HomeMy WebLinkAboutMINUTES - 11191991 - 2.4 TO: BOARD OF SUPERVISORS
FROM: VAL ALEXEEFF, DIRECTOR
GROWTH MANAGEMENT&ECONOMIC DEVELOPMENT AGENCY
DATE: NOVEMBER 19, 1991
SUBJECT: GMEDA REPORT ON ADMINISTRATIVE CHANGE
SPECIFIC REQUEST(S)OR RECOMMENDATION(S)&BACKGROUND AND JUSTIFICATION
RECOMMENDATIONS:
1. ACCEPT the attached report on administrative changes in the Growth Management
and Economic Development Agency (GMEDA) dated November 1991.
(Continued on Page 2)
FISCAL IMPACT:
Savings in administrative cost.
BACKGROUND/REASONS FOR RECOMMENDATIONS:
The attached report:
1. Describes GMEDA administrative structure.
2. Identifies opportunities for efficiency.
3. Presents transition and consolidation of departments.
4. Identifies administrative positions to be removed or modified.
CONTINUED ON ATTACHMENT: X YES SIGNAI'IJRE:
RECOMMENDATION OF COUNTY ADMINISTRATOR RECOMMENDATION OF BOARD COMMITTEE
APPROVE OTHER
SIGNATURE(S):
ACTION OF BOARD ON November 19, 1991 APPROVED AS RECOMMENDED X OTHER
VOTE OF SUPERVISORS I HEREBY CERTIFY THAI' THIS IS A TRUE AND
CORRECT COPY OF AN ACTION TAKEN AND
XUNANIMOUS(ABSENT ) ENTERED ON THE MINUTES OF THE BOARD OF
SUPERVISORS ON THE DATE SHOWN.
AYES: NOES:
ATTESTED November 19, 1991
ABSENT: ABSTAIN:
PHIL BATCHELOR,CLERK OF THE BOARD OF
SUPERVISORS AND COUNTY ADMINISTRATOR
BY ,DEPUTY
adminfnl.bo
CC: County Administrator
County Counsel
GMEDA Departments
Board Order for GMEDA Administrative Change
November 19, 1991
Page 2
2. CANCEL the following positions effective November 30, 1991:
A. Deputy Director Transportation Planning-Exempt (position number 20-58) in
the Community Development Department.
B. Word Processing Manager (position number 65-283) in the Public Works
Department.
C. Senior Real Property Agent (position number 65-274) in the Public Works
Department.
3. CANCEL the following position effective December 31, 1991:
A. Solid Waste Manager-Exempt Project Class (position number 20-64) in the
Community Development Department.
4. ACKNOWLEDGE that the Director, GMEDA, has administratively frozen the
following positions for the indefinite future:
A. Principal Planner (position number 20-05) in the Community Development
Department.
B. Public Works Computer Manager (position number 65-665) in the Public
Works Department.
5. CONCUR with the plans of the Director, GMEDA, to request reclassification studies
and possible downgrading of the following positions. Individuals are reassigned to
non-general fund activities or activities with greater responsibility.
A. Accountant III (position number 20-35) to Accountant 11 in the Community
Development Department.
B. Accounting Technician (position number 20-34) to Account Clerk in the
Community Development Department.
C. An Engineer to Administrative Services Assistant III in the Public Works
Department.
D. An Engineering Technician to Accounting Technician in the Public Works
Department.
6. ACKNOWLEDGE that when fully implemented, the above personnel actions will
save $248,247 in the 1991-92 fiscal year and $374,881 (at mid-range salary level) on
a full-year basis thereafter.
GMEDA REPORT ON ADMINISTRATIVE CHANGE
NOVEMBER 1991
INTRODUCTION
The purpose of this report is to:
• Outline present and future organizational changes in Community Development,
Building Inspection, and Public Works.
• Recommend eliminating and freezing positions in Community Development,Building
Inspection and Public Works.
• Identify measures to increase revenue and output in a cost- effective manner.
