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MINUTES OF THE MEETING GENERAL GOVERNMENT AND HIGHWAYS SUBCOMMITTEE
50TH LEGISLATIVE SESSION HOUSE OF REPRESENTATIVES
The meeting of the General Government and Highways Subcommittee was called to order by Chairman Rehberg on January 30, 1987 at 8:00 a.m. in Room 132 of the State Capitol.
ROLL CALL: All committee members were present. Also present were Flo smith, Budget Analyst from the Office of Budget & Program Planning (OBPP) and Clayton Schenck, Senior Fiscal Analyst from the Office of the Legislative Fiscal Analyst. (LFA)
58A:0.00
DEPARTMENT OF JUSTICE
Legal Services Division
Patrick Driscoll, Chief Assistant Attorney General, addressed the committee. (Exhibit No.1) In this division, each team of four lawyers is responsible for duties in two major areas, namely criminal matters and opinion research and publication. (Exhibit No.2) Each team is also responsible for a variety of areas of specialization as shown on the exhibit. He reviewed the four programs under this division. There is a combined secretarial pool that serves all programs.
Mr. Driscoll referred to the budget comparison sheet prepared by the agency. (Exhibit No.3) A decrease of one secretarial position will have the affect of reducing the pool by sixteen percent and an increase in the individual workload by a corresponding amount. The agency requested the committee accept the LFA proposal that the division be funded for a full twenty FTE. Through the use of a computer system and dedicated secretarial personnel, the output has more than doubled over the last five to ten years. However, they are at the maximum and a decrease in personnel would greatly affect the type of work produced, as well as the volume. The present ratio is five professionals to one secretary and the division needs the one position returned.
(10.05)
Mr. Driscoll continued his review of the exhibit. The .25 attorney position is presently vacant because Mr. Driscoll asked for volunteers at the time the cuts were taken who would be willing to reduce their work to a .75 FTE. One
General Government and Highways Subcommittee January 30, 1987 Page 2
person accepted this position and is now a .75 FTE. However, if this attorney happens to leave within the next two years, the division would have to hire an attorney and the .75 position could be difficult to fill. He, therefore, requested the committee leave the full FTE in there. Perhaps the funding could be reduced by one-quarter. He addressed both the contracted services and travel issues.
Indian Legal Jurisdiction
Flo Smith presented the budget for the OBPP. (Exhibit No.4) There is a line-item in this budget which is a biennial appropriation for $400,000 in legal fees and court costs approved in the 87 biennium. Special Session 3 reduced the appropriation by $118,000. The agency's request for $376,000 as a biennial appropriation for the 89 biennium was reduced by approximately $42,000 as part of the cuts as suggested by the agency. This is 100 percent general fund.
Clayton Schenck presented the budget for the LFA. (Exhibit No.5) There is a 38.7% reduction from the 87 to the 89 biennium. The $400,000 biennial appropriation was cut back to $241,000 due to the two percent and the five percent cuts, with only $43,000 being expended in FY 86 as the work level was not as high as anticipated. The Indian Legal Jurisdiction Division attempted to minimize the use of outside counsel on new cases.
The LFA recommendation is as requested by the agency with the exception of the amount for the line-itemed biennial appropriation for outside legal fees, expert witnesses and court costs. This biennium the agency made the decision to utilize more in-house expertise. It does cost approximately $70 to $75 per hour for outside attorneys and about $25 per hour for a state attorney. Therefore, the staff was retained in the Legal Services Program and the biennial appropriation was increased to $50,000 per year for the 89 biennium. This is the d~fference between the two budgets.
Clay Smith, Assistant Attorney General, addressed the committee. (Exhibits No.6, No. 7 and No.8) The adjustment as shown on Exhibit No. 8 is money spent by the Project to retain outside private counsel and expert witnesses. Referring to the Blackfeet case, Mr. Smith estimated the damages that could be recovered to be in the neighborhood of $3,000,000 to $5,000,000, exclusive of interest. However, if the tribe was to prevail, there would be long term impacts in terms of reduced revenues.
General Government and Highways Subcommittee January 30, 1987 Page 3
Mr. Smith referred to the Crow matter as reviewed on the exhibit.
Chairman Rehberg left the meeting and Vice Chairman Stimatz assumed the chair.
There was discussion regarding the Blackfeet case. The two private sector attorneys hired to handle the matter are exceptionally competent and qualified and have been retained as counsel for the Project since 1978. Mr. Smith said he anticipated the case would go to trial within eighteen to twenty-four months. There would be appeals and this could ultimately go on for three to five years. Mr. Smith estimated approximately $350,000 would be needed in the biennium, $200,000 for attorney fees. The outcome of this lawsuit in terms of royalty interest will affect not only the Blackfeet Reservation, but also the Fort Peck Reservation. Mr. Smith said the stakes are high and that is why the agency believes the case should remain in the hands of those lawyers who have handled it since its inception. He said the LFA recommendation sets aside $50,000 each year of the next biennium for contracted services. If the Blackfeet case goes to trial, that will not even begin to pay for the expert witnesses in that case. He estimated the cost of those witnesses to be approximately $150,000, and this could be low. He said with assurance that, if the case is litigated, $100,000 will simply not do the job and would tie on hand behind the agency's back. This would not be in the best interest of the state. He also estimated if the case goes into heavy discovery and trial over the next biennium, it will require at least 100 to 120 hours per month lawyer time, or a full-time lawyer position. There would not be the manpower within the office to handle all other matters if this was brought in-house. He said the LFA's proposed reduction would be detrimental to tne state and would destroy the Indian Legal Jurisdiction Project or undercut its effectiveness to the point that it would not do the job it was supposed to do.
Chairman Rehberg returned and assumed the chair.
58B:3.00
County Prosecutor Services
Flo Smith presented the budget for the OBPP. (Exhibit No. 9) The budget allows funding to maintain current level of operations and is 100 percent general fund.
General Government and Highways Subcommittee January 30, 1987 Page ~
Clayton Schenck presented the budget for the LFA. (Exhibit No. 10) The increase is 2.1 percent from the 87 biennium and four percent vacancy savings was applied. There are no significant differences between the two budgets.
Mr. Driscoll requested that vacancy savings not be applied against the program because of its size.
Marc Racicot, Assistant Attorney General and Bureau Chief, gave a brief overview of the bureau and addressed the budget issues. (Exhibits No. 11 and No. 12) He said a decrease of $4,706 in vacancy savings would represent almost a quarter of the budget. The main part of their job is to travel in order to do work at the request of local officials. Therefore, he requested no vacancy savings be applied to the agency.
(7.00)
Agency Legal Services
Flo Smith presented the budget for the OBPP. (Exhibit No. 13) The agency offered $15,000 each year of the biennium in operating expenses as part of the permanent cuts. The 85 Legislature established an hourly rate of $46 per hour attorney time and $25 per hour for investigative time. The ~ June Special Session reduced that to $45 per hour for attorneys in order to reduce costs to agencies and to utilize some of the cash balances. She said she understood the agency planned to request the Legislature to raise the hourly rate to $48 per hour for attorneys and to $26.50 per hour for investigators. Funding is a proprietary account. Four percent vacancy savings was applied. .
Clayton Schenck presented the budget for the LFA. (Exhibit No. 14) There is an increase in the budget of 10.7 percent for the biennium. No vacancy savings was applied as it did not seem appropriate with the proprietary funds. Clayton continued his review of the differences between the two budgets as shown on the exhibit.
Mr. Driscoll said the agency concurred in the LFA recommendations and there were no other adjustments. (Exhibit No. 15)
(10.30)
Denny Moreen, Bureau Chief, gave a brief overview of the program. (Exhibit No. 16) This program was created in 1979 so agencies needing outside legal counsel could use their services rather than having to go to the private
General Government and Highways Subcommittee January 30, 1987 Page 5
sector. This would be substantially cheaper. The thought was most work for state government could be handled inhouse. The bureau's sole source of income is the hourly fees charged and they receive no direct general funds. The purpose is to defend agencies when they are sued and to act as hearings officers for Workers' Compensation. They al~Q bring suits on behalf of agencies and act as counsel for some agencies who do not have their own in-house counsel and need regular advice.
In answer to Sen. Keating's question regarding the increases, Mr. Driscoll said one of the original intents was to cultivate and keep highly experienced trial counsel. The increases were made to forestall efforts by outside firms to steal the best people. Mr. Moreen said his good people were contacted constantly about going to work for someone else.
Mr. Driscoll said the bureau has resisted efforts to expand as they would have to go out of the building and costs would be added. They would lose some of the economies, such as the shared secretarial services and computers.
There was discussion regarding costs involved in contracted services for outside legal counsel.
(23.00)
Law Enforcement Academy
Flo Smith presented the budget for the OBPP. (Exhibit No. 17) She said permanent cuts had been offered at .42 of an attorney position. The equipment request included some training films, audio-visual equipment and the replacement of five handguns each year. The funding is Motor Vehicle Fund, approximately $560,000 each year of the biennium and also some state special. Their tuition funding is down approximately $10,000 from the 86 actual. Budget restrictions have reduced the number of courses offered at the Academy. This has reduced their tuition income.
There are three modifications listed in the OBPP budget for this agency:
1. First Responder Emergency Vehicle - $19,000 in FY 88 and $25,000 in FY 89. To provide certified emergency medical training in life saving skills to entry level officers - To be funded with tuition.
