2026 Classification and
Compensation Alignment Study
Utilities and Community Development
March 2026
Attachment 4
The City of San Clemente conducted a comprehensive market and classification review of key technical and professional classifications within the Utilities Division and Community Development Department. The study evaluated Electrical Instrumentation Technicians, Utilities Mechanics, SCADA Specialist and Community Development Coordinator classifications to assess market competitiveness, operational alignment, and workforce sustainability.
The analysis determined that while senior-level classifications remain generally competitive, entry- and journey- level Utilities classifications are materially below the regional wastewater labor market at the minimum, midpoint, and maximum salary ranges. This structural imbalance creates recruitment challenges, retention risk, and long-term succession planning concerns in a highly competitive and specialized labor market.
In addition, review of the SCADA Specialist classification identified expansion in scope and responsibility beyond traditional SCADA maintenance functions. The position now performs enterprise-level system administration, cybersecurity coordination, network oversight, and infrastructure integration responsibilities that align more closely with a SCADA Systems Administrator role in the regional market.
The Community Development Coordinator classification has similarly evolved over time to include professional-level analytical duties, program development, regulatory coordination, and preparation of complex reports and policy recommendations. The existing title and classification specification no longer accurately reflect the level and complexity of work performed.
This report recommends:
Realignment of entry- and journey- level Utilities salary ranges Establishment of trainee classifications to strengthen workforce pipeline development
Modernization of classification titles to align with industry standards Reclassification of the SCADA Specialist to SCADA Systems Administrator Reclassification of the Community Development Coordinator to Community Development Program Analyst.
These actions are designed to protect critical infrastructure operations, improve recruitment and retention outcomes, strengthen succession planning, and ensure teh City remains competitive in attracting and retaining skilled technical and professional staff.
EXECUTIVE SUMMARY
2 This study evaluates the City’s Electrical Instrumentation Technician I/II, Lead Electrical Instrumentation Technician, Utilities Mechanic I/II, SCADA Specialist, and Community Development Coordinator classification specifications to determine alignment with the regional labor market and evolving operational demands.
These positions support highly regulated wastewater treatment operations, public health and environmental compliance, enterprise control systems infrastructure, and municipal program administration. Market misalignment is these roles creates operational risk, turnover risk, and long-term workforce sustainability challenges.
I. PURPOSE
II. BACKGROUND
The City of San Clemente operates and maintains its own water and wastewater treatment facilities, which require a highly specialized workforce responsible for maintaining electrical systems, instrumentation, mechanical equipment, and treatment infrastructure necessary for continuous operations and regulatory compliance. Electrical Instrumentation Technicians and Utilities Mechanics perform essential work supporting public health, environmental protection, and compliance with state and federal regulations.
Over recent years, the Utilities Division has experienced increasing difficulty recruiting and retaining qualified candidates for these classifications. Recruitment efforts have resulted in limited applicant pools and a small number of candidates meeting minimum qualifications, reflecting broader labor market conditions affecting skilled trades and technical maintenance positions. National labor data drive from the U.S. Bureau of Labor Statistics indicates continued turnover and retirement-driven demand within water and wastewater occupations and related technical maintenance fields, contributing to increased competition among agencies for qualified personnel.
At the same time, advancements in automation, instrumentation, and regulatory oversight have increased the complexity of work performed within wastewater treatment facilities. These changes have expanded the technical knowledge and certifications required of employees while compensation for entry- and journey- level classifications has not kept pace with regional market conditions.
Utilities Classifications
3 In response, the City initiated a market and classification study to evaluate compensation alignment, classification structure, and recruitment practices to ensure long-term sustainability and workforce stability.
Utilities Classifications (Cont’d)
The study evaluated San Clemente’s Electrical Instrumentation Technician and Utilities classifications against regional agencies that operate and maintain their own water and wastewater treatment systems. These classifications require specialized technical knowledge, certifications, and regulatory experience. As such, comparator agencies consisted primarily of water and wastewater speciali districts and utilities rather than general-purpose cities.
Where applicable, municipalities with similar operational responsibilities were included to supplement the dataset. The Los Angeles County Sanitation District was also included as an outlier to provide context regarding upper-market compensation levels due to its geographic proximity and competitiveness in recruiting experienced personnel.
