrical
& Electronics Repairers C & I Senior Electronic
Equipment 66 14 21.2% Technician $56,181.32
24
Prog Admin Specialist II-
Community & Social Service
Specialists All Other 943 199 21.1% Licensing Inspector $62,453.90
Electronic Technician II-
Electronics Engineering
Technicians 19 4 21.1% HVAC Technician $70,166.50
Trades Technician II-Maintenance Trades Technician
& Repair Workers General 19 4 21.1% II $32,881.50
Direct Service Associate II-
Nursing Aides Orderlies & Certified Nursing
Attendants 257 54 21.0% Assistant $38,318.26
Hsekeep &/or Apparel Worker I- Housekeeping
Maids & Housekeeping Cleaners 1253 263 21.0% Worker $25,168.03
Admin and Office Spec III-
Business Operations Specialists Contact Center
All Other 24 5 20.8% Agent $38,394.00
Admin and Office Spec II-Mail
Clerks & Mail Machine Operators
xcpt Postal Svc 96 20 20.8% Postal Assistant $32,442.98
Dentist I-Dentists General 29 6 20.7% Dentist $151,691.27
Procurement Manager III- Director of
Purchasing Managers 29 6 20.7% Procurement $104,273.00
PR & Mktg Spec II-Public Communications
Relations Specialists 63 13 20.6% Specialist $48,392.50
Agricultural Specialist IV- Plant Protection
Agricultural Inspectors 78 16 20.5% Inspector $48,888.29
Most Populated Average
Working Title Salary for
EE Turnover Annual within COVA Working
COVA Occupation Count Instances Turnover % Position Title
Trainer and Instructor II-Primary
Secondary & Special Education Special Education
School Teachers 74 15 20.3% Teacher $72,532.00
Assistant Divisional
Financial Services Manager II- Fiscal
Financial Managers 114 23 20.2% Administrator $116,224.20
Prog Admin Manager III-Social &
Community Service Managers 194 39 20.1% District Manager $90,637.07
Admin and Office Spec III-Payroll
& Timekeeping Clerks 25 5 20.0% Timekeeper $33,563.33
Senior
Environmental Specialist II- Environmental
Environmental Engineers 15 3 20.0% Engineer Specialist $68,993.20
Financial Services Spec II-Budget Senior Budget
Analysts 50 10 20.0% Analyst $75,052.67
25
Health Care Compliance Contract Monitor
Manager-Managers All Other 15 3 20.0% Manager $103,637.00
Human Resource Analyst II-
Human Resources Training & Senior HR
Labor Relations Specialists AO 116 23 19.8% Consultant $87,597.94
Registered Nurse I-Public Health
Nurses 200 39 19.5% Public Health Nurse $60,942.46
Utility Plant Specialist II-
Stationary Engineers & Boiler
Operators 36 7 19.4% Boiler Operator $37,679.73
Admin and Office Spec III-Office Office Services
Clerks General 134 26 19.4% Specialist III $36,660.60
Psych III/Psychology Assoc III-
Clinical Counseling & School Psychology
Psychologists 31 6 19.4% Supervisor $98,139.60
Financial Services Spec II- Quality Assurance
Accountants & Auditors 88 17 19.3% Analyst $65,332.60
Prog Admin Specialist II-Social & Population Health
Community Service Managers 83 16 19.3% Manager $67,858.36
Auditor II-Accountants &
Auditors 52 10 19.2% Senior Auditor $80,153.50
Transportation Operator II- Maintenance
Highway Maintenance Workers 2088 397 19.0% Operator $41,756.37
Library Specialist II-Library Access Services
Assistants Clerical 16 3 18.8% Specialist $43,183.00
Lnd Acq & Prop Mgmt Manager I- Right of Way
Managers All Other 16 3 18.8% Manager $93,024.08
Most Populated Average
Working Title Salary for
EE Turnover Annual within COVA Working
COVA Occupation Count Instances Turnover % Position Title
Trainer and Instructor I-
Education Training & Library Trainer and
Workers All Other 16 3 18.8% Instructor I $45,056.00
Direct Service Associate III- Recreational
Recreation Workers 43 8 18.6% Supervisor $42,636.38
Direct Service Associate II- Associate