General Government and Highways Subcommittee January 30, 1987 Page 6
2. Executive Institute - $25,000 each year of the biennium - Series of six executive level seminars to be held each year - To be funded with tuition.
3. Additional Basic Course - $16,000 in FY 89 only - This would be a 42-58 split in funding between tuition and Motor Vehicle Account.
Clayton Schenck presented the budget for the LFA. (Exhibit No. 18) There is a 1.5% increase with the majority of the funding from the Motor Vehicle Account. Personal services expenses were close to the appropriated amount, with two offsetting factors. There was approximately seven percent vacancy savings, which included leaving one position open all year. They were budgeted four percent vacancy savings. The difference was made up in an increase in the director's salary. Clayton addressed the adjustments. Personal services were reduced by one FTE and the operating expenses included adjustments to reduce relocation costs and dues. The rent increased $10,800 and there is an equipment allowance. Clayton referred to the differences as shown on the exhibit.
(30.00)
Bill Westfall, Administrator, addressed the committee and the budget issues. (Exhibit No. 19) The Law Enforcement Academy was reorganized from a bureau toa division. There is a staff of eleven FTE, with one vacant attorney position. Mr. Westfall said the law enforcement officers in the state are very bright and eager and are extremely committed. He said their jobs in this state are more difficult, and because of the small size of the agencies, they must do more than their counterparts in other states without some resources being available to them. They do the entire gamut of law enforcement. The training is very important. Mr. Westfall said in the absence of good law enforcement training, the officer will improvise, sometimes using improper procedures. This could lead to liability suits.
Mr. Westfall said the staff at the Academy has spent $5,000 of their own money since July of last year to attend various professional seminars, conferences and to purchase equipment.
He said the main 'concern was the restoration of some of the past quality to the training. More than a new home, the Academy needed money for new programs and restoration of those programs to their original top quality. He addressed
General Government and Highways Subcommittee January 30, 1987 Page 7
four 3reas of the budget:
1. Attorney 4 position.
2. Supplies and materials, specifically ammunition.
3. Equipment.
4. The expiration of the lease on the Academy.
He also referred to the budget modifications. Mr. Westfall elaborated on the needs of the Academy in the four areas outlined above. The attorney-instructor position would allow consistency in teaching, as well as having wellqualified instructors. The Academy has used the County Prosecutor's Office for instructors in the past. A qualified instructor would be able to identify with the special problems of law enforcement. Without this, they will have to hire legal instruction at $10 per hour, and that will not be of the quality necessary to produce a well-trained officer. The Academy also needs to update their courses.
59A:0.00
Mr. Westfall said he felt he should clarify that the Academy was budgeted $10,000 for ammunition in FY 86 and they only spent $5,270 of that amount. The Academy did lose their range in Bozeman. He said in the last three years they have not been able to provide an instructor's course or advanced courses. This impacts the quality of the local agency's firearms program. As a result, the officers have to go out of state to get the training and, as a result, money is spent on travel rather than training. The increase in the request for ammunition will allow the Academy to restore the programs.
Sen. Gage asked if the local agencies would be willing to absorb the cost through increased tuition if the various courses were provided at the Academy. Mike Schafer, Sheriff of Yellowstone County, said they would participate in such programs and he would be willing to put more dollars into the Academy for this kind of training. Mr. Westfall said it had been his experience that administrators are willing to pay for additional tuition in the areas of critical liability.
Sen. Keating asked where the firing range would be located. Mr. Westfall said it was his belief they would be able to reopen the Bozeman range. If they are unable to do that, they have been using a range in Helena and could continue this program. At present, they are going to Lewistown for
General Government and Highways Subcommittee January 30, 1987 Page 8
driver's training and they hope to consolidate the two into one area. It is their evaluation that the Lewistown site could be utilized for both areas of training and they are looking into this.
Rep. Poulsen asked if the Academy had checked into the firing range facility at Malmstrom Air Force Base in Great Falls. Mr. Westfall said they looked into that area.
In equipment, the Academy requested training films to readdress the library and video cassette machines to replace the old ones now in use. They also requested ten handguns over a two-year period of time. (Five handguns or revolvers and five semiautomatic weapons) These will replace the ones they now have. He said the staff needed to be brought up to par in the use of semiautomatic weapons.
Sen. Keating said due to the deficit in the Motor Vehicle Account, perhaps the Academy should be funded more through tuitions than the Motor Vehicle Account. Mr. Westfall said there was a residual effect at the local level as their training funds are also being reduced. The reduction in the tuition account has been a result of the dramatic reduction in the amount of training the Academy has been able to offer.
Mr. Westfall referred to Exhibit No. 20, a comparison of lease versus purchase on the existing facility. The lease is due to expire in October of 1988. There is an option to purchase the facility of about 15,000 square feet. The lease includes rent, utilities, janitorial services and supplies, laundry, general supplies for upkeep and repair and maintenance. Mr. Westfall recommended the option to purchase be exercised in lieu of extending the lease. There will also have to be included expense monies to handle the other items now taken care of by the lessor. Mr. Westfall said $55,000 would be an approximate figure for such expenses.
At Sen. Gage's request, Mr. Westfall addressed the overall costs of moving the Academy, as well as costs involved in remodeling. He said the needs of the Academy are unique and, historically, remodeling has not worked and has been costly. Mr. Westfall emphasized that program money was more important to the Academy at this time.
There was further discussion regarding the relocation of the Academy versus buying or leasing the present facility.
Sen. Gage was excused to introduce a bill.
General Government and Highways Subcommittee January 30, 1987 Page 9
Mr. \~estfall addressed the modification requests:
1. First Responder-Emergency Vehicle Operation. (Exhibit No. 21)
59B:0.00
2. Executive Institute. (Exhibit No. 22) Sheriff Mike Schafer, Yellowstone County, said this was the type of training needed in the state and the type of training they could af ford.
3. Additional Basic Course. (Exhibit No. 23) There is a tremendous skill issue here and the ratio needs to be lowered to 1 to 3 and will save money.
Sheriff Schafer reviewed the procedures followed for hiring new officers, the importan::::e of the quality of training received by these officers and the possibility of the officers paying for their training.
Sheriff Bob Buturovich, Butte-Silver Bow, said there is very little turnover in officers and emphasized the importance of education as a factor in law enforcement. The Community College in Glendive is now working toward offering an associate d, :ree program in law enforcement. He agreed with Sheriff Schafer there is a better caliber of officer now. He urged the committee not cut the funding for training as it will come back in the form of lawsuits.
Sen. Gage returned to the meeting.
Mr. Westfall said it has never worked to put the training for law enforcement officers into the private sector. He will provide a list of just who attends the Academy and a projection as to the number of trainees for the next biennium and the cost per student.
The committee recessed at 10:30 a.m.
The committee reconvened at 10:45 a.m.
Sen. Stimatz was excused.
General Government and Highways Subcommittee January 30, 1987 Page 10
(28.10)
Forensic Science Division
Flo Smith presented the budget for the OBPP. (Exhibit No. 24) She told the committee the agency had offered the one chemist position as part of the permanent cuts and, in addition, $5,000 in operating costs. The OBPP included replacement of laboratory equipment and some funds for general office equipment. The funding showed an increase in general fund due to the decrease in available Motor Vehicle Funds. The agency anticipated a higher amount of Alcohol Treatment Funds.
Clayton Schenck presented the budget for the LFA. (Exhibit No. 25) There is an increase from the 87 to the 89 biennium of 14.2 percent due to an increase in rent costs and in equipment maintenance costs as the warranty expired on some equipment. Clayton reviewed the adjustments to current level. The actual increase in rent amounted to approximately $50,000. The other increases are shown on the exhibit. The funding for this program is approximately eighteen percent Alcoholism Treatment Rehabilitation funds. In the 87 biennium, the balance of the funding was primarily out of the Motor Vehicle Account. However, due to the shortage of those funds, the general fund is shown in the LFA current level. Clayton referred to the differences between the two budgets. There is an error in rent and Clayton recommended the inflation factor be added to the current level.
Chairman Rehberg requested a breakdown of agencies drawing from the Motor Vehicle Account.
Sen. Keating asked what the source was for the Alcoholic Treatment Rehabilitation Fund?
Bob Kuchenbrod, Administrator of Central Services Division, said this was basically the wine, beer and liquor tax that supports the OUI portion of the budget. Sen. Keating wanted to know how this program used that fund. Mr. Kuchenbrod said it was determined in the beginning these funds should support that portion of the lab work involved with DUI.
(39.15)
Dr. Ronald L. Rivers, Administrator of the Forensic Crime Lab, addressed the committee. He gave a brief overview of the duties of the Lab.
f
General Government and Highways Subcommittee January 30, 1987 Page 11
They ~re to provide criminal justice agencies with a scientific analysis of evidence. Some of the services offered are:
1. Firearms and Toolmarks Examination.
2. Poison and Drug Analysis.
3. Arson Analysis.
4. Autopsies and skeletal ID.
5. Scene investigations.
6. Organ, fluid, fiber, hair and soil analysis.
60A:0.OO
Dr. Rivers said a great deal of their time is spent in the courtroom testifying as to the results of the analysis. They also consult with attorneys, doctors and law enforcement officials, as well as teach throughout the state at the request of the Law Enforcement Academy. They also speak at various seminars and meetings. He said the objectives of the division were to provide free services for law enforcement throughout the state of Montana, to continue their educational services and to improve turnaround time in the lab. Dr. Rivers said from his personal experience he has been called to testify on a Monday morning and, on Friday, it was decided his testimony was not needed. (He noted his services were free).
