LEGISLATIVE ANALYST REPORT

TO: The Honorable Board of Supervisors

FROM: Elaine Forbes, Legislative Analyst

HEARING: N/A

DATE: September 26, 2001

ISSUE: Diversity of Appointments

Summary of Request

On July 25, the Board of Supervisors asked the Office of the Legislative Analyst (OLA) to report on the diversity of appointments made to boards, commissions, and to heads of city departments, including all such appointments made by local officials (city officials, as well as judges of the Superior Court). The request asked that diversity be determined in terms of age, gender, ethnicity, race, religion, national origin, sexual orientation, and disability.

Executive Summary

The limited data available shows that in terms of gender, race and ethnicity, commissioners and board members in the City and County of San Francisco (the City) are generally reflective of San Franciscans overall. However, some exceptions are notable. For example, compared to the City overall, men are slightly over represented, while women are underrepresented on boards and commissions. The limited data also suggests that African-Americans are over represented, and Asians and Latinos are slightly underrepresented.

Unlike board members and commissioners, department heads as a group do not closely match the City"s population. Specifically, women, Asians, and Latinos are underrepresented among department heads when compared to the overall population.

Presently, the City does not have a standardized method of collecting and tracking information about the diversity of board members and commissioners. Rather, whether information is requested depends on the appointing official and the form used in the application and appointment process. If the Board of Supervisors wishes to monitor the diversity of board member and commissioners in terms of gender, ethnicity, and race, the Board may choose to require that all appointees complete a standardized application form and that monitoring information is consistently entered into a database. If the Board considers other factors such as age, religion, national origin, sexual orientation, and disability important for monitoring purposes, the Board may wish to work with the City Attorney"s office to change the application form.

Background

The City currently has 106 active commissions, boards and task forces (please See Attachment 1 for a full list). This report includes information from 47 commissions and boards, which constitutes 331 appointees (please see Attachment 2 for a full list). Consequently, the conclusions herein are approximations that represent the demographics of fewer than 50% of boards and commissions.

The City has approximately 57 major departments. This analysis compiled age, gender, race and ethnicity of 55 department heads. Interim directors were excluded.

Information and Data Limitations

Board Members and Commissioners. According to the Office of the City Attorney, collecting information such as age, gender, ethnicity, race, religion, national origin, sexual orientation, and disability should be done at the option of the applicant and in a manner that does not exclude or discourage any person from applying for a position. Accordingly, data used in this report was gathered using public documents such as applications and biographies. In instances where a commissioner or a board member did not volunteer his/her information, nothing was inferred (except for gender).

The Mayor and Board of Supervisors appoint the majority of commissioners and board members. With Board of Supervisors appointees, all vacancies are noticed to the public and applicants must submit a basic application for consideration (please see Attachment 4). Applicants are requested to appear at the Rules Committee and the Committee makes recommendations to the entire Board. For seats that serve as representatives for a particular supervisor, the supervisors make direct appointments. In these instances, applications are requested by the Clerk of the Board for contact information. The application for Board of Supervisors appointees was updated in April 2001 to optionally ask about ethnicity and gender, but the new form does not request information about race, age, religion, national origin, sexual orientation, and disability (please see Attachment 4 for a sample).

The Mayor"s office requests a cover letter and resume of applicants. Once an individual is appointed, the office requests that the appointee completes a form, which optionally asks about sex, ethnic grouping, sexual orientation, and religion (please see Attachment 5 for a sample). This form is different from the Board of Supervisors application form.

Analysis

Boards & Commissions. Of the 331 commissioners and board members included in this analysis, 59 stated their age, 331 gender, 277 race and ethnicity, 9 religion, 30 national origin, 16 sexual orientation, and none stated information regarding disability. As a result, this report presents age, gender, race and ethnicity but does not consider the other factors because less than 15% of those included reported that information. Additionally, these factors likely have an imbedded reporting bias. For example, lesbian, gay and bi-sexual applicants may be more likely to state information about sexual orientation than would heterosexual applicants.