The Growth Management and Economic Development Agency has two seemingly conflicting
charges:
1. To produce change in current operations that will increase activities beneficial to the
County and with minimum error; and
2. To reduce administration in the process of improving operations.
The strong emphasis on results has been fostered by the Board of Supervisors, the
development community,'and the public. The results include efficient processing of
applications, perceptive consideration of complex issues, improved coordination
among departments, constructive resolution of neighborhood or community disputes,
circumspect expenditure of funds, and new project initiatives.
There is a parallel sentiment that the addition of four positions; two professional and
two secretarial should not become an additional layer of government. In fact, some
reduction in administration is desired as a result of Agency formation and department
consolidation.
Efficiency, decline in workload, and coordination improve output and reduce
administrative burden. The organization must streamline as a result of efficiency and
coordination. Streamlining must be mindful of increased demands for service
requiring an effective organizational structure with adequate delegation of
responsibility. The organizational changes must be strategic in their cuts and
reassignments to meet their multiple challenges.
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ADMINISTRATION
Activities
Each department has five categories of activities:
1. Statutory Responsibilities
To administer codes and statutes efficiently, fairly, informatively, and legally.
2. Board Initiatives
To respond to policies, priorities, and projects identified by the Board and CAO,
resolving conflicts in a positive manner.
3. Professional/Technical Update
To maintain understanding of current laws and methods of the profession, and to
innovate and improve service delivery.
4. Communication/Coordination
To provide information and feedback on relevant subject matter to policy makers,
professional counterparts, and the public.
5. Administration
To oversee basic functions of budget and personnel, interpret policy. issues, set
standards and review performance, establish priorities, and allocate resources to meet
objectives.
Administrative Stnicture
There are three levels of administration that oversee the operation of GMEDA departments.
1. Central Administration (CAO)
This includes the County Administrator's office, the Personnel Department, and the
Auditor- Controller. As the personnel in these offices have been cut, functional
administrative responsibilities have been decentralized and absorbed by individual
departments.
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2. Growth Management and Economic Development (GMEDA)
New personnel consists of two people, one administrative and one secretarial.
The responsibilities of the Agency Director are as follows:
A. Identify efficiencies and economies
B. Coordinate.department policies and activities
C. Respond to requests for assistance
D. Represent GMEDA departments before the Board of Supervisors, CAO, and
other departments and agencies
E. Other activities outlined in the GMEDA Formation Report dated May 1991
The Agency Director does not review actions, applications, or procedures unless one
or more of the following circumstances exist:
A. A seemingly irreconcilable issue has been referred to the Agency
B. There is significant conflict or opposition related to the issue
C. Interdepartmental negotiations are needed
D. Resolution is needed between Agency departments
E. There is a strong likelihood of litigation
F. Express direction from the Board of Supervisors or CAO to look into the
matter is given
G. The issue falls between the County and other jurisdictions
3. Agency Departments
Administration of Agency departments falls into three categories. These categories
are illustrated on the attached Figure 1.
A. Operations Administration includes traditional administrative functions such
as personnel, accounting, public information, and safety. (Department Heads
and Administrative Services series .}
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B. Contract Administration includes obtaining grants, monitoring projects,
maintaining work flow and cash flow, and communication with agencies
involved at the initiation of Board and CAO. (Deputy Department Heads,
Technical series, and Administrative Services series used, but AS series
appears more cost- effective .)
C. Technical Project Administration includes statutory responsibilities, some
Board initiatives, professional technical update, and communication,
coordination, and limited administration. (Department Heads, Deputy
Department Heads, and Senior Staff. )
OPPORTUNITIES FOR REDUCTION IN ADMINISTRATIVE STAFF
Administrative staff can be reduced without disruption in service under two circumstances:
1. Reduction in Responsibilities
Since Prop 13, there has been a drive to do more with less. Agencies have spread
resources in many ways: by individuals accepting additional responsibilities, by
departments cutting non -essential services, by the County reducing non -fee-
generating staff, by supervisors spreading workload, and by managers deferring non
-critical activities. In every department, there is a continual evaluation of priorities to
be able to direct staff to the most important actions since all responsibilities cannot
be met.