Arnold Melnikoff, Bureau Chief of the Lab, introduced John Conner, County Attorney for Jefferson County. Mr. Conner said the lab services were indispensable from a prosecutor's point of view and it was of great concern that the services. offered by the Crime Lab not be cut any further. At present, the prosecutors are having great difficulty getting the work done because of the cutbacks.
Arnold Melnikoff addressed the committee. He said the major problem they have is there are five areas of the laboratory and the people are not interchangeable as far as their work capability is concerned. He referred to a chart showing the structure of the lab and the duties and services offered by each section. He said he spends forty percent of his time on administrative duties and thirty percent in the chemistry section, as this is where they lost the one FTE. A backlog has been created in this section. As a result, the amount of
General Government and Highways Subcommittee January 30, 1987 Page ~2
time ~e now spends on trace evidence has dropped from seventy percent to thirty percent. He continued with his review of the chart and detailed the results of the cuts in each section. (Exhibit No. 26) Most sections have experienced a serious backlog. Mr. Me1nikoff said he had talked to the FBI concerning the backlog and they told him they are now under restrictions and will provide emergency services, but will not take a large volume to help a lab catch up.
There was discussion regarding the use of the DUI funds for the Forensic Laboratory.
Mr. Mike Murray, representing the Chemical Dependency Programs of Montana, addressed the committee. He said all funding for DUI programs are paid for by the offender and no fine money goes to support community treatment programs.
60B:0.00
Dawn Kangas, Administrative Officer of the Forensic Science Division, reviewed the requested adjustments as shown on Exhibit No. 27.
There was discussion regarding equipment purchases by the agency and the recommendations by the OBPP and the LFA.
In answer to Sen. Gage's question regarding the administration of the division, Dr. Rivers said the main problem seems to concern the turnaround time involved in the services offered to law enforcement agencies. He said without adequate equipment and a sufficient number of personnel, his hands were tied to resolve this problem. He said the division has had to prioritize and, as a result, he has stepped on toes.
Chairman Rehberg opened the meeting for public comment.
Mike Murray, representing the Chemical Dependency Programs of Montana, addressed the committee. (Exhibits No. 28, No. 29 and No. 30) He said his purpose was to comment on and define the inappropriateness of putting alcohol earmarked tax monies into the Forensic Lab. He said the amount of these earmarked monies had decreased as a result of the drop in liquor sales. The community programs get what is left. He said the community treatment programs are the ultimate example of the trickle-down theory in that what money is left after the Legislature has appropriated funding to other
General Government and Highways Subcommittee January 30, 1987 Page 13
services goes to the community programs for the treatment and rehabilitation of the chemically dependent persons. Mr. ~urray said those in the alcohol treatment field maintain the funding for the Forensic Lab from the alcohol earmarked tax was. no longer appropriate. The fund is decreasing and the state programs are using the greatest percentage of the funds. He urged the committee to completely eliminate this alcohol earmarked funding from the Department of Justice for the Forensic Laboratory. He offered as an alternative, to limit the appropriation from this earmarked tax fund to $100,000 for each fiscal year in the biennium and to inform both the OBPP and the LFA it is the intent of the committee for the next legislative session these earmarked tax funds not be included by this division as a part of their funding. He suggested the lab charge requesting agencies for the services performed. He also suggested the Highway Traffic Safety Division fund the training on the breatholizers and use the lab merely to repair and maintain the integrity of the equipment.
There was no further public testimony.
ADJOURNMENT: The meeting was adjourned at 12:05 p.m.
C~".·Q~ Dennis R. Rehberg~
DAILY ROLL CALL
__ G_E_N_E_R_._~L __ G_,O_V __ E_R_N_r~_E_N_T __ & __ H_I_G_m_-q_A_Y_8_-____ SUBCOMMITTEE
DATE 1-30-87
NAME
REPRESENTATIVE DENNIS REHBERG
SENATOR LARRY STU'ATZ
SENATOR DEL GAGE
SENATOR THOHAS KEATING
REPRESENTATIVE HF.ROLD POULSEN
REPRESENTATIVE
Form CS-30A Rev. 1985
,
JOE OUI_LICI
PRESENT
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ABSENT EXCUSED
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The Legal Services program provi~~s the Attorney General with legal research and analysis; provides legal counsel for state government of~icials, bureaus, and boards; represents Montana's interests in cases before state and federal courts, antitrust cas~s and cases involving property that reverts to the state in the ctbsence of legal heirs; interprets laws; provides legal assistance to local governments in bond issues and in other matters; and, en:orces the laws lclati:1Cj to the reporting and collection of unclaimed prop0rty belonging to persons who cannot be located.
Goals
The goals of the Legal Services Division are; to represent the State (if nontana in casps bl;fcre =3tClce and federal courts, to provich: the .?I.t+-.C]"'lc;Y Gc:neral with legal research and a;L1~y;:;is on t]ll,~~;ti"r,s s'..lb;nitted for the Attorney Guneral's OL'i!':ion, tu pc,:":.c1e 1':',],11 assistance to local yOvC'!',llnents on bOLd issues Lcnd other matters, and to enforce the laws relLltillg to the rt~porting and co llcc tion 0 f unc Inir.'.ed or c sc1ll;a ted property to the school trust fund.
Objectives
1. To respond thoroughly a~d
involving litigation ~nd opinion iog adequate review to ensure the
pro:-r<pt.l j' in L1O. t to r s requesL; ',,[lile providquality of work.
2. ':'0 l:1aintain and enhance the pr()~·ession~ll skills .:.md C l) n t i:<. u i n g knm-lledge of the Jegal staf£: b,:' ~:ovi(li:"q
legal eJucation.
3. To develop and periodically UplLltt~ Illa.nuals f~stab-1is11ing procecures for handlinq spec:'~ic types of cases, e.g., habeas corpus, general obligation und school bond issuance.
1. To render forma 1 and state and local officials.
inicrrnal writ"':erl Approx ima te 1~1
oplnions to lOa in 1985.
Page 2
2. To represent the State in ,J,;: criminal aHl'-,c:ls. Approx~~ate1y 96 in 1985.
3. To respond to all hab0a~-; corpu~) pf~titi()ns. Approx-imately 194 in 1985.
4. To monitoL' all chc:t11cI:YL!3 to 'II'.: ::·)!.t.}nd Ccn~;·:':'tu-
tion. Approximately 33 ill 1985.
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F.T.E.
Personal Service
Operating Expense Equipment
Total Expenditures
Fund Sources -------
General Fund
INDIAN LEGAL JURISDICTION
Actual Appropriated - - Current
Fiscal Fiscal Fiscal
1986 ._~.?8_7 __ 1988
2.00 2.00 2.00
$ 59,996 $ 60,19Z $ 60,258 48,848 207,460* 105,321
422 -0- -0------ ----
~~~~~~~~ $267,652 $165,579 ======== ========
Level Fiscal
1989
2.00
$60,335
5,322
-0-
$65,657 =======
*Includes $198,176 carried forward from fiscal 1986 of biennial appropriation for legal fees.
ii II
.... ___ i ~/~
% Change i 1987-89
Biennium i ----- U~
0.00
I I': 0.3 I:
(56.8)
illQ..·..Q.l
~ 138.7) =======
'';j
I (38.7)
=======
i 11 ..
The Indian Legal Jurisdiction Program staff provides coordination of trial and appellate lawsuits involving the state of Montana on the Indian tribes, provides legal t1 services, and supervises private attorneys contracted by the state to assist with II those cases.
The following table compares fiscal 1986 actual expenditures and funding to lJ appropriAtions as anticipated by the 1985 legislature. ..
A-98
I i
DEPARTMENT OF JUSTICE Page 11
Table 3 Comparison of the Appropriation to Actual Expenses - Fiscal 1986
Budge~ Item
F.T.E.
Personal Service Operating Expense - Reg. Operating Expense - Leg. Fees Equipment
2.00
$ 59,995 9,085
241,712 -0-
Total Exp. & General Fund §~!Q~1~~
Actual ~ -----
2.00
$ 59,996 5,312
43,536 422 ----.--.------ -
HQ~~~~g
Pl(fe~~~c~
0.00
$ (1) 3,773
198,176 ____ <1ill
$2Ql.L52~L -------------------------_ ... -.-- - '-'- --.- -- -- - - -_._---------------------------------------
Hoth positions were filled the en tire year, resulting in no vacancy savings in this program. Regular operating' expenses were down due primarily to a $4,000 travel cost decrease. A $400,000 biennial appropriation for legal fees and court costs was reduced $158,288 due to the 2 and 5 percent cuts. Of the $241,712 remaining only $13,536 was expended in fiscal 1986. The activity level was not as high as anticipated due to the Indian Jurisdiction Project's attempts to minimize the use of outside counsel on new cases which have arisen during the 1987 biennium, and, where possible, to perform as many services as reasonably feasible with state attorneys in pre-existing matters. This policy, together with relatively little activity in the !H~c~f~_et case since the summer of 1985 has resulted in a substantial present balance in the project's contracted services budget for the 1987 biennium.