Findings. Commissioners and board members range in age from 13 -71, with an average age of 62.5. The limited data available shows that in terms of gender, race and ethnicity, commissioners and board members in the City are generally reflective of San Francisco"s population overall. However, some exceptions are notable. For example, compared to the City overall, men are slightly over represented, while women are underrepresented on boards and Commissions. The data also suggests that Asians (31% of the City"s population, 27% of board members and commissioners) and Latinos are slightly underrepresented (14% of the County"s population, 11% of board members and commissioners). African Americans may be over represented (19% of board members and commissioners compared to 8% of the City"s population). However, the African-American population in San Francisco has declined over the last 10 years (11% in 1990 to 8% in 2000) and the Asian population has grown slightly (29% in 1990 to 31% in 2000).¹ Sampled board members and commissioners more closely match San Francisco"s population in 1990 in terms of African-American and Asian representation.

When excluding the Asian Art Commission, the Commission on the Status of Women, and the Immigrant Rights Commission, which are boards and commissions that focus on issues related to gender, race and/or ethnicity, the data suggests that the underrepresentation of women and Asians widens. The representation of African-Americans and Latinos increase slightly, but Latinos remain slightly under the County"s percent of the total population.

 

Table 1: Gender, Race & Ethnicity of SF County Compared to Boards and Commissioners*
	SF County % of Total	Board Members and Commissioners* % of the Total	Selected Board Members and Commissioners** % of the Total
Total	776,733	331	283
Gender		(N=331)	(N=283)
Male	51%	56%	57%
Female	49%	44%	43%
Race		(N=248)	(N=208)
White	50%	50%	51%
African-American	8%	19%	21%
Native American & Alaska Native	0%	0%	0%
Asian	31%	27%	23%
Native Hawaiian and other Pacific Islander	0%	0%	0%
Some other race	6%	0%	0%
Two or more races	4%	3%	3%
Ethnicity		(N=277)
Latino (of any race)	14%	11%	12%
*Please see Attachment 2 for entire list of Boards and Commissions included.
**Excludes the Asian Art Commission, Commission on the Status of Women, and the Immigrant Rights Commission.
Source: US 2000 Census & Applications for Board Members and Commissioners

Board Members and Commissioners by Appointing Official. The Mayor and Board of Supervisors appoint the majority of commissioners and board members. Of the 331 members and commissioners included in this report, 218 or 66% were mayoral appointments, and 95 or 29% were Board of Supervisors appointments (includes individual and full Board appointments). Appointments made by other city officials, such as judges, the controller, and the chief administrator, are not considered separately because the number of appointments is too low to have statistical relevance.

The limited data available suggests that mayoral appointments overall are more reflective in terms of gender of San Francisco"s population than are Board of Supervisors appointments overall. However, because of data limitations, this finding is speculative.

 

Table 2: Gender, Race & Ethnicity of Board Members and Commissioners by Appointing Official*
	Mayoral Appointments	% of total	Board of Supervisor Appointments	% of total
Total	218		95
Gender	(N=218)		(N=95)
Male	116	53%	57	60%
Female	102	47%	38	40%
Race	(N=186)		(N=57)
White	91	49%	31	54%
African-American	38	20%	9	16%
Native American & Alaska Native	1	1%	0	0%
Asian	50	27%	14	25%
Native Hawaiian and other Pacific Islander	1	1%	0	0%
Some other race	0	0%	0	0%
Two or more races	4	2%	3	5%
Ethnicity	(N=210)		(N=51)
Latino (of any race)	25	12%	6	12%
*Please see Attachment 2 for entire list of boards and commissions included.
Source: Applications for Board Members and Commissioners, City and County of San Francisco

City Department Heads. This office collected information from the Department of Human Resources (DHR) regarding the age, gender, race and ethnicity of appointed department heads. DHR does not keep records on the other factors requested (religion, national origin, sexual orientation, and disability). Fifty-five department heads were included and were separated into two groups: the first is 49 appointed department heads, excluding elected department heads, the second is appointed and elected officials (please see Attachment 3 for a list of departments included).

Department heads range in age from 30-69, with an average age of 48. Department heads as a group do not closely match the City"s population. Specifically, women, Asians, and Latinos are underrepresented when compared to the overall population (please see the table below). Excluding elected official lowers slightly the representation of women and Latinos but the difference is based on a very small change in the sample and consequently does not have statistical relevance.