In addition to salary comparisons, classification specifications were reviewed to ensure alignment in essential functions, scope of responsibility, minimum qualifications, licensing requirements, and technical complexity. This approach ensured that comparisons reflected substantially similar work and provided an accurate representation of the labor market to these positions.
Methodology
The analysis determined that entry- and journey- level Electrical Instrumentation Technician and Utilities Mechanic classifications are consistently below the regional wastewater labor market across salary ranges. This misalignment contributes to recruitment challenges, increased turnover risk, and difficulty maintaining a sustainable pipeline of qualified employees.
Lead-level compensation is generally aligned with market conditions; however, compression between journey-level and lead classifications reduces incentive for advancement and contributes to retention challenges at earlier career stages.
Key Findings
4 The study also found that comparator agencies commonly utilize trainee or apprentice classifications to develop internal talent pipelines. The absence of similar classifications within the City limits workforce development opportunities and reduces the City’s competitiveness in attracting individuals entering the field.
Additionally, the current Utilities Mechanic classification title does not align with common industry terminology, potentially limiting applicant recognition during recruitment efforts.
Key Findings (Cont’d)
III. BACKGROUND
The City’s Supervisory Control and Data Acquisition (SCADA) system supports the monitoring and operation of critical water and wastewater treatment processes and serves as an essential component of the City’s utilities infrastructure. The SCADA system integrates process control equipment, instrumentation, communications networks, and automated operational controls necessary to maintain continuous treatment operations, regulatory compliance, and system reliability.
Historically, the SCADA Specialist classification was established to support system maintenance, troubleshooting, and programming functions associated with the City’s automation systems. Over time, the operational scope and technical complexity of the City’s SCADA environment have expanded significantly due to advancements in automation technology, increased regulatory oversight, and greater reliance on integrated control and communications systems to support facility operations.
The position currently performs responsibilities more consistent with system administration and enterprise-level automation support, including configuration and maintenance of SCADA software and hardware systems, programming and modification of control logic, coordination of system upgrades and capital improvement projects, integration of communications and network components, and ongoing system reliability and performance management. The position serves as the City’s primary technical resource for SCADA and industrial control systems and exercises a high degree of independent judgment in maintaining continuous operational functionality.
SCADA Specialist Classification
5 A review of comparable regional water and wastewater agencies indicates that positions performing substantially similar duties are commonly classified at an administrator or senior-level designation, reflecting the level of technical expertise and system responsibility required to support modern industrial control systems. The existing SCADA Specialist classification title and job classification no longer fully reflects the scope and level of work being performed or aligns with current industry standards.
The proposed reclassification to SCADA Systems Administrator updates the classification title and specification to better reflect the operational responsibilities, align with comparable agencies, and recognize the critical role of the position in maintaining reliable and secure operation of the City’s utility infrastructure. The proposed reclassification does not increase staffing levels and is intended to ensure the classification accurately represents the level of technical responsibility required to support ongoing operations and future system needs.
SCADA Specialist Classification (Cont’d)
IV. BACKGROUND
The Community Development Coordinator classification was originally established to provide advanced administrative and program coordination support to the Community Development Department, including serving as a liaison to commissions and community stakeholders, supporting economic development activities, assisting with Community Development Block Grant (CDBG) administration , and coordinating special projects and departmental initiatives. The position historically emphasized administrative coordination, public interface functions, and operational support to departmental programs.
Over time, the operational needs of the Community Development Department have evolved, and the position has increasingly assumed responsibilities more consistent with professional-level analytical and program management work. These duties now include independent research and development of programs, preparation of complex written reports and policy analyses for City Council and Commissions, coordination of grant-funded programs and compliance activities and broader responsibility for interdepartmental coordination and community program implementation.
Community Development Classification
6 The position will regularly exercise a higher level of independent judgment and discretion and will support departmental initiatives that extend beyond administrative coordination into program analysis and development.
The proposed reclassification to Community Development Programs Analyst better reflects the departments current scope and level of work needed to be performed in this position. The Program Analyst also aligns the classification with industrystandard titles for comparable municipal positions, and clarifies expectations regarding analytical responsibilities, education requirements, and program oversight.
The reclassification is being recommended at this time due to the recent retirement and resulting vacancy in the position, which provided the opportunity for the Department to evaluate current and future operational needs prior to recruitment and ensure the classification accurately reflects the level of qualifications and responsibilities required of the position moving forward. The updated classification recognizes the professional-level nature of the position while supporting continued operational effectiveness within the Community Development Department.