Curren_tLevel AdN~!me!lts
Current level is as requested by the agency, which is a $10 increase in travel before inflation, exeept for the l1ne-itemed biennial appropriation for outside legal fees, expert witnp.sses, and ('ourt costs. This biennium the agency made the decision to utilize more in -house expertise. Their rationale for needing some of the outside legal help is that these lawyers are now experts on the case. However, the agency also notes that. much of their expertise was gained while doing work for the state. Also, the state lawyers do much of the work and hire the outside lawyers for court presentations. It costs $70 to $75 per hour for outside attorney assistance and about $1.5 per hour for a state attorney at grade 19, assuming he is productive only 75 percent of the time due to vacations, sick leave, holidays, and training. Therefore, staff were retaillf'd in the Legal Services Program and the biennial appropriation for outside legal fef's, expert witnesses, and court costs was increased from the $43,536 spent in fiscal 1986 to $50,000 a year or $100,000 for the 1989 biennium.
A-99
DEPARTMENT OF JUSTICE Page t2
COUNTY PROSECUTOR SERVICES
F.T.E.
Per90nal Service
Operating Expense
Total Expenditures
General Fund
Actual
Fiscal
1986
3.00
$108,158
~2_,_~16
$130,174 ========
Appropriated - - Current
Fiscal Fiscal
1987 1988
3.00 3.00
$110,079 $112,961
24,795 3-'~~!.2?~
$134,874 ~~~~~~~~ ========
$134,874 $135,181 ======== ========
Level - - % Change Fiscal 1987-89
~~ ~iennium
3.00 0.00
$112,868 3.5
-- 22,46_~ (4.5'
$135,334 2.1 ======== -----
$135,334 2.1 =====::==
The County Prosecutor Services Program (CPS) staff provides legal assistance to counties in the prosecution and disposition of major felonies and in cases in which county attorneys have conflicts of interest. This program also coordinates training and continuing legal education for county attorneys and city attorneys.
Fiscal 1986: Comparison of Actual Expenses to the Appropriation
The following table compares fiscal 1986 actual expenditures and funding to appropriations as anticipated by the 1985 legislature.
Table 4 Comparison of the Appropriation to Actual Expenses - Fiscal 1986
B~~lte}!! Legislature Actual Difference ---
F.T.E. 3.00 3.00 0.00
Personal Service $108,453 $108,158 $ 295 Operating Expense 21,568 22,016 (448)
Total Exp. & General Fund ~Hg!g~~ ~~~g!H~ H!~~!
Personal services are very close to the budgeted amount as this program experienced about 3 percent vacancy savings in the hours billed to this program.
Operating expenses were up about $1,000 for phone costs. This phone expense was offset by travel. being down about $1,000. The Governor's 2 percent cut of $2,643 primarily reduced the amount spent on repair and maintenance. A general fund program transfer was made into this program to cover the overexpenditures.
A-TOO
TO:
FROM:
DATE:
RE:
~, TATe OF-
MONTML·\
ATTORNEY GENERAL MIKE GREELY
',., ,:.,'. . '"
.. . '. ~ :'
flEHORANDUH
SUSAN M. HANSEN Administrative Officer
CLAY R. SMITH Assistant Attorney General
25 August 1986
Justification for 1988-89 Biennium Contracted Services Appropriation Requests by Indian Jurisdiction Project
The Indian Jurisdiction Project has attempted to minimize the use of outside cou~sel on new cases which have arisen during the 1986-87 biennium and, where possible, to perform as many services as reasonably feasible with state attorneys in preexisting matters. This policy, together with relatively little activity in the Blackfeet case since last summer, has resulted in a substantial present balance in the proiect's contracted services budget. As developed helow, however, I anticipate a marked increase of expenditures in Blackfeet, which increase wi 11 CL Imost certainly carry over into the entirety 0 f the 1988 - 89 biennium. I further anticipate contracted services e:<penditures in the Crow matter during the nt:;xt biennium. When the anticipated expenditures in those- Cdses are aggregated with a fairly minimal amount for general consultation, I estimate that a contracted services budget of $375,900 is appropriate for the 1988-89 biennium. It is import;.lnt to emphasize that this budget amount is premised on the following assumptions: (1) no new cases of maJor import requiring extensive use of outside experts 2re filed; and (2) the present policy of using state attorneys on n0W matters is continued.
The Sup cern" Court remanded the B Llckfeet rna t ter for further district court proceedings in June 1986. Those proceedings were subsequently stayed for settlement negotiations. The stay period has now technically ended, and, unless settlement is reached shortly, the lawsuit will enter into a formal pretrial discovery phase. Whi Ie it is somewhat early to predict preci se 1y what all the issues will be, we have generally assumed
Susan M. Hansen Page 2 25 August 1986
they ,,':'..':"1 correspond to those in the Crow case. Shou 1d this (,\3sumption prove accurate, we can expect to spend high amounts for outside counsel and experts. I estimate that, if the case is fully litigated, we can reasonably anticipate 100 to 120 hours per month at $70 per hour for retained counsel time during the next biennium and at least $150,000 in expert fees. In Crow, expert witness costs were approximately $190,000 bu~y using our experience in such rn0tter, we hope to effect some economies. If these estimates are correct, approximately $351,600 should be budgeted for Blackfeet.
The Crow matter is now on appeal before the Ninth Circuit. This office will prepare the initial draft of the State's brief for review by outside counsel. I have agreed that outside counsel should argue the matter orally before the Court of Appeals. It is very possible, if not likely, that such argument will not occur during this biennium. It is further likely that review of the Ninth Circuit's eventual decision will be sought before the United States Supreme Court. Because of the likelihood that oral argument will take place during the next biennium Qnd the possibility of further proceedings before the Supreme Court, I estimate at least 100 hours at $ 7 5 per hour \-Ji 11 b,_' devoted to this matter by outside counsel. If the Suppome Court \lere to grant review of the case, this amoun t would increase substantially. However, in the abst~tlce of this last contingency, $7, sao should be suf:i.cicnt for the next biennium.
A modest amount of expenditures should Le set aside for general consultation with ol:tsidf> counsel. These attorneys have developed L1 greLlt el,>:ll uf expertise through prior repres('n ta tion 0:- tt1l: S ~d te, and periodic consultation with them about no\! Ot- ,~:~i~~ting matters is highly desirable. I estimate thill_ dtldVerage of 10 hours per month ,-:t $70 per IH;\;r is ade/1U'..lte for this purpose--a total ot $1(;,800 for th(' r,c'::1: biennium.
It must be emphasized tlwt the (lbO'ie is largely predictive in nature and assumes that little unexpected litigation occurs. Most importantly, the estimate i~cludes nothing for major new litigation which, even if handled by state attorneys, involves substantial costs for, as an example, outside experts. The possibility of such litigation is, of course, always present, and supplemental appropriations during the next biennium may be necessary.
Program Desc~~~~i~n
The Indian Legal Jurisdiction prO(:lTJ.~ll provides representation and coordination o~ trial aG~ 3ppellate lawsuits involving the State of r:ontana and the Indian tribes, supervision of private attorneys contracted by the State to assist with those cases, and advi,,;t~ to state agencies on questions involving Indian legal natters.
Goals
The goals of the Indian Legal Juris~iction program are; to provide c9nsistent and accurn~p ndvice to state agencies on questions of Indian law which affect agency operations, to defend state ager.cies when their actions are challenged in court because of jurisdictional conflict between st~te law and t~ibal law, and to ensure a uniform state policy on lndian legal issues.
Objective,s
1. To provide tLnc)ugh r'2,3eal:<.:h on a~: m(\t~':f?:C3 submitted to the Pr()-j(:ct for opinion i"'\n(3 ad\'; (~p..
2. To litigate \rig0rously al ~ la\lsui ts f; le:d against state agencies involving quc~:)tions of conflict bett.leen state law and tribal law.
3. To provide cont toning legc,L t_ducati"1: ::or 3taff attorneys worki:1g on IndiClr. lec:pl L:i'ttcrs.
, '1 •
state' To te "vClilable for advi'>: ~qE-:;cics \vith questions ()n
~\n(l consul tcltion to Ir~ian l~gal matters.
Per forrnance Factr",,'
1. '1':-- .1u:nber of 1awsuits tIle proJ,.:'C t \:o-:-Ked on in a f iscd 1 ~"'(: t- • lOin FY86.
2. The amOt;nt of funds eXFended :-(d' c:cntracted legal work in a fiscal year. $43,500 i~ FY86.
DEP
ART
MEN
T O
F JU
STIC
E
PROG
RAM
02
IN
DIA
N
LEG
AL
JUR
ISD
ICT
ION
EX
EC
# S-4~
19
88
-89
Bie
nniu
m B
udge
t C
ompa
riso
n CO
NTR
OL
nonn
o LF
A ~
A-9
8 C
urr
ent
Lev
el
Serv
ices
----
----
----
----
----
----
----
----
----
----
----
----
----
----
----
----
----
----
----
----
----
----
----
----
--
F.
1.
E.
' s
PERS
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ES:
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erv
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Vac
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DEPARTMENT OF JUSTICE Page 12
COUNTY PROSECUTOR SERVICES
Budget Item
F.T.E.
