REPORT DIGEST

ILLINOIS

DEPARTMENT OF CORRECTIONS

 

DEPARTMENT-WIDE FINANCIAL AUDIT

For the Year Ended:

June 30, 2006

GENERAL OFFICE

COMPLIANCE EXAMINATION

For the Two Years Ended:

June 30, 2006

DEPARTMENT OF JUVENILE JUSTICE

For the Month Ended:

June 30, 2006

Summary of Findings:

Total this report                      21

Total last report                      21

Repeated findings                   10 

 

Release Date:

June 20, 2007

 

 

State of Illinois

Office of the Auditor General

WILLIAM G. HOLLAND

AUDITOR GENERAL

 

To obtain a copy of the Report contact:

Office of the Auditor General

Iles Park Plaza

740 E. Ash Street

Springfield, IL 62703

(217) 782-6046 or TTY (888) 261-2887

 

This Report Digest is also available on

the worldwide web at

http://www.auditor.illinois.gov

 

 

SYNOPSIS

 

¨       The Department did not properly report vehicle accidents, maintain vehicle maintenance records, properly report the value of the “personal use” of State vehicles and file annual certifications of license and vehicle liability coverage.

 

¨       The Department did not follow administrative directives regarding accounting procedures or maintain adequate internal controls at their Adult Transition Centers.  

 

¨       The Department did not maintain adequate documentation of employee training and did not appoint designated training coordinators.

 

¨       The Department does not have an automated payroll timekeeping system.

 

¨       The Department is adding a charge to the purchase price of the goods to be resold in the commissaries prior to adding the statutorily allowed percentage mark-up to arrive at the sales price to charge inmates in excess of what is statutorily allowed.

 

¨       The Department transferred funds out of specific appropriations when all of those funds would be needed to pay outstanding liabilities, thereby obtaining an interest free loan from the CMS revolving funds until the next fiscal year.

 

¨       The Department is not complying with the requirements of the Illinois Procurement Code (Code) with regard to purchases of items for resale in the Department’s commissaries at Correctional Centers.

 

 

 

 

 

 

 

 

 

 

 

{Expenditures and Activity Measures are summarized on the next page.}


                              DEPARTMENT OF CORRECTIONS - GENERAL OFFICE

                             FINANCIAL AUDIT AND COMPLIANCE EXAMINATION

                                               For The Two Years Ended June 30, 2006

EXPENDITURE STATISTICS

FY 2006

FY 2005

FY 2004

  Total Expenditures (All Treasury Held Funds)...........................................................

$205,794,558

$208,360,627

$228,887,183

     OPERATIONS TOTAL..................................

         % of Total Expenditures.........................

$168,142,191

81.7%

$162,274,689

77.9%

$200,741,697

87.7%

         Personal Services...................................

            % of Operations Expenditures............

            Average No. of Employees...............

            Average Employee Salary.................

$77,156,364

45.9%

1,329

$58,056

$68,593,814

42.3%

1,314

$52,202

$72,115,028

36.0%

1,349

$53,458

         Other Payroll Costs (FICA, Retirement)............

            % of Operations Expenditures...........

$12,471,309

7.4%

$15,527,570

9.6%

$14,469,337

7.2%

         Contractual Services...............................

            % of Operations Expenditures...........

$46,342,316

27.6%

$46,030,573

28.4%

$57,471,756

28.6%

         Claims and Settlements....................................

            % of Operations Expenditures............

         Repairs and Maintenance.....................

           % of Operations Expenditures.............

         Electronic Data Processing...................

           % of Operations Expenditures.............

         Telecommunications.............................

           % of Operations Expenditures.............

         Commodities........................................

           % of Operations Expenditures.............

Operation of Automobile Expenditures....

           % of Operations Expenditures............