 

Table 3: Gender, Race & Ethnicity of SF County Overall Compared to SF Department Heads
	SF County % of total	Appointed Department Heads* % of total		All Department Heads** % of total
Total	776,733	49		55
Gender		(N=49)		(N=55)
Male	51%	59%		58%
Female	49%	41%		42%
Race		(N=46)		(N=51)
White	50%	70%		69%
African-American	8%	17%		20%
Native American & Alaska Native	0%	0%		0%
Asian	31%	13%		12%
Native Hawaiian and other Pacific Islander	0%	0%		0%
Some other race	6%	0%		0%
Two or more races	4%	0%		0%
Ethnicity		(N=49)		(N=55)
Latino (of any race)	14%	6%		7%
*Includes appointed department heads only. Elected officials are excluded. **Includes appointed and elected department heads (Mayor, District Attorney, City Attorney, Assessor/Recorder, Sheriff and the Treasurer).
Source: US 2000 Census & San Francisco Human Resources Department

Conclusion

The limited data available shows that in terms of gender, race and ethnicity, commissioners and board members in the City generally mirror the City"s population distribution. However, women and Asians may be underrepresented. Unlike the general reflectiveness of board members and commissioners to San Francisco"s population, department heads as a group do not closely match the City"s diversity.

If the Board of Supervisors wishes to monitor the diversity of board member and commissioners in terms of gender, ethnicity, and race, the Board may choose to require that all appointees complete the application form and that monitoring information is consistently entered into a database. If the Board considers other factors such as age, religion, national origin, sexual orientation, and disability important for monitoring purposes, the Board may wish to change the application form in coordination with the Office of the City Attorney.

Attachment 1: San Francisco Boards, Commissions, and Task Forces, September 2001

 

Number	Name
1	Access Appeals Commission
2	Affirmative Action Task Force
3	Airport Commission
4	Animal Welfare and Control Commission
5	Art Commission
6	Asian Art Commission
7	Assessment Appeals Board
8	Ballot Simplication Committee
9	Bay Area Library and Information System Advisory Board
10	Bicycle Advisory Committee
11	Board of Appeals
12	Board of Examiners of DBI
13	Building Inspection Commission
14	Business Tax Board of Review
15	CEDAW Task Force
16	Child Care Planning and Advisory Council
17	Children and Families First Trust Fund and Commission
18	Citizens Advisory Committee on Elections
19	Citizens Advisory Committee on Wastewater Management
20	Citizens Advisory Task Force for the Central Freeway
21	Citizens Committee on Community Development
22	City-wide Alcoholism Advisory Board
23	Civil Service Commission
24	Clean Air Advisory Committee
25	Code Advisory Commission (DBI)
26	Commission on the Aging
27	Commission on the Environment
28	Commission on the Status of Women
29	Convention Facilities Management
30	Delinquency Prevention Commission
31	Developmental Disabilities Area Board
32	Digital Divide Task Force, Joint Board of Education
33	Disaster Council
34	Drug Abuse Advisory Board
35	Elections Task Force, 2001
36	Emergency Room Diversion Task Force
37	Ethics Commission
Number	Name
38	Film Commission
39	Fire Commission
40	Golden Gate Bridge, Highway and Transportation District
41	Golden Gate National Recreation Area Advisory Commission
42	Golden Gate Park Concourse Authority
43	Grants for the Arts
44	Hazardous Materials Advisory Committee
45	Health Authority - San Francisco
46	Health Commission
47	Health Service Board
48	Hospital and Nursing Home Discharge Planning Task Force
49	Housing Authority
50	Human Rights Commission
51	Human Services Commission
52	Immigrant Rights Commission
53	In Home Supportive Services Public Authority
54	Joint Board of Education/ Board of Supervisors Digital Divide Task Force
55	Juvenile Probation Commission
56	Landmarks Preservation Advisory Board
57	Lead Hazard Reduction Citizens Advisory Committee
58	Lead Poisoning Prevention Citizens Advisory Committee
59	Lesbian/Gay/Bisexual/Transgender/Queer/Questioning Youth TF
60	Live/Work Task Force
61	Local Agency Formation Commission
62	Local Homeless Coordinating Board
63	Long Term Care Pilot Project Task Force
64	Maternal Child and Adolescent Health Board
65	Mayor"s Criminal Justice Council
66	Mayor"s Disability Council
67	Mental Health Board
68	Office of International Trade & Commerce
69	Park, Recreation and Open Space Advisory Committee
70	Parking and Traffic Commission
71	Permit Appeals
72	Planning Commission
73	Police Commission
74	Port Commission
75	Potrero Power Plant Advisory Task Force
Number	Name
76	Public Utilities Commission
77	Public Utilities Infrastructure Task Force
78	Real Estate Fraud Prosecution Trust Committee
79	Redevelopment Agency
80	Relocation Appeals Board
81	Rent Board
82	Risk Management
83	Seismic Safety Retrofit Bond Program Advisory Board
84	Seismic Safety Retrofit Bond Program Board
85	Shopping Cart Task Force
86	Skating Advisory Committee
87	Small Business Commission
88	Southeast Community Facility Commission
89	SRO Hotel Safety and Stabilization Task Force
90	Sunshine Ordinance Task Force 2000
91	Sustainable Funding for School Arts and Music Task Force
92	Sutro Tower Health and Safety Task Force
93	Taxicab Commission
94	Telecommunications Commission
95	Transbay Joint Powers Authority
96	Transgender Civil Rights Implementation Task Force
97	Transportation Authority
98	Treasure Island Development Authority Board of Directors
99	Treasure Island Development Authority Citizens Advisory Board
100	Unreinforced Masonry Appeals Board
101	Veterans Affairs Commission
102	Victims of Violence Advisory Committee
103	Video Display Terminal Advisory Committee
104	War Memorial, Board of Trustees
105	Youth Commission