Personal Service Operating Expense
Total Expenditures
Fund Sources
General Fund
Actual Fiscal
~
3.00
$108,158
~!!_1_~
$130,174 ========
$130,174 ========
Appropriated - - Current Fiscal Fiscal
1987 1988
3.00 3.00
$110,079 $112,961
_~4,}95 ~~Q
$134,874 $135,181 ======== ========
$135,181 ========
Level - - % Change Fiscal 1987-89
1989 Biennium
3.00 0.00
$112,868 3.5
_2Z,46~ (4.5)
$135,334 2.1 ======== -----
$135,334 2.1 ======== =====
The County Prosecutor Services Program (CPS) staff provides legal assistance to counties in the prosecution and disposition of major felonies and in cases in which county attorneys have conflicts of interest. This program also coordinates training and continuing legal education for county attorneys and city attorneys.
Fiscal 1986: Comparison of Actual Expenses to the Appropriation
The following table compares fiscal 1986 actual expenditures and funding to appropriations as anticipated by the 1985 legislature.
Table 4 Comparison of the Appropriation to Actual Expenses - Fiscal 1986
Budget Item ,
Legislature Actual Difference
F.T.E. 3.00 3.00 0.00
Personal Service $108,453 $108,158 $ 295 Operating Expense 21,568 22,016 (448)
Total Exp. & General Fund ~!~g~g~! ~HQ~!H HH~l
Personal services are very close to the budgeted amount as this program experienced about 3 percent vacancy savings in the hours billed to this program.
Operating expenses were up about $1,000 for phone costs. This phone expense was offset by travel being down about $1,000. The Governor's 2 percent cut of $2,643 primarily reduced the amount spent on repair and maintenance. A general fund program transfer was made into this program to cover the overexpenditures.
A-TOO
DEPARTMENT OF JUSTICE Page 13
Current Level A~j1t~Jment
There was no current level adjustment, except to apply 4 percent vacancy savings.
Budget Item
F.T.E.
Personal Service Operating Expense Equipment
Total Expenditures
Fund Sources
other Funds
AGENCY LEGAL
Actual Appropriated Fiscal Fiscal
1986 1987
10.00 10.00
$341,938 $334,252
100,907 101,794
~525 -0-
$454,370 $436,046 ======== ========
$436,046 ----------------
SERVICES
- - Current Level - - % Change Fiscal Fiscal 1987-89
1988 1989 Biennium
10.00 10.00 0.00
$367,455 $367,965 8.8 125,107 125,489 23.6
-0- -0- 1100.0 I
$49Z,562 $493,454 10.7 =::::::= ======== =======
$492,562 $493,454 10.7 ======== ======== --------------
The Agency Legal Services Program (ALS) provides legal services, upon request, to state agencies. Agencies are billed (at a current rate of $45 per hour) for attorney time and case-related costs to support the program.
Fiscal 1986: Comparison of Actual ~xpenses to the A'p'p'!:"opriation
The following table compares fiscal 1986 actual expenditures and funding to appropriations as anticipated by the 1985 legislature.
Table 5 Comparison of the Appropriation to Actual Expenses - Fiscal 1986
Budget Item
F.T.E.
Personal Service Operating Expense
Total Exp. & Proprietary Fd
Additions
Budget Amendments
Legislature
10.00
$333,970 103,057
~i~Z~Q~1
A-10 1
Actual Difference
10.00 0.00
$331,938 $ 2,032 100,907 2,150
~i~~~§i~ ~=i~~§~=
DEPARTMENT OF JUSTICE Page 14
The agency hours paid were 2.6 perc en t more than full time for ten people. This overexpenditure was possible due to budget amended funds to pay termination pay and to fund budgeted vacancy savings. Operating expenses in total were underexpended. Contract services were down $3,500. Supplies were down $1,000. Travel increased $3 , 400. Rent decreased $3,200 due primarily to renting less office " equipment. Repair and maintenance was up $1,200 due to vehicle repairs.
A budget amendment was approved for $9,009 of personal services to fund vacancy savings and termination costs, and for $21,955 of contract services for consultants to be retained in the preparation of legal cases. Of the $21,525 expended, $10,000 was spent in legal services, while the remaining $11,525 went for equipment.
Current Level Adjustments
The agency budget request is included as current level. Based on past experience and the agency's ability to provide services, there is no vacancy savings. The operating expenses increase for case-related costs. Should these costs not materialize the agency will receive no revenue to support the expenditures. In fiscal 1985 the operating costs were $133,207 or $32,320 more than fiscal 1986 due primarily to consultants and professional services used.
Funding
Agency Legal Services is a proprietary fund operation. The source of revenue is an hourly fee charged to user agencies for its services. The hourly fee in fiscal 1986 was $45. The legislature had approved an increase to $46 in fiscal 1987. However, Agency Legal Services retained the rate at $45 in fiscal 1987 due to budget lIiI constraints. The fee will need to increase by 6.2 percent to cover the budget at current level before pay increases. This increase would make the attorney cost per hour $47.80 and the investigator's hourly rate $27.50. The expenditure increases above the fiscal 1986 level are expected to be charged to the client as case-related.
A-T02
Program D~-'"cri[Jtior:
The County Prosecutor Service~:; p:::-Ulr-am provides legal assistance to counti8s in the! i·r-()SeCUi~i()n and disposition of major felonies and in cases in which county attorneys have conflicts of int0rest. This program also coordinates training and continuing 1~3al education for county attorneys and city attornoys.
Goals
The goal of the County Prosecutor Services program is to provide a variety of professional prosecution services to federal, state, and local officials npon request and as authorized by the Attorney General.
Objectives
1. To provide prospcution assistance when requested by county attorneys.
2. To design for county :t;,d assistants.
and r rovide COd ~ inui!'iq lc<]a 1 education city attorneys '-,lIlJ thr·ir ueFuties and
3. To draft and secure passage improve the prosecution function and of justice.
of legislation to th~ o~ministration
4. To pr-o',;ide L.:gal advice a:,,:: lP'.;:,nic~ll ,,~~sistanc(: as requested b~ local prosecutors.
5 • appellate argl..lmen~~ lJcf'.)re the Hcntana Suprerr,e Court.
6. --:') )rovide t:rc-i.ining fen- :.r.c i,lOTltilt1d EiCJrn·',.l~' Pa':rol, r1ontar.3. ;'ish, ~:.i.:.!.li!:e, and i':trk ' . .'ardens and law enforcemer:t off:'cers at the [.1ont;:lIlcl ~a\J Enrorcement Academy _:nel regional schools b..eld throughout the State of Montana.
Performance Factor3
1. Collect 33% of the cost of F' '- () v i d i r. g personal servicE::s in those cases prosecuted by c~s through charges ':-,s!S\2ssed to the coun t. ie'~) -:or requested
Page 2
prosccli'::orial a~)sistance at the r<l~c of $JO per hour. Amount billed in FY86, $33,800.
2. Provide a minimum of 18 r.Oll!"S of continu':"ng legal education for county and city ~tcorr~~s. 33.5 hours in FY86.
3. Provide training for lawen forcement officers at the Montana Law Enforcement Academy and at regional training schools ,,·,hen time allows. 350 hours in FY86.
... -.
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L'EPARTMENT OF JUSTICE Page 13
Current Level Adjustment
There was no current level adjustment, except to apply 4 percent vacancy savings.
AGENCY LEGAL SERVICES
Actual Appropriated - - Current Level - - % Change Fiscal Fiscal Fiscal Fiscal 1987-89
Budget Item 1986 1987 1988 1989 Biennium
F.T.E. 10.00 10.00 10.00 10.00 0.00
Personal Service $341.938 $334,Z5Z $367.455 $367.965 8.8 Operating Expense 100,907 101,794 lZ5.107 lZ5,489 Z3.6 Equipment ~5Z5 -0- -0- -0- 1100.0)
Total Expenditures $454,370 $436,046 $49Z,56Z $493,454 10.7 ======== ======== ======== ======== =======
Fund Sources
Other Funds ~~~~~~~~ $436,046 $49Z,56Z $493,454 10.7 ======== ======== ======== =======
The Agency Legal Services Program (ALS) provides legal services, upon request, to state agencies. Agencies are billed (at a current rate of $45 per hour) for attorney time and case-related costs to support the program.
Fiscal 1986: Comparison of Actual Expenses to the Appropriation
The following table compares fiscal 1986 actual expenditures and funding to appropriations as anticipated by the 1985 legislature.
Table 5 Comparison of the Appropriation to Actual Expenses - Fiscal 1986
Budget Item Legislature Actual Difference
F.T.E. 10.00 10.00 0.00
Personal Service $333,970 $331,938 $ 2,032 Operating Expense 103,057 100,907 2,150
Total Exp. & Proprietary Fd ~i~l!Q~l ~!~~!§!~ ~=~!!§~=
Additions
~ Budget Amendments
A-lOT
DEPARTMENT OF JUSTICE Page 14
The agency hours paid were 2.6 percent more than full time for ten people. This overexpenditure was possible due to budget amended funds to pay termination pay and to fund budgeted vacancy savings. Operating expenses in total were underexpended. Contract services were down $3,500. Supplies were down $1,000. Travel increased $3,400. Rent decreased $3,200 due primarily to renting less office equipment. Repair and maintenance was up $1,200 due to vehicle repairs.
A bUdget amendment was approved for $9,009 of personal services to fund vacancy savings and termination costs, and for $21,955 of contract services for Z consultants to be retained in the preparation of legal cases. Of the $21,525 expended, $10,000 was spent in legal services, while the remaining $11,525 went for • equipment.