$235,777

.1%

$1,323,300

.8%

$4,619,823

2.7%

$7,864,767

4.7%

$863,673

.5%

$2,815,189

1.7%

$454,239

.3%

$399,997

.2%

$7,680,833

4.7%

$9,918,829

6.1%

$857,899

.5%

$2,545,560

1.6%

$16,115,207

8.0%

$3,376,044

1.7%

$8,863,239

4.4%

$11,065,252

5.5%

$1,436,258

0.7%

$2,183,046

1.1%

         All Other Operations Items......................

            % of Operations Expenditures   

$14,449,673

8.6%

$10,265,375

6.3%

$13,646,530

6.8%

     GRANTS AND PROGRAMS.........................

         % of Total Expenditures.........................

$37,652,367

18.3%

$46,085,938

22.1%

$28,145,486

12.3%

  Cost of Property and Equipment..................

$64,882,131

$64,182,601

$66,045,096

SELECTED ACTIVITY MEASURES (unaudited)

FY 2006

FY 2005

FY 2004

  ADULT CENTERS

         Average Daily Population.................................

         Rated Capacity................................................

         Population in Excess of Capacity......................

         Average Annual Costs.....................................

 

43,800

32,478

11,322

$20,593

 

43,036

32,478

10,558

$21,636

 

42,556

31,291

11,265

$21,295

  JUVENILE CENTERS

         Average Daily Population.................................

         Rated Capacity................................................

         Population in Excess / (Under) of Capacity........

         Average Annual Costs.....................................

 

1,459

1,754

(295)

$66,923

 

1,451

1,580

(129)

$70,911

 

1,552

1,580

(28)

$62,756

  ADULT TRANSITION CENTERS

         Average Population..........................................

         Rated Capacity................................................

         Population in Excess of Capacity......................

         Average Annual Costs.....................................

 

1,313

1,280

33

$22,629

 

1,323

1,280

43

$21,126

 

1,343

1,280

63

$21,240

AGENCY DIRECTOR

During Audit Period: Roger E. Walker Jr. 

     Currently:  Roger E. Walker Jr.


 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Department of Juvenile Justice

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 


Accidents involving State owned vehicles were not reported to CMS in a timely manner

 

 

Unable to determine if maintenance on State owned vehicles was performed timely

 

 

The required form to document the “Personal Use” of State owned vehicles was not on file for the correct year

 

 

Required certification of license and vehicle liability either not filed timely or not filed at all

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 


 

 

 

 

 

 

Problems in 6 specific areas

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Similar weaknesses have been reported in the last 7 audits.

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Failure to document employees received the minimum required training

 

 

 

Lack of designated training coordinators

 

 

 

 

 

 

Failure to maintain required documentation

 

 

 

 

 

 

 

Similar problems reported in the last three audits

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Need to fully automate payroll timekeeping system

 

 

 

 

Timekeeping data for correctional center employees is manually tabulated and then entered into the payroll system

 

 

 

 

Department attributes problem to insufficient funds

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 


 

 

 

 

 

$1,266,911 was collected from inmates during fiscal year 2006 from adding an additional charge to goods sold from the inmate commissary

 

 

 

 

Goods sold in the inmate commissary included an additional charge not allowed by State law

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

$4,045,700 was transferred out of appropriations used to pay CMS revolving fund billings leaving $5,617,433 owing the revolving funds at June 30, 2006

 

 

 

 

 

 

 

 

Department transferred funds to meet other obligations

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Purchases of goods for resale in commissaries not made in accordance with the Illinois Procurement Code

 

 

 

 

 

 

Competitive sealed bidding not performed

 

Terms and conditions not documented in formal contracts

 

Notices not published in the Illinois Procurement Bulletin

 

Administrative Directive does not include all Illinois Procurement Code requirements

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 


Department spent $1.3 million in FY 05 and $2.2 million in FY 06 to maintain the Rushville and Thomson Centers

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

INTRODUCTION

 

            This report presents our financial statement audit of the whole Department for the year ended June 30, 2006 and compliance attestation examination of the Department’s General Office operations for the two years ended June 30, 2006. 