Community Development Classification (Cont’d)
V. BUSINESS IMPACT ANALYSIS
The classifications evaluated in this study - Electrical Instrumentation Technicians, Utilities Mechanics, SCADA Systems Administrator, and Community Development Program support- directly support essential municipal functions that impact public health, regulatory compliance, infrastructure reliability, and community service delivery.
Electrical Instrumentation Technicians and Utilities Mechanics maintain and repair systems necessary for continuous water and wastewater treatment and environmental compliance. These systems include electrical control panels, programmable logic controllers (PLCs), instrumentation sensors, mechanical pumps, motors, and treatment equipment operating 24 hours per day.
Critical Infrastructure and Regulatory Risk
7 Understaffing or turnover in these classifications creates measurable operational risk, including:
Increased overtime and fatigue-related safety concerns
Delayed preventive maintenance and capital repair work
Greater reliance on supervisory coverage or external contractors Increased risk of system failure or unplanned downtime
Elevated exposure to regulatory non-compliance or permit violations Wastewater treatment facilities operate under strict state and federal environmental regulations. Any disruption in properly licensed technical oversight could expose the City to operational instability, compliance findings, or reputational harm. While the City has maintained compliance to date, sustained vacancy or turnover increased long-term vulnerability.
Critical Infrastructure and Regulatory Risk (Cont’d)
The study identified structural market misalignment at the entry- and journey- level classifications. When employees can obtain significantly higher compensation for the same licensed and skilled work at neighboring agencies, turnover becomes a predictable outcome rather than an isolated event.
This creates a “training-and-loss” cycle, in which:
The City recruits and invests in developing employees
Employees gain technical experience and certifications
Employees depart for higher-paying regional agencies
The absence of trainee classifications further compounds this risk by limiting the City’s ability to cultivate internal advancement pathways. Without a structured pipeline, employees interested in entering the trade my seek apprenticeship or experience elsewhere, reducing retention and long-term workforce continuity.
In a specialized labor market already experiencing high retirement-driven vacancy rates, failure to modernize classification design increases the likelihood of ongoing recruitment difficulty and extended vacancy periods.
Workforce Sustainability and Succession Planning
8 The SCADA function represents a concentrated area of operational exposure. The incumbent currently performs advanced enterprise-level systems administration, cybersecurity coordination, and network integration responsibilities beyond traditional instrumentation maintenance.
Loss of this position without appropriate classification alignment presents:
Institutional knowledge risk
Cybersecurity vulnerability
Delays in infrastructure modernization initiatives
Increased dependence on external vendors
Reduced internal control over mission-critical systems
Given the centrality of SCADA systems to plan operations, system reliability, and emergency response readiness, classification misalignment in this area represents a high-impact risk concentration.
SCADA Systems Administration Risk
The proposed reclassification of the Community Development Coordinator to Community Development Program Analyst addresses workload complexity and operational alignment rather than market deficiency alone. The position, once reclassified, will be able to perform more analytical and regulatory responsibilities requiring professional-level competency.
Failure to align the classification with intended duties increases the likelihood of:
Recruitment of underqualified candidates
Role mismatch and turnover
Inefficiencies in program implementation
Increased supervisory burden
Aligning classification structure with operational reality ensures sustainable program oversigh anda reduces long-term reclassification and corrective action costs.
Community Development Program Capacity
9 Market misalignment does not eliminate cost; it shifts cost. When compensation lags behind market conditions, the City may incur:
Increased overtime expenditures
Repeated recruitment costs
Onboarding and training expenses
Productivity gaps during vacancy periods
Contractor premium costs
Supervisor diversion from strategic responsibilities
These indirect costs can exceed the incremental cost of compensation realignment, particularly when compounded over multiple fiscal years.
Financial and Operational Ripple Effects
The positions evaluated in this study do not represent discretionary staffing; they support core infrastructure, regulatory compliance, and essential municipal services.
The recommended actions strengthen the City’s ability to:
Protect public health and environmental compliance
Maintain continuous wastewater operations
Reduce institutional knowledge loss
Stabilize recruitment and retention outcomes
Build internal workforce pipelines
Protect long-term fiscal sustainability.