Current Level Adjustments
The agency budget request is included as current level. Based on past experience and the agency's ability to provide services, there is no vacancy savings. The operating expenses increase for case-related costs. Should these costs not materialize the agency will receive no revenue to support the expenditures. In fiscal 1985 the operating costs were $133,207 or $32,320 more than fiscal 1986 due primarily to consultants and professional services used.
Funding
Agency Legal Services is a proprietary fund operation. The source of revenue is an hourly fee charged to user agencies for its services. The hourly fee in fiscal 1986 was $45. The legislature had approved an increase to $46 in fiscal 1987. However, Agency Legal Services retained the rate at $45 in fiscal 1987 due to budget constraints. The fee will need to increase by 6.2 percent to cover the budget at current level before pay increases. This increase would make the attorney cost per hour $47.80 and the investigator's hourly rate $27.50. The expenditure increases above the fiscal 1986 level are expected to be charged to the client as case-related.
A-102
-~
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DEPA
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PROG
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06
AG
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1988
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1 -~--------------------------------------------------~------------------------------------------------------------------------
106
CATE
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FY
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89 A
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I 1 1 I
AGENCY L:;;:CAL SERV:!:(~ES
Program Description
/10 1-30 -?7
The Agency Legal Services program provides legal services, upon request, to state agencies. Agencies are billed for attorney time and case related costs to support the program.
Goals
The goal of the Agency Legal Sen'ices p:::-cgram is to provide contracted legal services to state agencies at a reasonable cost, particularly where agencies need assistance with litigation.
Objectives
1. To provide legal services to state agencies on a fee basis.
2. To provide the ~;ervice s 0 f hea L lngs 0 ff icers to state agencies on a fee basis.
3. To continue to develop a legal st~~f with expertise in litigation.
1. To loi l'_ :i!:;cCll yeut-.
2. To :"i_ll fiscccl year.
Performance Pac tors
for 8,000 hours of at~Grney time 7,612.7 hours billcd,in FYP6.
for 1,320 hours of ir'.-cstigator i:iffi8
1,435.6 hours bill~d in FY86.
eClch
each
3. T-, " .~Cje all identifiah:e costa to client agen-cies . . -t~:1,SCJ9.69 costs billed in Ff86.
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DEPARTMENT OF J(fSTiCE Page 25
- ----.----- ------------------------------Table 11
Coml")" 1')<)1l of the Appropriation to Actual Expenses - Fiscal 1986 ----------- - ------.
Budget Item Actual --.-.. ---
F.T.E. 28.00 28.00 0.00
Personal Services
General Fund $L.~lL7~~ - -. _. -- -. - - - - -
=----~-------------~- -=-=-=~-----:~=-:--~=----~~----------------=-=-=--::-::-::-::-=-=-=-==-=--:::-===========
The progTam received a $70,000 goeneral fund supplemental in fiscal 1986, allowing the overexpenditure.
County attorney salaries have been held at the fiscal 1987 level with benefits. Some of the eounties froze the county attorney salaries in fiscal 1987, saving $11,058 in fiscal 1988 anel $11,084 in fiscal 1989. There are funds in current level for 14 full-time county attorneys, 21 county attorneys at 60 percent time, 20 county attorneys at half time, and 1 connty attorney at 20 percent time. As the state pays one half of the salaries, this is equivalent to 18.40 F. T . E.
The henefits rate is 12.44 percent in fiscal 1988 and 12.70 percent in fiscal 1989. "'frIIIII
ISSUE 1: FULL-TIME COUNTY ATTORNEYS
There are seven county attorneys serving full time whose population would only require a county attorney 60 or 50 percent of the time. In first, second, and third class counties with a population under 30,000, a county may have a part-time county attorney paid at 60 percent of the full time salary. For counties class four, five, six, and seven with a popUlation under 30,000, the part-time county attorney receives :)0 pf'reenl of tlw full-time salary. However, section 7-4-2706, MCA, states the cOlmty commi.<;sio!IP(s may, upon consent of the county attorney, establish the office of county attonwy as fnll-time. l!~~ving t.hese county attorneys on full time rather than part-time (';,-;ts $150,813 of general fund a year.
Op~J~n ___ i\: I),; not fund county attorneys which are not required by population to he full time for a biennium general fund savings of $301,686.
Qpt~~n_B: Continue to fund all non-required full-time county attorney positions.
ISSUE 2: HEALTH INSURANCE
The st~te is paying health insurance costs of $690 a year for 11 of the 56 county attorneys. Seven of the 14 fu11- time county attorneys receive health insurance and four who receive 60 percent of full-time pay receive health insurance. The countyW' attorneys are not state employees. If they were state employees, they would
A -773
DEPARTMENT Ol' JU:::>llU', PagE' 26
be required to be paid by the state at least half time to receive health insurance benefits.
If all 56 positions were compensated for half the stMe health insurance , contributions, the eost would be $38,640 a year.
Qpti~I}_~: Do not pay health insurance benefits for county attorneys for a biennnial general fund savings of $15,180.
Qp~i(}.~~: Pay health insurance benefits for all county attorneys at a general fund added cost of $62,100 for the 1989 biennium.
Option .Q.: Continue to pay some county attorneys health insurance.
ISSUE 3: SALARY INCREASE --- . - . - .
By law the county commissioners can give salary increases to equal to 70 percent of the last previous calendar year's consumer price index for all urban consumers. The Department of Justice has requested a 1. 2 percent salary increase each year. The law also allows the county commissioners to freeze the salaries. Thirty one of the salaries were frozen in fiscal 1987.
9£tioll~: Appropriate funds for the county attorneys' salary raises at a general fund cost of $21,529.
QpJ!Q!l_~: Do not appropriate funds for county attorneys' salary raises and freeze salaries at the fiscal 1987 level as shown in the current level numbers.
LAW ENFORCEMENT ACADEMY
Budget. I t~"'
F .T.E.
Persona 1 Serv i('~s
Operating Expense Equipment
Total Expenditure
Fund Sources --._----_._._---
State Special
Federal and Other
Tot;'!l Funds
ActUill.
Fiscal 1986
11.00
$277,033
304,729
. ___ 62...581
~~~~~~~~
$5B~,590
4,75?
~~~~~~~~ -_. __ ._--------
Approp - - Current
Fiscal Fiscal 1987 -}y~-
11.00 10.00
$275,323 $274,782
288,ort.9 303,516
-0- _},OO~ ----.----
$563,37Z ~~~h~~~ ========
$563,37Z $581,298
--.:~-- --- -0-
~~~~~~~~ ~~~h~~~
A-774
Level - - 7. Change
Fiscal 1987-89 1989 Biennium -------
10.00 (1.00 )
$274,365 ( 0.6'
310,619 3.6
_2.,00~ (8.9' ------
~~~~~~~ 1.5 =======
$587,984 1.9
-0- UOil.!..Q"!
~~~~~~~~ 1.5 ===":=~::
--------
DFPARTMENT OF ,jiTSTICE Page 27
The Law Fnfor(','m"nt AC'flciemy Bureau provides a professional education and training program In ('r-iminal justice for Montana law enforcement officers and other criminal justice P"!"->onnel.
Fiscal 1986: {,[jl,I!'l rison of Actual Expenses_ tOJhe Appropriatic!p
The follnwin§:'; ~able compares fiscal 1986 actual expenditures and funding to allocations as anticipated hy the 1985 legislature.
Table 12 Comparison of the Appropriation to Actual Expenses - Fiscal 1986
J~t!dget Item
F.T.E.
Personal Services Operating Expenses Equipment
Total Exp. & State Spec. Hev.
Additions
Budget Amendments
Legi~~.!llt!I~
11.00
$27Q,728 301,292
,3,,-OO,Q
§~§~~g§g
--------------_._---------
A9!U_~! piffereIlc~
11.00 0.00
$277,033 $ 2,695 299,970 1,322 , __ 6~~87 (3,587>-
~~§~~~~g ~===Hg=
Personal set'vices expenditures were very close to the appropriated amount due to: 1) 7 percen t vacancy savings, which included leaving one position open all year, rather than the hudgeted 4 percent vacancy savings, and 2) raising the director's salary over hmiget by 16.7 percnnt.
The one operating expense category which varied significantly from the anticipated level was other expenses, which increased from $1,090 in fiscal 1985 to $10,417 in fiscn1 19R6. The new eKpenditures were $2,765 for dues; $866 for training fees; $4,639 for relocation expenses; and $849 for rewards.
Equipmen tit f>nlS pnrchased in fiscal 1986 are $2,192 of multi -user computers, $150 of education ,In(\ l'f'creation e(p!ipment, "nct $3,945 of office equipment.
A budget :Hl11'1Himent was ;-tpprovcd in fiscal 1986 to fund physical fitness training' for 1<1<,., ,'oforcement. nfficers in preparation for implementation of minimum standards of phy<.;i,·al fitness for all Montana peace officers. The training was made a part. of the curdclIlllm at. nle academy, and $4,759 of the $5,000 appropriated was expended in fiscal 1986.
<:!JIrr:ent L,ev.e1 Adjustments
Personal services were decreased by 1.0 FTE. This was a grade 15 training officer which the agency changed to a grade 18 lawyer, but never filled in fiscal 1986. Operating expenses were increased $3,546 from fiscal 1986 to fiscal 1988 after
A-77 5
DEPARTMENT OF JUSTICE Page 28
removing fiscal 19R6 budget amendment expenditures of $4,759. Adjustments are made to reduce relocation costs by $4,639 and dues hy $2,700. Rent increased by $10,800, and other minor ('hanges result in an increase of $85. Equipment of $3,000 per year is included.