 

      During the two years ended June 30, 2006 the Department administered 35 correctional centers, which were comprised of 27 adult centers and 8 youth centers.  In addition, the Department had 8 adult transition centers.

 

      Effective June 1, 2006, Public Act 94-0696 established the Department of Juvenile Justice.  This Act transferred certain rights, powers, duties, and functions that were exercised by the Juvenile Division of the Department of Corrections.  Effective July 1, 2006 the Department of Correction’s school district was transferred to the Department of Juvenile Justice.  For the ease of reporting and accounting, information related to the Department of Juvenile Justice is included within this report.

 

FINDINGS, CONCLUSIONS, AND RECOMMENDATIONS

 

Inadequate Procedures Regarding State Vehicles

 

In performing our testing of the Department, we identified several weaknesses regarding the reporting of vehicle accidents, vehicle maintenance records, reporting the value of the “personal use” of State vehicles and annual certifications of license and vehicle liability coverage.   We identified the following:

 

·        During our review of 25 reported accidents involving State owned vehicles, we found 14 instances in which accidents had not been reported to the Department of Central Management Services (CMS) on a timely basis.

 

·        During fiscal year 2006, we examined maintenance records for 25 vehicles and were unable to determine that proper maintenance records were maintained for 21 of the vehicles.  Supporting documents that contained the mileage associated with each oil change could not be provided. 

 

·        During our testing of employees who were allowed the “personal use” of a State vehicle, we identified the required form for 14 out of 18 employees tested was not on file with the Department for the correct calendar year.

 

·        During our testing, we found that 4 of 50 employees filed their required annual certifications of license and vehicle liability after the July 31st deadline.  In addition, the Department could not provide copies or support that 3 of 50 employees had filed the required annual certification of license and vehicle liability coverage.

 

     Department personnel stated all employees who travel are required to follow the Department’s Administrative Directive regarding vehicle accidents.  Employees are encouraged to submit vehicle accident reports in a timely manner.  The maintenance of personally assigned State vehicles is the responsibility of the employee to whom the vehicle is assigned.  Department personnel also stated the oil changes are being performed; however the paperwork is not reaching the responsible input operator.  Further, issues relating to reporting the “personal use” of State vehicles and late or missing certifications was due to human error and oversight.  (Finding 1, pages 14-17)  This finding was first reported in 2000.   

 

     We recommended the Department: (1) Send a formal notice to those employees whose jobs involve travel to remind them of the requirement and importance of filing accident reports in a timely manner.  (2) Enforce vehicle maintenance schedules to reduce future year expenditures for repairs and to extend the useful lives of vehicles. (3) Establish controls to ensure compliance with the Treasury Rule regarding the “personal use” of a State vehicle.  (4)  Review procedures over timely filing of the required annual certification of license and liability coverage.     

 

Department officials accepted our recommendation and responded management continues to work to achieve the highest level of internal controls regarding assets and vehicles.  The Department’s response went on to highlight some of the specific tasks management will perform to address our recommendation.  (For the previous Department response, see Digest footnote #1.)

 

 

 

NEED TO IMPROVE RECORDS AT Adult Transition Centers

 

Testing at the eight Adult Transition Centers (Centers) for the two years ended June 30, 2006, produced exceptions in the following areas:

 

·        Year end cash balances were misstated at six Centers.

·        Deficiencies were identified in the processing of Residents’ Trust Fund disbursements at two Centers.

·        Weaknesses were noted in one Center’s internal controls related to the Residents’ Trust Fund.

·        Documents related to resident loan files were not accurate and properly supported at two Centers.

·        Inadequate controls of property and equipment records were identified at three Centers.

·        Six resident financial files at one Center were missing required documents.

 

We reported similar weaknesses at the Centers in the previous seven audits.   Department personnel stated that the on-going issues are the result of human errors.  (Finding 2, pages 18-21)  This finding was first reported in 1994.   