Inaction increases structural workforce instability and shifts risk from predictable compensation adjustments to unpredictable operational exposure.
Overall Organizational Impact
10 Based on the market analysis, workforce trends, classification review, and operational realities identified in this study, the following actions are recommended to ensure the City of San Clemente remains competitive, sustainable, and structurally aligned to support its critical infrastructure and municipal service functions.
These recommendations are designed to address both immediate recruitment and retention challenges and long-term workforce stability and succession planning needs.
I. Realign Salary Ranges - Electrical Instrumentation Technician I/II Realign salary ranges for Electrical Instrumentation Technician I and Electrical Instrumentation II classifications to bring entry- and journey-level compensation closer to the midpoint of the regional wastewater labor market.
These adjustments close the most significant structural gaps while preserving the integrity of the City’s existing pay ladder and maintaining appropriate progression to the Lead level. This action will:
Improve recruitment competitiveness
Reduce early-career attrition
Protect the City’s investment in certification and training Restore appropriate compensation separation between levels Proposed Adjustments:
Electrical Instrumentation Technician I
Move to Salary Grade 57
$45.66 - $55.50
Midpoint: $50.34 (Step C)
Electrical Instrumentation Technician II
Move to Salary Grade 61
$50.34 - $61.19
Midpoint: $55.50 (Step C)
VI. RECOMMENDED ACTIONS
11 2. Maintain Lead Electrical Instrumentation Technician Alignment Maintain the current Lead Electrical Instrumentation Technician salary structure, which is generally aligned with the regional market.
The Lead classification remains competitive and serves as a viable progression target for developing staff. Maintaining this alignment ensures continued internal advancement incentive while avoiding unnecessary structural disruption.
Lead Electrical Instrumentation Technician
Remain at Salary Grade 65
$55.50 - $67.46
Midpoint: $61.19 (Step C)
3. Realign Utilities Mechanic I and II (Proposed Maintenance Mechanic I and II) Realign salary ranges for the Utilities Mechanic I and II classifications to reflect current market conditions for water and wastewater mechanical roles and restore appropriate differentiation between entry- and journey- level positions. In addition, update the Utilities Mechanic title to Maintenance Mechanic to more accurate reflect the scope of work and improve search visbility, recognition, and applicant attraction within the utilities labor market. These changes address market lag and reduce vulnerability to lateral movement into higher-paying regional agencies.
Proposed Adjustments:
Utilities Mechanic I
Change title to Maintenance Mechanic I
Move to Salary Grade 50
$38.51 - $46.80
Midpoint: $42.45 (Step C)
Utilities Mechanic II
Change title to Maintenance Mechanic II
Move to Salary Grade 53
$41.42 - $50.34
Midpoint: $45.66 (Step C)
RECOMMENDED ACTIONS (CONT’D)
12 4. Establish Trainee Classifications
Establish structured trainee classifications for both Electrical Instrumentation Technicians and Maintenance Mechanics to create an internal workforce development pipeline.
The absence of trainee classifications currently limits applicant flow and prevents the City from developing entry-level candidates who can progress into journey-level roles. Creation of these classifications will:
Expand recruitment pools
Provide structured skill development
Improve succession planning
Reduce long-term vacancy exposure
Support retention of motivated internal employees
Proposed Classifications:
Electrical Instrumentation Technician Trainee
Recommended Salary Grade 50
$38.51 - $46.80
Midpoint: $42.45 (Step C)
Maintenance Mechanic Trainee
Recommended Salary Grade 47
$35.78 - $43.49
Midpoint: $39.44 (Step C)
Trainee classifications are intended to serve as structured, transitional development roles rather than permanent positions. Incumbents in trainee classifications will be required to meet defined performance standards, certification requirements, and training milestones within an established timeframe in order to advance to the journey-level classification. Failure to demonstrate satisfactory progress or meet required qualifications within the designated period may result in separation in accordance with City personnel policies.
RECOMMENDED ACTIONS (CONT’D)
13 The trainee classifications are not intended to expand current staffing levels immediately. While the classifications are being established as part of this structural modernization effort, the City is not requesting activation or funding of additional full-time positions at this time. Implementation of trainee positions will occur only when the Utilities Division is fully staffed at the journey and lead levels and operational capacity allows for appropriate supervision and training without compromising plant reliability or regulatory compliance.