Dietetic Technicians 146 27 18.5% Nutritionist $35,335.80
Financial Services Spec I-
Accountants 272 50 18.4% Accountant I $57,189.21
Utility Plant Specialist II-Power Power Plant Lead
Plant Operators 49 9 18.4% Worker $41,984.03
Natural Resource Spec III-
Foresters 71 13 18.3% Forester $48,372.84
Disability Veterans
Prog Admin Specialist I-Business Outreach Program
Operations Specialists All Other 530 97 18.3% (DVOP) $46,042.83
26
Environmental Specialist I- Senior
Environmental Health Specialists Environmental
Sr 214 39 18.2% Health Specialist $52,419.59
Compliance/Safety Officer IV-
Compliance Officers xcpt A C H&S Compliance Safety
&T 44 8 18.2% Officer $65,896.80
Lnd Acq & Prop Mgmt Agent II-
Business Operations Specialists
All Other 55 10 18.2% Right of Way Agent $65,425.33
Trades Technician III-1st-Ln
Supvrs/Mgrs of Lndscpng Lwn Svc
& Grndskping Wrkrs 33 6 18.2% Grounds Supervisor $42,797.80
Senior
Architect/Engineer I- Environmental
Environmental Engineers 50 9 18.0% Engineer $80,846.59
Health Care Compliance Spec I-
Compliance Officers xcpt A C H&S
&T 56 10 17.9% Recovery Analyst $57,285.85
Watercraft Operator I-Sailors and Ferry Crew
Marine Oilers 28 5 17.9% Member $35,629.38
PR & Mktg Spec V-Market Business Services
Research Analysts 17 3 17.6% Manager $76,939.00
Law Enforcement Officer III-
Criminal Investigators & Special
Agents - Agent 206 36 17.5% Special Agent $76,873.15
Natural Resource Spec II-Forest &
Conservation Technicians 46 8 17.4% Forest Technician $39,841.76
Most Populated Average
Working Title Salary for
EE Turnover Annual within COVA Working
COVA Occupation Count Instances Turnover % Position Title
Prog Admin Manager II-Social &
Community Service Managers 52 9 17.3% Regional Manager $84,882.00
Senior Agency
Policy Planning Spec I- Management
Management Analysts 168 29 17.3% Analyst $56,406.00
Trainer and Instructor II-
Vocational Education Teachers Business Education
Postsecondary 128 22 17.2% Teacher $53,668.44
Info Technology Manager II-
Computer and Information Chief Information
Systems Managers 70 12 17.1% Officer $148,925.00
Media Specialist III-Graphic
Designers 53 9 17.0% Graphic Designer $52,611.25
Info Technology Specialist III- Information
Information Security Analysts 65 11 16.9% Security Officer $95,177.17
27
Hsekeep &/or Apparel Worker II-
1st-Ln Supvrs/Mgrs of Custodial
Housekeeping & Janitorial Wrkrs 150 24 16.0% Supervisor $35,417.00
Scientist II-Life Physical & Social Senior
Science Occupations 163 26 16.0% Epidemiologist $72,734.62
Direct Service Associate III-Dental
Assistants 44 7 15.9% Dental Assistant $40,007.23
Education Support Spec II-
Educational Vocational & School Enrollment
Counselors 145 23 15.9% Coordinator $42,065.78
Veterans
Counselor II-Rehabilitation Rehabilitation
Counselors 256 40 15.6% Councilor (VRC) $62,461.43
RN II/Nurse Prct I/Phy Asst-Public Senior Public
Health Nurses Senior 77 12 15.6% Health Nurse $68,059.77
Info Technology Specialist I- Business
Computer Systems Analysts 26 4 15.4% Intelligence Analyst $54,574.00
Security Officer III-Transportation
Workers All Other 26 4 15.4% Traffic Controller $44,004.38
Media Specialist III-Media &
Communication Workers All
Other 46 7 15.2% Media Specialist III $54,628.73
Registered Nurse Manager II- Senior Public
Medical & Health Services Health Nurse
Managers 40 6 15.0% Manager $92,373.00
Education Support Spec III-
Education Administrators
Postsecondary 167 25 15.0% Academic Advisor $48,938.50
Most Populated Average
Working Title Salary for
EE Turnover Annual within COVA Working
COVA Occupation Count Instances Turnover % Position Title