 

 We made a number of specific recommendations to the Department to improve accounting procedures and controls at the Centers.  

 

Department officials accepted our recommendation and responded they have made significant improvements in the maintenance of the records at transitional centers during the past years and that increased utilization of automated accounting systems will address several of the exceptions.  (For the previous Department response, see Digest footnote #2.)

 

 

Inadequate Documentation of Employee Training and No Designated Training Coordinators

 

During our review of Department training records, the Department was unable to document that 30 of the 30 employees tested had met the minimum training hour requirement.  Fifteen employees were from the General Office, five were from the School District and ten were from Field Services. 

 

In addition, there were no designated Training Coordinators for the General Office, School District or Field Services.  We reported the same issue of not being able to document the minimum training hour requirements to the Department in the previous three audits.

 

     According to the Department’s Administrative Directive, Clerical and Support staff (primarily those who have little or no inmate contact) are required to complete a minimum of 16 hours of training each year after their first year on the job.  All other employees are required to complete a minimum of 40 hours each year.  To ensure all employees receive training, the Directive further instructs that Training Coordinators shall be designated. Since the Department failed to maintain the required documentation, we were unable to determine if employees met the minimum training requirements.

 

     Department personnel indicated the lack of training documentation was a result of untimely review and monitoring.  The reason given by Department management for the exceptions is the same as was provided in the audits for the two years ending June 30, 2004, 2002 and 2000. (Finding 3, pages 22-23)   This finding has been repeated since 2000.

 

     We recommended the Department allocate sufficient resources to comply with their Administrative Directive to document and ensure employees receive the required training to enable them to perform their specific job duties.

 

      Department officials indicated they have implemented our recommendation and have named a training coordinator who will be responsible to ensure the proper tracking of training received and work with supervisors to ensure training records are maintained. (For the previous Department response, see Digest footnote #3.)

 

PAYROLL TIMEKEEPING SYSTEM NOT AUTOMATED

 

The Department-wide payroll timekeeping system is not fully automated.  During the current engagement period the Department implemented additional functions of the payroll system they use to further automate the processing.  This updated processing did not include all of the Department employees. 

 

We noted each correctional center still maintained a manual timekeeping system for several hundred employees.  Correctional center employees sign in and out and the sign-in sheets are sent to the timekeeping clerk.  Other information, including notification of absence and call-in reports, are also forwarded to the timekeepers.  No automation is involved except for the processing of payroll warrants. 

 

Department officials indicated there were insufficient funds available to develop a Department-wide system to replace the outdated manual system used for over 13,500 employees.  The Department, as a part of the Shared Services initiative, is participating in the design sessions for an integrated financial system, which will include timekeeping and payroll applications.

 

      Prudent business practices suggest that controls available through an automated timekeeping system can provide greater efficiency and reduce the potential for costly errors or employee abuse.  (Finding 4, page 24)  This finding has been repeated since 1998.  

 

      We recommended the Department implement an automated timekeeping system.

 

      Department officials accepted our recommendation and noted as part of the Shared Services Program the Department is scheduled to be one of the pilot agencies for the implementation of an automated timekeeping solution. (For the previous Department response, see Digest footnote #4.)  

 

MARKUPS ON Inmate Commissary Goods SOLD EXCEED LIMITS ALLOWED BY LAW

 

In testing the inmate commissary operations it was identified the Department was adding a charge to the purchase price of the goods to be resold in the commissaries prior to adding the statutorily allowed percentage mark-up to arrive at the sales price to charge inmates.  The Department phased in the application of the charge, effective November 1, 2005 the charge was set at 3%, and was raised January 1, 2006 to 7%.  During fiscal year 2006 the Department collected $1,266,911, from the charge.