The MSI Study has launched an effort for comprehensive cost allocation. Non-
revenue generating items will be flagged and will be forced to compete among other
priorities for General Fund money. Staff time and performance will be easier to
monitor. The mechanics are being put in place for improved efficiency that will not
downgrade operations.
Meetings are taking place to determine:
A. How administrative overhead can be shifted to contract reimbursement
B. How administrative positions can be consolidated
C. How additional supervisory responsibility can be delegated
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2. Factors that Promote Efficiency
A. Improve communication/coordination both internal and external to GMEDA
B. Utilize latest technology
C. Centralize facilities
D. Clarify procedures
E. Reduce procedural steps
F. Find economies of scale
G. Perform work_with least costly staff
H. Reduce quality if not important
3. Factors that Reduce Efficiency
A. Balkanized and inefficient facilities
B. Inappropriate equipment
C. Crisis orientation without adequate follow -through and procedure
D. Unnecessary procedural steps
E. Short- sighted decision making
F. Backlog in non -agency departments
4. Increased Workload
A simple but inefficient solution to reduce administration is to eliminate positions
without consideration for workload, productivity, efficiency, or their actual
responsibilities.The County has accepted numerous responsibilities for GMEDA over
the last five years that require adequate administration:
• Oversight of $385 million in road projects
• Administration of County 939 Solid Waste Program
• Support of development at Buchanan Field and East County Airports
• Creation of new Service Areas, Areas of Benefit, and Landscape and Lighting
Districts
• Receipt of additional funds from Measure C and Proposition 111
• Response to issues raised by the MSI fee generation actions
As an Agency composed of revenue generating departments, the organization must be able
to expand and contract with workload and supporting revenue. Fees are collected in
exchange for services. If service is not adjusted for increase in activity, staff will burn out and
mistakes will occur.
It is important to have an administrative structure in place that will accommodate change
and demands placed upon it.
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REDUCTION AND CONSOLIDATION
Figure 2 provides the proposed reduction in staff based upon consolidation and
reorganization of workload.
The Agency must operate in three timeframes:
1. Agency Consolidation as indicated in Figure 3.
There is a single administration that will be responsible for permit counter
operations,accounting,contract administration,purchasing,inventory,personnel,MIS
activities, and administration of community service areas. Departments will be
organized under the commonly known divisions of Public Works, Community
Development, and Building Inspection. Any function duplicated by departments will
be consolidated.
Consolidation requires a single complex on Glacier Drive that connects Public Works
with Community Development, Building Inspection, and Administration facilities.
The timeframe for consolidation is three to five years, once the economy improves,
stabilizing revenues for construction finance.
2. Agency Transition as indicated in Figure 4.
- This represents the period between the present and Agency consolidation. It seeks
ways to consolidate while responding to County opportunities and constraints prior
to merging into a single physical structure.
There are several actions anticipated:
A. Upon departure of either Administrative Services Officer from Building
Inspection or Community Development, the two positions can be merged.
B. An organizational structure is needed for Building Inspection and Community
Development to maintain stable operations during periods of growth or
contraction, mechanisms for rapid staffing up and staffing down, or
identification of funding for deferred work to perform in slow periods must be
developed at the same time positions will be frozen to prevent over-staffing
without added workload.
C. Use of computer technology will be expanded to increase interaction among
department procedures.
D. Each opportunity for consolidation of function will be explored.
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3. Current Structure and Responsibility as indicated in Figure 5.
Revenue based GMEDA departments have nearly completed their charge of
becoming self-supporting. '
As a revenue generating Agency, the organization receives normal budgetary scrutiny
as well as oversight from payers and users of the service. Foyers are concerned that
increased construction may result in increased fees, but may not produce increased
service, instead delays and windfall income. This Agency must respond to the demand
for adequate staff as it occurs, but the cyclic nature of the economy creates times of
contraction in construction and staff activity as well. In times of contraction, staff can
shrink through attrition or lay off. With adequate reserves and policy direction, staff
can attend to activities deferred during periods of high activity.
The effect of the current economy on the departments within the Agency is mixed.