There are two sources of funding--tuition and fees and the motor vehicle account. Tuition is continued at 11.27 percent of the total cost, which is $65,495 in fiscal 1988 and $66,264 in fiscal 1989. The motor vehicle account funds the difference.
FIRE MARSHALL BUREAU ----------------------------------------
Personal Service Operating Expense
Equipment
Total Expenditures
Fund Sources ---. ---------
General Fund
Federal Revenue
Total Funds
Actual
Fiscal 1986
8.00
$247,895
77,138
_!_~4:0~
~~~~~~~~
$326,272
__ }},1_6)_
$339,433 ::::::::::::=:
Appropriated
Fiscal 1987
8.00
$225,459
80,452
_)~42
$316,053 ----------------
$316,053
-0-.------
$316,053 ========
- - Current Level Yo Change Fiscal Fiscal 1987-89
1968 1989 Biennium
8.00 8.00 0.00
$237,280 $237,547 0.3
71,195 71,936 19.21
__ 9-,.!'.~~ _~,8~~ 119.71
$318,327 ~~~~~~~~ 12.71 ======== ------
$318,327 $319,335 10.71
-0- -0- 1100.0 I ------- --------- ---
$316,327 ~~~~~~~~ 12.71 ====:==== =======
The Fire Marshall's Program is responsible for reducing the loss of life and property from fire, explosion, and arson. Services offered through this program are fire and arson investigation, inspection of state-owned buildings, fire code interpretation and enforcement, and the collection of fire data through the fire incident reporting system.
fiscal J_~ 8f?: _____ ~oJllP.~x.i§!l~ ot_A~!l!~_ ~xI!en~_s -.!~!11~ __ A. P.-PKop_~ia t!Q!!
The following table compares fiscal 1986 actual expenditures and funding to aHocations as anticipated by the 1985 legislature.
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$600,000
$500,000 $499,938
$400,000 $389,938
$330,000
'89 Biennium '91 Biennium Two-Biennium Total
D Lease
II Purchase
Montana Law Enforcement Academy Facility COMPARISON: Lease versus Purchase
The Legislative Auditor has projected the purchase price of the present MLEAD facility to be $279,938 on 31 March 1987. To continue the lease throughout the FY 1989 biennium would cost $315,109, according to the Legislative Fiscal Analyst and the Budget Office.
If the purchase option were exercised, the additional operating expense for the buildings would be $110,000 for the FY 1989 biennium.
The purchase price and operating costs (combined) exceed the budget recommendation for rent in the FY 1989 biennium by $74,829.
FY 1989 biennium
FY 1991 biennium
LEASE
$315,109
$330,000 $645,109
PURCHASE linc1udjni operatini costs)
$389,938
$110,000 $499,938
The potential savings made possible by exercising the purchase option is $145,171 for the FY 1989 biennium and the FY 1991 biennium.
.)/ I -3()-<6 7 ..
-~ .. ,--.---
BUDGET MODIFICATION
Department of Justice 1988-89 Biennium
Program: Law Enforcement Academy -22
TITLE: First Responder/Emergency Vehicle Operation
REQUEST: The Department requests authority to spend tuition State Special Funds to provide certified medical training in lifesavings skills (and emergency vehicle driving skills) to entry level officers in the Law Enforcement Academy.
JUSTIFICATION,: The First Responder component of this modi fication will provide certified emergency medical training in lifesaving skills to entry level 0 fficers in the Basic Course. The Emergency Medical Services Bureau will coordinate the 48 hours of instruction for this component. The Emergency Vehicle Operation component will provide 26 hours of training to improve basic driving skills and provide training for participation in high speed pursuits. All funds for this modification will be provided by tuition paid by agencies sending students to basic training.
FISCAL DATA:
F. T. E. s
Personal Services
Operating Expenses: Contracted Services Supplies & Materials Communications Travel Rent Utilities Repair & Maintenance Other Expenses
Subtotal
Equipment
Total Reauest +
Funding: Tuition State Special
Total Funds
FY 1988
-0-
-0-
7,800 4,401
-0-6,382
-0--0--0--0-
18,583
-0-
18,583
18,583
18,583
FY 1989
-0-
-0-
10,400 5,868
-0-8,510
-0--0--0--0-
24,778
-0-
24,778
24,778
24,778
o(~
/- 30- 87 BUDGET MODIFICATION
Department of Justice 1988-89 Biennium
Program: Law Enforcement Academy - 22
TITLE: Executive Institute
REQUEST: The Department requests authority to spend Tuition State Special Funds to provide a series of six executive level seminars each year which address contemporary issues of concern to criminal justice administrators.
JUSTIFICATION: This modification will provide for a series of six executive level seminars for criminal justice administrators. The training will address contemporary issues of concern to chiefs of police, sheriffs and other law enforcement administrators. The Law Enforcement Academy does not currently provide any training for managers. The Institute will be totally funded by tuition fees charged to participants.
FISCAL DATA:
F. T. E. s
Personal Services
Operating Expenses: Contracted Services Supplies & Materials Communications Travel Rent Utitlities Repair & Maintenance Other Expenses
Subtotal
Equipment
Total Request
Funding: Tuition State Special
Total Funds
FY 1988
-0-
-0-
13,630 2,760
240 6,880 1,800
-0--0--0-
25,310
-0-
25,310
25,310
25,310
FY 1989
-0-
-0-
13,630 2,760
240 6,880 1,800
-0--0--0-
25,310
-0-
25,310
25,310
25,310
~3 I~ 30-81
BUDGET MODIFICATION
Department of Justice 1988-89 Biennium
Program: Law Enforcement Academy - 22
TITLE: Additional Basic Course
REQUEST: The Department requests authority to spend State Special Funds to conduct one additional Basic Course annually.
JUSTIFICATION: This modification will allow the Law Enforcement Academy to conduct one additional Basic Course annually to provide a total of four Basic Courses per year. With only three Basic Courses per year the class size of this statutorily mandated training has grown to an unmanageable level. The additional Basic Course will allow the MLEA to limit class size to 30 students, which will ensure high quality training for Montana's Law Enforcement officers.
FISCAL DATA:
F. T. E. s
Personal Services
0Eerating EXEenses: Contracted Services Supplies & Materials Communications Travel Rent Utilities Repair & Maintenance Other Expenses
Subtotal
Equipment
Total Reguest
Funding: State Special
Motor Vehicle Account Tuition Account
Total Funds
FY 1988
-0-
-0-
-0--0--0--0--0--0--0--0--0-
-0-
-0-
-0--0-
-0-
FY 1989
-0-
-0-
12,287 1,488
-0-2,084
125 -0--0--0-
15,984
-0-
15,984
9,234 6,750
15,984
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DEPARTMENT OF JUSTICE rage 41
- - ------_._---------_._-------------------------
---------
F .T.E.
Personal Service Operating Expense
Equipment
Total Expenditures
General Fund State Special Federal Revenue
Total Funds
FORENSIC SCIENCE DIVISION
Actui'll Appropriated - - Current Fiscal Fiscal Fiscal
1986 1987 1988 ----------
15.00 15.00 15.00
$477 .603 $478,677 $497,372
210,287 180,848 270,427
_~~,4~ -0- 31,282
~~~~~~~~ ~~~~~~~~ ~~~~~~~~
$ -'-0- $ -0- $655,246
733.126 659,525 143,835
4,221 -0- -0--- .- -- _. - ..-
~~~~~~~~ ~~~~~~~~ $799,081 ========
Level - - % Change Fiscal 1987-89
1989 Bienniu", -----
15.00 0.00
$496,954 4.0
275,646 39.6
~,132 10.0 ---
$795,732 14.2 ======== --------------
$652,500 100.0
143,232 (79.4 )
-0- (100.0) ----- ---
$795,732 14.2 ======== --------------
The Forensic Science Program, which includes the Crime Laboratory, provides for a statewide system of death investigations, forensic science training, scientific criminal investigations in the state, and scientific analysis of specimens submitted by law enforcement officials, coroners, and state agencies. The laboratory analyzes blood, breath, and urine samples taken by law enforcement officers in connection with driving under the influence of alcohol or drugs (DUI) cases. The laboratory also performs drug and alcohol screens for the state Department of Institutions.
Fiscal 1986: Comparison of Actual Expe!1se_~ to!lleAppr~p_rt~~!o!l.
The following table compares fiscal 1986 actual expenditures and funding to allocations as anticipated by the 1985 legislature.
A-129
DEPARTMENT OF JUSTICE Page 42
Table 21 Comparison of Actual Expenses to Appropriated Expenses
F.T.E
Personal Service Operating Expense Equipment
Total Exp. & State Spec. Rev.
Additions
Budget Amendments
15.00
$481,585 177,270 48.025
~lg~!~~g
Actual -----
15.00
$477,603 206,066
49.457
~H~~J~~
Difference ----------
0.00
$ 3,982 (28,796)
-.0..432)
~!~~!~~~~
The overexpenditures in fiscal 1986 were covered by a $30,000 transfer of motor vehicle fees from the Data Processing Division and the Drivers' Services Bureau.