 

The Unified Code of Corrections sets forth “the selling prices for all goods shall be sufficient to cover the costs of the goods and an additional charge of up to 35% for tobacco products and up to 25% for non-tobacco products.”  Based on the above statute the maximum amount to charge inmates for items sold in the inmate commissary would be the purchase price of the item plus any transportation costs the total of which would then be marked up to a maximum of 25%-35%.

 

Department management stated the charge was to help cover the costs of State employees who work in the inmate commissary, inmate labor for the commissary and utilities to operate the commissary.  Department management also noted that based on their interpretation of the statute and Statewide Accounting Management System (SAMS) procedures they were allowed to apply the charge.   (Finding 14, pages 37-38)

 

We recommended the Department comply with the statute and only mark-up the goods for resale in the inmate commissary the allowable amounts.  We also recommended the Department seek a formal written opinion from the Attorney General regarding whether the charge is statutorily allowed.

 

Department officials accepted our recommendation and noted historically the Department has reflected a cost based upon the items only. The Department went on to indicate they intend to work with other authoritative State agencies regarding a more refined interpretation of cost of goods. 

 

Department  Transferred Money From Appropriations and DID not Pay Revolving Fund Billings

 

In our testing we found that at June 30, 2006 the Department still owed the Department of Central Management Services (CMS) revolving funds $5,617,433.  The Department transferred funds from the appropriations of four classifications that should have been used to pay billings from the CMS revolving funds.  The net amount of transfers for fiscal year 2006 for the four appropriations was $4,045,700.  A total of $510,000 in transfers occurred prior to June 30, 2006, the balance of the transfers occurred during July and August of 2006, which was the fiscal year 2006 lapse period.  

 

Department management indicated they needed to transfer the funds from the appropriations used to pay CMS revolving fund billings to meet other obligations of the Department at the end of fiscal year 2006.  Per the CMS Administrative Rules, “User agencies shall not leave Internal Service Fund bills unpaid in order to circumvent fiscal year budgetary controls”.  The Department transferred funds out of specific appropriations when all of those funds would be needed to pay outstanding liabilities, thereby obtaining an interest free loan from the CMS revolving funds until the next fiscal year.

 

The use of transfers in this manner distorts the actual budgetary process by misleading what was actually used for the fiscal year related to those appropriations.  (Finding 17, pages 43-44)

 

We recommended the Department follow the CMS Administrative Rules and only transfer funds out of appropriations used to pay revolving fund billings when it is determined there may be excess funds and not to pay other obligations when those funds would be needed to pay current billings.

 

Department officials accepted our recommendation and noted they used the statutorily allowed ability to make 2% appropriation transfers as stated within the State Finance Act.  In addition, the Department also indicated they used the flexibility provided through utilizing CMS revolving fund catch-up billings to free up funds for other mandated obligations.

 

NONCOMPLIANCE WITH THE ILLINOIS PROCUREMENT CODE

 

The Department is not complying with the requirements of the Illinois Procurement Code (Code) with regard to purchases of items for resale in the Department’s commissaries at Correctional Centers.

 

The commissaries commodity purchases are made through non-appropriated locally held funds.  As a result of testing performed during our compliance examination we noted the following items:

 

  • Purchases were not made by competitive sealed bidding or competitive sealed proposals as required by the Code.  The Correctional Centers receive catalogs from various vendors and select products from the catalogs for resale in the commissary. 

  • Terms and conditions for the purchases of goods from vendors for the commissaries were not documented in the form of a contract as required by the Code.  Upon selection of a vendor an Order For Delivery (OFD) is prepared to document the purchase. 

  • None of the required procurement notices were published in the Illinois Procurement Bulletin as required by the Code.

  • The Department’s Administrative Directive, which provides guidance to employees on commissary purchase does not include all the requirements as set forth in the Code. 

 

Department management indicated they have requested guidance and direction from CMS on the commissary purchasing.  Due to security needs and specialized products, CMS and the Department are working together to determine the proper way to complete the purchases.