A. Building Inspection is eight positions below its allocation. If the economy does
not improve, positions vacated by retirement will be frozen and not filled until
workload increases. The Building Inspection Department organization chart
at the beginning of the year is indicated in Figure 6a. Reorganization of the
department has taken place since then as indicated in Figure 6b.
Code enforcement activities are being consolidated in the Building Inspection
Department due to their experience with field personnel. We are looking
forward to improved service with reduced overall supervision.
B. Community Development is ten positions below its allocation.The Community
Development Department is undergoing reorganization. The organization at
the beginning of the year is depicted in Figure 7a and the proposed plan is
indicated in Figure 7b. The intention of this plan is to improve service and
increase responsibility. A franchise , administrator from either the
Administrative Services series or the Planning series will be needed to monitor
solid waste contracts. With Public Works' help, the Accountant III position
could be reduced to Accountant I and Account Tech can become Account
Clerk.
The division responsible for redevelopment, economic development, and
housing has been the focus of new County priorities. The division is Seeking
to transfer recreational service area administration to Public Works and focus
on its three primary responsibilities.
' There are a few General Fund activities that are viewed as a service to the general public and should
not be added onto new construction fees.
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The Conservation Division is adjusting to the changes called for. in State
legislation and local initiatives though assignments subject to radical change
with the evaluation of conservation and solid waste issues.
Current staffing continues to experience high workloads despite slowdown in
actual construction. The recent reorganization should accommodate the
volume of activities in East Contra Costa, as well as the complex and
controversial projects in other parts of the County.
Based on re-evaluation of needs, the department can eliminate a Deputy
Director position and the Solid Waste Manager position, and freeze a
Principal Planner position. New initiatives and funding may create additional
staff allocations.
C. Public Works has been the recipient of significant increases in responsibility
and funds. It is important that the administrative structure keep pace with the
responsibilities involved. Figure So provides the current organization chart.
(1) Shift of responsibility from professional to technical and clerical staff.
Public Works staffing has been heavily weighted towards professional
Engineers and para- professional Engineering Technicians. Excluding
maintenance staff, these two classes of employees make up almost 2/3
of the department, which used to be a higher percentage. Public Works
is seeking to identify tasks performed by Engineers and Engineering
Technicians which are clerical or administrative in function, and could
be done just as well and much cheaper by lower paid classifications. A.
recent example of such a reorganization is in the Construction Division
where a Senior Civil Engineer, who supervised the Engineering
Technicians in charge of subdivision and encroachment inspection,was
replaced by a Supervising Engineering Technician with significant
experience in the subdivision inspection process and procedures
providing a$13,000 per year reduction in cost. Another example is that
Administrative Services staff spend part of their work day working
under the direction of one of the engineering Division Heads. Each
engineering division has a myriad of administrative tasks which must be
accomplished, and are usually done by Engineers or Engineering
Technicians, for lack of any other available staff. The use of
Administrative Services personnel to perform these tasks greatly
reduces the cost and frees the technical staff to do work more in line
with their training and compensation.
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(2) The Word Processing Manager and the Senior Real Property Agent
are single position manager categories that can be eliminated rather
than replaced. Revised administrative structure places more
responsibility at a lower level and reduces management.
(3) Replace Civil Engineer and Engineering Technicians with
Administrative Services Assistant II and Account Clerk positions.
To assume responsibility for Service Areas, Landscaping and Lighting
Districts, GHADS, Sanitary Districts, and other unique districts. This
includes establishing fee schedules, creating annual budgets, paying
bills, administering service contracts, and monitoring the budgets.
The Recreational Service Area function is currently located in the
Redevelopment Agency, while the Landscaping and Lighting,
Sanitation, Assessment, and GRAD Districts are in the Public Works
Department. These responsibilities should be consolidated into the
Public Works Department, which has the needed accounting support
services. In addition to Skip Epperly, who is handling the Service Area
function in the Redevelopment Agency, Public Works has two and one-
half full time equivalent positions handling Landscaping and Lighting
Districts; Sanitation Districts, Assessment Districts, and GHAD work.
These positions include an Engineer and two Engineering Technicians.
By consolidating these functions, and providing clerical/analyst support,
we can free up the Engineer and the Technicians to be assigned work
more appropriate to their classifications and salaries.