Education Support Spec III-
Education Administrators All Education Support
Other 234 35 15.0% Specialist III $50,727.83
Trades Technician I-Landscaping
& Groundskeeping Workers 94 14 14.9% Grounds Worker $28,373.83
Engineering Technician III-Civil Weigh Station
Engineering Technicians 326 48 14.7% Technician $40,191.15
Prog Admin Specialist I-Eligibility
Interviewers Government Workforce Services
Programs 152 22 14.5% Representative $41,635.06
Agency
Policy Planning Spec II- Management Lead
Management Analysts 167 24 14.4% Analyst $74,194.33
Policy Planning Spec II-Business Policy Analyst
Operations Specialists All Other 155 22 14.2% Senior $76,591.75
28
Admin and Office Spec III-Office
& Administrative Support Program Support
Workers All Other 2347 329 14.0% Technician III $41,863.26
Laboratory & Research Spec I-Life
Physical & Social Science Laboratory
Technicians 50 7 14.0% Specialist $39,247.00
Trades Technician IV-1st-Ln
Supvrs/Mgrs of Construction Building & Grounds
Trades & Extraction Wrkrs 315 44 14.0% Supervisor $48,550.60
Program
Prog Admin Manager III- Management
Managers All Other 181 25 13.8% Manager $108,230.92
Trades Technician III-
Maintenance & Repair Workers Trades Technician
General 240 33 13.8% III $49,847.84
Admin and Office Spec III-
Bookkeeping Accounting &
Auditing Clerks 904 122 13.5% Fiscal Technician $44,886.31
Admin and Office Spec III-1st-Ln
Supvrs/Mgrs of Ofc & Office Services
Administrative Support Wrkrs 215 29 13.5% Supervisor $44,176.85
Gen Admin Supv I/Coord I-
General & Operations Managers 75 10 13.3% Business Manager $59,641.21
Law Enforcement Officer III-
Police Patrol Officers - Sr 379 49 12.9% Senior Trooper $72,773.87
Law Enforcement Officer II-Police
& Sheriff Patrol Officers 63 8 12.7% Police Sergeant $62,573.09
Most Populated Average
Working Title Salary for
EE Turnover Annual within COVA Working
COVA Occupation Count Instances Turnover % Position Title
Admin and Office Spec III-
Secretaries Except Legal Medical Administrative
& Executive 173 21 12.1% Assistant $42,802.30
Admin and Office Spec III-
Executive Secretaries &
Administrative Assistants 849 103 12.1% Executive Secretary $46,166.42
Food Service Technician II-Cooks
Institution & Cafeteria 124 15 12.1% Cook $31,499.78
Education Support Spec II-
Education Training & Library Education Support
Workers All Other 350 42 12.0% Specialist II $41,775.62
Law Enforcement Officer II-Police
Patrol Officers - II 610 73 12.0% Trooper II $57,588.97
Architect/Engineering Mgr II- Area Construction
Engineering Managers 262 31 11.8% Engineer $115,055.07
29
Financial Services Spec I-
Accountants & Auditors 207 24 11.6% Accountant I $56,285.90
Education Support Spec III-
Education Training & Library Education Support
Workers All Other 259 30 11.6% Specialist III $47,323.56
Gen Admin Supv I/Coord I-1st-Ln
Supvrs/Mgrs of Ofc &
Administrative Support Wrkrs 411 47 11.4% Office Manager $50,425.35
Prog Admin Specialist II-Business
Operations Specialists All Other 368 42 11.4% Planning Specialist $85,343.00
Financial Services Spec I-Tax
Examiners Collectors & Revenue Financial Services
Agents 257 29 11.3% Specialist $37,919.57
Info Technology Specialist II-
Software Developers, Sr Programmer
Applications 196 22 11.2% Analyst $89,079.50
Law Enforcement Officer I-Police
& Sheriff Patrol Officers 153 17 11.1% Police Officer I $51,578.73
Architect/Engineer II-Civil
Engineers 246 27 11.0% Senior Engineer $105,639.15
Info Technology Specialist III-
Software Developers, Sr Programmer
Applications 223 23 10.3% Analyst Expert $99,313.94
Info Technology Specialist II-