 

By not following the requirements of the Code the Department has limited the pool of available vendors to only a few selected vendors.  In addition, the Department may be paying more for commodities for their commissaries than they should.  (Finding 21, pages 50-51)

 

We recommended the Department comply with the requirements of the Illinois Procurement Code in making commissary purchases.

 

Department officials accepted our recommendation and noted they will continue to work with CMS to define competitive purchasing processes for the commissary operations that are consistent with the State’s procurement policy while meeting the security and safety needs of the Department.

 

OTHER FINDINGS

 

      The remaining findings are reportedly being given attention by the Department.  We will review the Department’s progress toward the implementation of our recommendations in our next engagement.

 

IYC - RUSHVILLE AND THOMSON CENTERS

 

During the engagement period the Department had not moved any inmates into the IYC - Rushville or Thomson centers. Funds were not specifically appropriated for fiscal year 2005 or 2006 to fund the operation of either Center.   

 

Since the completion of the centers, the Department has incurred expenditures related to personnel, contractual agreements and telecommunications to ensure the buildings were being properly maintained and secured.  The Department expended approximately $1.3 million and $2.2 million respectively, for fiscal years 2005 and 2006 on both Centers. Part of the fiscal year 2006 expenditures are related to opening the Minimum Security Unit at the Thomson Center. The Thomson Correctional Center’s Minimum Security Unit began receiving inmates in August of 2006.

 

Effective July 1, 2006 the Department of Human Services began utilizing IYC – Rushville for their Treatment and Detention Facility. 

 

AUDITORS’ OPINION

 

      Our auditors stated the Department’s financial statements as of and for the year ended June 30, 2006 were fairly presented in all material respects.

 

 

 

 

_____________________________________

WILLIAM G. HOLLAND, Auditor General

 

WGH:RPU:pp

 

 

SPECIAL ASSISTANT AUDITORS

 

      Crowe Chizek and Company LLC. were our special assistant auditors for this engagement.

 

 

 

 

DIGEST FOOTNOTES

 

#1 Inadequate Procedures Regarding State Vehicles– Previous Department Response

 

2004:   Recommendation accepted: The Department will make every effort to enforce procedures and requirements for the maintenance of State vehicles. The Department will remind staff of the importance of accurate and timely submission of information regarding the use of State vehicles and any accidents. Communication will be distributed to all staff utilizing State vehicles to remind them of the polices and procedures regarding the operation and maintenance of the automobiles.

 

#2 Adult Transition Centers Records Not Properly Maintained - Previous Department Response

 

(The Department response listed eight specific items to address the detailed recommendation in the finding, the specific responses are not included here, only a summary of the Department’s response.)

 

2004:   Recommendation Partially Implemented.  Several processing changes have been made at the ATCs including automation of the maintenance payment calculation; the consolidation of all inmate benefit funds; central reconciliation of locally held fund reports; monthly dormant account and check processing and other accounting procedures.

 

#3 Inadequate Documentation of Employee Training and No Designated Training Coordinators –Previous Department Response

 

2004:       Recommendation accepted: The Department will make every effort to ensure employee training is documented.  Training coordinators will be named for the General Office, School District and Field Services areas.  Employees receive numerous hours of training, most specifically on the job training.  Due to limited staff, cross training is a major requirement.  The hours of on the job training will be documented in order to address the appearance of a lack of training.  Additionally, a local area training coordinator will be assigned by functional area for the General Office, Field Services and School District.  The Department Training Academy will hold training to ensure the local area coordinators have an adequate base of knowledge to help the employees in their area to meet their mandatory training hours.

 

#4 PAYROLL TIMEKEEPING SYSTEM NOT AUTOMATED –Previous Department Response

 

2004:       Recommendation accepted: the Department is currently pursuing several options for the automation of the timekeeping system.  One avenue under investigation is the modification and utilization of the Department of Human Service’s system.  All system options are being carefully weighed to ensure the advantages are greater than the limited resources expended.