Personal services were very close to the anticipated level. There were 1.5 percent less hours paid for than 15 FTE with no vacancy savings would work. There were 2 upgrades from grade 13 to grade 15, which will result in about a $8,400 cost increase in future years for the same number of FTE. Also, the state medical examiner's salary increased 6.3 percent in comparison to 1.6 percent in the state pay p~. ~
Operating expenses were $28,796 more than appropriated due to increases in communications, rent, repairs and maintenance and other expenses. Communications were up due to postage, advertising, and phone calls. Rent was up due to a $13,000 increase in building rent. Repairs and maintenance was up due to a $6,000 repair on building and grounds and for laboratory equipment. Other expenses were up due to relocation costs of $3,000.
Equipment funded versus that purchased is shown in Table 22.
A-130
DEPARTMENT OF .JUSTICE rag~ 43
Table 22 Comp;l dson of Equipment Funded to Purchased for Fiscal 1986
Item
Model 433 - Gaschromatograph Linear Dual Pen Recorder Pyroprobe Pyrolyzer Beckman Dual Pen Recorder Forma Water Bath Houston Dual Pen Recorder Diamond Cell Sarvall CentrKuge Beckman Microfuge Centrifuge Hydrogen Generator Refrigera tors (2) Shelving Desks (6) Autopsy Instrument Table
Total
$28,900 1,300 5,125 1,350 1,900 1,391 5,000 2,234
825 -0--0--0--0--0-
-- ----
$27,720 -0-5,745 -0-1,105 1,275 1,670 3,134
898 2,645 1,090 3,506
450 --- --~!~
H~!!g1
$1,180 1,300
(620) 1,350
795 116
3,330 (900) (73)
(2,645) (1,090) (3,506)
(450) __ Glll
~n!H~}
------------------=-=-======================================= A budget amendment, funded by a Highway Traffic Safety grant, was approved
to provide training for one employee in the repair of breath testing equipment and to provide an inventory of spare parts for the equipment. Of the $6,000 awarded, $4,221 was expended in fiscal 1986.
~_ur.rent Level Adjustments
Overall, operating expenses increase $60,140 from fiscal 1986 to fiscal 1988, a 28.6 percent increase. The major reasons are a large building rent increase and increased equipment maintenance costs. Rent increases $42,108 over the base year, but is offset by a decrease in utility and garbage removal costs of $4,432 that are now included in rent, for a net increase in rent/utility costs of $37,676, or 77.7 percent. The increase is due to the move to a new building after the state architect cited unsafe structural conditions in the old building. Equipment maintenance costs increase $23,114 in fiscal 1988 and $26,809 in fiscal 1989. Maintenance costs on general laboratory equipment increllsed $7,769 in fiscal 1988, or 52 percent. The increase can be partially attributed to expiration of warranty periods. The majority of the maintenance increase, $15,345, was on DUI program breath testing equipment. The warranties on most of the equipment, purchased in 1984 and later, expire in the 1989 biennium. Other cost increases include $3,958 for a new janitorial contract in the new facility, inflation?ry increases in lab costs of $3,848 in fiscal 1988 and an additional $2, 916 in fiscal 1989, increased phone charges of $2,790, and $2,055 in fiscal 1988 only for safety supplies to comply with OSHA requirements. Operating expense decreases include one- time relocation expenses for the lab of $5,315, rl'r~onnel of $1,504, telephones of $1,905, a.nd security alarm system costs of $2,319. Other minor adjustments and inflation resulted in a net increase over the base year of $1,983.
A-131
DEPARTMENT OF JUSTICE Page 44
Office equipment includes a typewriter in fiscal 1988 as well as a new filing cabinet in each year of the biennium. Current level includes $30,000 for scientific equipment in fiscal 1988 and $23,000 in fiscal 1989. The priority replacement items were two gas chromatographs, electrophoresis power supplies, an analytical balance, and two fume hoods. The cost of these items is estimated at $10,000 over the amount funded.
The Forensic Science Division is funded at approximately 18 percent of total costs by alcoholism treatment state special revenue funds. In the 1987 biennium, the balance was funded out of motor vehicle state special revenue funds. However, due to a shortage of motor vehicle funds, funding for the forensic science program is returned to the general fund.
A-132
LAB SEcrION FTE's
O1emistry 1.3 (2)*
Serology 2
RESULTS OF BUDGET CUTS ON LAB SERVICES
8/15/86 Case Backlog
Drugs 95 (16 weeks)** Arson 10 (3 weeks)**
6 days in court 1986
1-27-87 Case Backlog
148 (26 weeks)** 2 (4 days) **
Short .7 FTE for 10 months. Not doing misdemeanor amounts of marihuana & hashish (40% of previous case load, 20% of actual analysis time). If 2nd chemist position not funded, situation will deteriorate further.
124 (6 months)** 341 (1 year)**
15 days in court 1986 Short .7 FTE for 5 months. New serologist needs additional training funds lost in last budget cut.
Trace Evidence.3 (0)* 120 (l year) ** 100 (2 years)**
DUI
Firearms & Toolmark
Toxicology
Lab Manager
2.3 (2)*
.7 (l )*
2 (2) *
.4 (1)
7 days in court 1986 Previously the lab manager provided .7 FTE and former serologist .3 FTE to trace evidence section of the lab. Lab manager now only scientist trained in trace evidence and can only provide .3 FTE to this section.
Blood Alcohol 70 (2 weeks)**
7 Intoxilyzers need repair (6 weeks)**
78 days in court in 1986
30 (1 week)**
7 Intoxilyzers need repair (6 weeks)**
When we obtained an additional FTE last legislative session we anticipated 40 Intoxilyzers in service, now there are actually 63 in service. (see Firearms Section)
23 (4 weeks) ** 90 (16 weeks )**
28 days in court in 1986
Firearms & Tbolmark Examiner provides .3 FTE for the DUl section of the laboratory.
70 (4-6 weeks) * * 30 (2-4 weeks) **
3 days in court in 1986 .
. 3 FTE worked in Chemistry Section
.3 FTE worked in Trace Evidence
* Indicates FTE's authorized by the legislature ** Indicates time frame needed to clear back log
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WITNESS STAT'EMENT
JJ /1 ...... L/ 1/ .( v I . \/
NAME ,q / / {-.:..... ;8 t , /"?, /
ADDRESS 3(~ -"J.--;';///r-f- .!/r;{c/--C"<- DATE /-'>">0 -J7
BILL NO.
WHOM DO YOU REPRESENT? . /(.'c/ .. ;1'J/ > c: f. A; /-/~~~~~~~~~~~~--~~~/~~~~~~~
SUPPORT ___________________ OPPOSE __ ~~___________ AMEND
PLEASE LEAVE PREPARED STATEMENT WITH SECRETARY.
Comments:
~J )-
CS-34
Public Funding Level Alcohol and Drugs For FY 88 and 89
Based on Executive Revenue Estimates and L.F.A. Recommended Appropriations
FY 86 . FY 87 ;
FY 88 FY 89 --EarmarKed $ 1,574,708 $ 1,572,671 $ 1,247,903 $ 1,147,381
Discretionary BG 397,329 392,770 392,126 392,126
* * Supplemental BG 226,505 173,403 281,354 281,354
Drug BG 405,885 405,886 405,885 405,885
Drug Gen. Fund 215,200 208,612 215,200 215,200
TOTAL $ 2,819,627 $ 2,753,342 $ 2,542,468 $ 2,441,946
(9.8%) (13.4%) From FY 1986 Level
(17.5%) (21%) If drug GF is not appropriated
* Includes Montana's 45% share of the drug treatment special block grant appropriated fro~ Drug Enforcement, Ed. and Control Act of 1986. Does not· include amount Montana will receive of the additional 55% one time award only.
f \DAD ADM .. FORENSIC LAB
.,T ST. PRISON
'INE HILLS "-SWAN RIVER
... ;ALEN
TOTAL L.
FY 86 ACTUAL
310,528
129,556
, ,51,618
28,053
27,283
1,595,609
2,142,647
LFA over Executive
I ' i
Biennium
-
EMR APPROPRIATIONS
1988 1989 EXECUTIVE LFA. EXECUTIVE LFA -,
342,255 368,701 327,371 353,761
148,565; 143,835 145,614 143,232
51,424 79.978 51,424 80,812
29,669 29,669 29,760 29,760
28,383 28,293 28,617 28,530
1,595,609 1,687,657 1z595 z609 1,694,394
2,195,905 2,338,133 2,178,395 2,330,489
$ 142,228 $ 152,094
$ 294,322
VISITOR'S REGISTER
G _E_N_E_R_A_L_G~O~V~E~R_NM=E=N~T~&_H=I=G=H~W~A~Y~S ____ SUBCOMMITTEE
AGENCY(S) JUSTICE DATE
DEPARTill:NT ___________ _
NAME REPRESENTING
( ... t ..
/' /1 .~ L. £.. ~)~ , ,
2Y..c/~ /f'/L·1.-V14'-"'1 ;?;/ e i?~#;c-", I j)~ /,)h~/""C L
J -30 ~
sUP- OPPORT POSE
IF YOU CARE TO WRITE COMMENTS, ASK SECRETARY FOR WITNESS STATEMENT IF YOU HAVE WRITTEN COMMENTS, PLEASE GIVE A COpy TO THE SECRETARY.
'-FORM CS-33A Rev. 1985