Any future request to fill trainee positions will be brought forward through the standard budget process and evaluated in the context of staffing levels, operational readiness, and fiscal capacity.
5. Reclassify SCADA Specialist to SCADA Systems Administrator Reclassify the current SCADA Specialist classification to SCADA Systems Administrator to reflect the expanded scope and technical complexity of the role.
This position performs enterprise-level systems administration functions including:
SCADA network configuration and oversight
Server and database administration
Cybersecurity coordination
System integration and software lifecycle management
Infrastructure modernization planning
The revised classification better aligns with regional market titles and compensation structures and mitigates institutional knowledge risk in a critical infrastructure role.
This action will:
Improve retention of highly specialized technical expertise Reduce cybersecurity and operational exposure
Align classification scope with actual job duties
Strengthen infrastructure resilience.
Proposed Classification/Salary:
SCADA Systems Administrator
Recommended Salary Grade 72
$65.86 - $80.05
Midpoint: $70.84 (Step C)
RECOMMENDED ACTIONS (CONT’D)
14 6. Reclassify Community Development Coordinator to Community Development Program Analyst
Reclassify the Community Development Coordinator to Community Development Program Analyst to align the classification with the level of professional analytical and programmatic responsibilities required. The role has evolved to include:
Program development and oversight
Grant coordination and reporting
Regulatory coordination
Complex staff report preparation
Policy analysis and recommendation development
The proposed classification:
Accurately reflects the level of work performed
Aligns with comparable regional classifications
Improves recruitment accuracy
Reduces risk of role mismatch and turnover
Supports continued operational efficiency
This reclassification is not anticipated to increase overall staffing levels and will be absorbed within existing departmental budget parameters, subject to salary alignment.
Proposed Classification/Salary:
Community Development Programs Analyst
Recommended Salary Grade 55
$43.49 - $52.86
Midpoint: $47.95 (Step C)
RECOMMENDED ACTIONS (CONT’D)
15 7. Overall Recommendation
Collectively, these actions modernize classification design, address documented market misalignment, strengthen workforce sustainability, and reduce operational exposure in critical infrastructure and municipal program support functions.
These recommendations are strategic and preventative in nature and position the City to remain competitive and operationally resilient in a highly specialized and evolving labor market.
RECOMMENDED ACTIONS (CONT’D)
VII. FINANCIAL / IMPLEMENTATION CONSIDERATIONS
Salary adjustments and trainee additions will have fiscal impact as outlined in the accompanying Resolution and fiscal analysis attachments (Attachment 3-5).
Implementation of the proposed salary adjustments will result in increased salary and benefit costs for affected classifications beginning in 2025-26. The total fiscal impact is estimated at approximately $36,955.00 for the remainder of the current fiscal year and approximately $110,866.00 annually thereafter.
These costs are partially offset by current vacancies within the designated classifications. Future costs will be incorporated into the City’s regular biennial budget process.
The establishment of trainee classifications does not immediately increase staffing levels; however future fiscal impacts may occur if positions are filled and will be subject to Council approval through the standard budget process.
Failure to act may result in increased overtime expenditures, recruitment costs, turnover-related inefficiencies and infrastructure risk exposure.
VIII. CONCLUSION
San Clemente’s Utilities and Community Development classifications support some of the City’s most critical and regulated operations. This report demonstrates that while senior-level compensation remains competitive, entry- and journey-level pay and classification structure require modernization to sustain workforce stability. 16 By realigning compensation, updating titles, establishing trainee pipelines, and aligning classification scope with actual responsibilities, the City strengthens its ability to:
Recruit and retain skilled staff
Protect critical infrastructure
Reduce operational risk
Improve succession planning
Position itself as a destination employer
These recommendations ensure the City remains competitive not only today, but for the long-term sustainability of its workforce and infrastructure systems.
CONCLUSION (CONT’D)
IX. ATTACHMENTS
1.Job Descriptions for Classification Specifications: Electrical Instrumentation Technician - Trainee/I/II; Maintenance Mechanic - Trainee/I/II, SCADA Systems Administrator; Community Development Programs Analyst
2.Fiscal Impact Analysis
3.Market & Classification / Compensation Study Summary for Electrical Instrumentation Technician and Utilities Mechanics Series and SCADA Specialist
4.Revised Salary Schedule for Benefited Positions effective March 4, 2026. 17