Computer User Support Info Technology
Specialists 246 25 10.2% Specialist II $80,849.93
Info Technology Specialist III-
Computer Systems Analysts 238 24 10.1% Systems Analyst $103,670.28
Most Populated Average
Working Title Salary for
EE Turnover Annual within COVA Working
COVA Occupation Count Instances Turnover % Position Title
Engineering Technician III- Senior
Construction & Building Construction
Inspectors 201 20 10.0% Inspector $65,937.59
Public Relations &
PR & Mktg Spec III-Public Marketing
Relations Specialists 257 25 9.7% Specialist III $58,484.83
Gen Admin Supv I/Coord I-
Executive Secretaries & Administrative
Administrative Assistants 310 29 9.4% Staff Specialist $56,580.86
Transportation Operator III- Maintenance Crew
Highway Maintenance Workers 313 28 8.9% Leader $49,402.50
Info Technology Specialist I-
Computer User Support Info Technology
Specialists 281 24 8.5% Specialist I $47,754.91
30
Architect/Engineer I-Civil
Engineers 417 35 8.4% Traffic Engineer $86,862.67
Support
Prog Admin Specialist I-Support Enforcement
Enforcement Officers 444 35 7.9% Specialist $45,161.73
Environmental Specialist II-
Environmental Scientists & Senior Natural
Specialists Including Health 652 49 7.5% Resource Specialist $79,158.10
Appendix B – Market Benchmark Results
Table 8 – Variance to Market: TCC & TC
Table 9 – Variance to Market Total Compensation
Table 10 – Market Position of High Turnover Occupational Families
Average Position to Market by Occupational Family
COVA Occupational Family Average Variance to Market (TCC/TC)
31
Admin and Office Specialist -23% / -7.5%
Direct Services Associates
(Nursing, Psychiatric, & Healthcare Staff) -19% / -7%
Registered Nurses/Nurse Practitioners
Law Enforcement -10% / -11%
Program Administration
-12.5% / -2.5%
(Community and Social Services )
Information Technology -5% / .5%
Security Management -14% / 4%
Trades Technicians -22% / -9%
Appendix C – Deloitte Market Benchmark Methodology and Comparators
Deloitte used the previous year's market data scope based on the Commonwealth's FY20 Annual Budget.
Deloitte will make any necessary adjustments to the scope of the data pending confirmation of the
Commonwealth's FY21 Annual Budget. Deloitte used the following salary surveys to compile market
compensation data:
• Economic Research Institute (ERI)
- 2021 Salary Assessor (data effective as of April 1, 2021)
• Empsight International
- 2020 "The Works" Survey (data effective as of March 1, 2020)
• Mercer
- 2020 Healthcare System Executives Report (data effective as of March 1, 2020)
- 2020 Healthcare Individual Contributors Report (data effective as of March 1, 2020)
- 2020 Physician Practices/Clinics Report (data effective as of March 1, 2020)
- 2020 Advanced Practice Clinicians and Nursing (data effective as of March 1, 2020)
- 2020 Executive Report (data effective as of March 1, 2020)
- 2020 Information Technology Report (data effective as of March 1, 2020)
• PayFactors (data effective as of July 1, 2021)
• Sullivan, Cotter & Associates
- 2020 Manager and Executive Compensation in Hospitals and Health Systems (data effective as of
January 1, 2020)
- 2020 Health Care Staff Compensation Survey Report (data effective as of January 1, 2020)
• U.S. Bureau of Labor Statistics (BLS) 2020 Survey (data effective as of May 1, 2020)
• Willis Towers Watson
- 2020 Health Care Executive & Mgmt Report (data effective as of April 1, 2020)
32
Appendix C – Salary Structure Recommendations
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File and source
- File
- 2021-RD817.pdf
- Size
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