Attachment 2: Boards and Commissions Surveyed for this Report, September 2001

 

Number	Name
1	Access Appeals Commission
2	Airport Commission
3	Animal Welfare and Control Commission
4	Art Commission
5	Asian Arts Commission
6	Assessment Appeals Board
7	Ballot Simplification Committee
8	Board of Appeals
9	Board of Examiners of DBI
10	Building Inspection Commission
11	Children and Families First Trust Fund and Commission
12	Civil Service Commission
13	Commission on the Aging
14	Commission on the Environment
15	Commission on the Status of Women
16	Delinquency Prevention Commission
17	Developmental Disabilities Area Board
18	Ethics Commission
19	Film Commission
20	Fire Commission
21	Golden Gate Bridge, Highway and Transportation District
22	Golden Gate Park Concourse Authority
23	Health Commission
24	Housing Authority
25	Human Rights Commission
26	Human Services Commission
27	Immigrant Rights Commission
28	Juvenile Probation Commission
29	Local Agency Formation Commission
30	Municipal Transportation Agency
31	Parking and Traffic Commission
32	Permit Appeals
33	Planning Commission
34	Police Commission
35	Port Commission
36	Public Utilities Commission
37	Recreation and Parks
38	Redevelopment Agency
39	Rent Board
40	Seismic Safety Retrofit Bond Program Board
41	Small Business Commission
42	Telecommunications Commission
43	Transbay Joint Powers Authority
44	Treasure Island Development Authority Board of Directors
45	Veterans Affairs Commission
46	War Memorial, Board of Trustees
47	Youth Commission

Attachment 3: City Departments Included in this Analysis, September 2001

 

Number	Name
1	Administrative Services
2	Adult Probation
3	Agriculture/ Weights & Measures
4	Airport Commission
5	Animal Care & Control
6	Art Commission
7	Asian Art Museum
8	Assessor/Recorder
9	Board of Appeals
10	Board of Supervisors
11	Building Inspection
12	California Academy of Sciences
13	City Admin Office
14	City Attorney
15	Civil Service Commission
16	Commission of the Environment
17	Aging and Adult Services
18	Controller
19	Convention Facilities
20	Child Support Services
21	COSW
22	County Clerk
23	District Attorney
24	Department of Elections
25	Emergency Communications Department
26	Ethics Commission
27	Fine Arts Museum
28	Fire Department
29	Human Resources
30	Human Rights Commission
31	Human Services
32	Juvenile Probation
33	Law Library
34	Mayor
35	Medical Examiners
36	Office of Citizen Complaints
37	Parking and Traffic
38	Planning Commission
39	Police Department
40	Port Commission
41	Public Defender
42	Public Health
43	Public Library
44	Public Trans Dept
45	PUC
46	Public Works
47	Purchasing
48	Real Estate
49	Recreation & Park
50	Rent Arbitration Bd.
51	Retirement
52	SFCCD
53	SFUSD
54	Sheriff
55	Telecomm & Info Svcs
56	Treasurer/ Tax Coll
57	War Memorial

¹ U.S. Census 1990 and 2000, on the web @ www.census.gov.