(4) Some review and consideration will have to be given to adequate
organizational support for the increased workload of Public Works in
project administration. Public Works has been assigned the task of
overseeing Dour significant projects: (1) The Highway 4/Willow Pass
grade lowering project at approximately $50 million; (2) the Bailey
Road/Highway 4 interchange project at approximately $35 million; (3)
the Delta Expressway project at $ 150 million; and (4) the Vasco Road
relocation project at $50 million.
The County is receiving $7- 10 million annually in new income for
capital transportation projects.The sources of this funding are Measure
C-88, Prop 111., and the establishment of Countywide road Bee areas
in the late 1980's. To respond to planning and Board requests, Public
Works again provides Community Development with road-related
development conditions and review of current development
applications. Both Measure C and Prop 111 .have required congestion
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management plans and deficiency information, a new and major
workload. To respond to increased workload, the Road Engineering
Division was divided into two divisions-Road Engineering and Major
Projects. To reduce overall staff, some of the work is being privatized
with design and construction oversight.
(5) Increasing administrative responsibility is shifting to the Agency that
will need to be considered.
Over the past few years, reduction in central administrative staff in the
CAO, Personnel Department, Auditor- Controller, and General
Services has greatly increased the responsibilities of central
administration in Public Works. Since the Agency has been formed,
increasing Agency- wide activity has been referred to Public Works for
resolution.
The Administrative Services Officer supervises both administrative staff
and accounting staff for the oversight of 308 employees in addition to
funds administered amounting to $454 million above the operations'
budget. As administration centralizes, it will be necessary to provide
authority to handle the change. It is envisioned that more responsibility
will shift from the CAO to the Agency as well.
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FIGURE 3
GMEDA CONSOLIDATED OPERATIONS
Iasrol
GMEDA
PUBLIC WORKS DIV COMWNITY DEV DIV BUILD INSP DIV ADMINISTRATION DIV
MP PMT COUNTER
TRANSPORTATION IMPLEMENTATION SLOG INSPECTION
FLOOD CONTROL GENERAL PLAN GRAD INSPECTION ACCTWCONTRAC IS
MAINTENANCE CONSERVATION NEIGH. PRES. PRGM PURCHASING/INV
AIRPORTS REOV 6 ED MOBILE LHOMES PERSONNEL
INVES/ABATE/COO£fNF. NIS PROGRAM MGR
COUNTY SERV MEAS
MIS PROGRAM MANAGER WILL COORDINATE ALL INVEVABATEMENTS, AUTO ABATEMENT AND
COMPUTER APPLICATIONS WITHIN THE AGENCY CODE ENFORCEMENT ADMINISTERED BY
BUILD INSPECTION WITH CONSULTATION OF
THE ZONING ADMINISTRATOR
FIGURE 4
GMEDA TRANSITION
>,asnl
OEDA
PUBLIC MRKS CO►MUNITY DEV BUILDING INSP RED 6 ED ••
APPL/PWT CENTER -
ROADS PLAN BLDG INSPECTION
ROAD MAINT CURRENT PLAN/CEN PLAN GRAD INSPECTION
FLOOD CONTROL CONS. PROD NEIGHBOR. PRES. PRGM
ADMIN AOV. PLANING MOBILE HOMES
TRANS PLANING INVES/ABATEMENTS
ADMIN CODE ENFORCEMENT
AUTO ABATEMENT
NIS PRGM ADMIN
ADMIN
•• INADECUATE SPACE IN AOMINISTRATION
BUILDING
FIGURE S
GMEDA ESTABLISHMENT
10/8/91
GMEDA
PUBLIC WORKS COMMUNITY DEV DEPT BUILD INSPECTION APPLICATION 8 PNT CENTER
RQADS PLNG CURRENT PLAN/GEN PLAN BLDG INSPECTION
ROAD MAINT CONS. PROGRAM GRAD INSPECTION
FLOOD CONTROL ADVANCE PLAN NEIGHBOItH000 PRES. PRG
ADMIN TRANSMOBILE HOMES
[ODE ENFORCEMENT INVEST/ABATEMENTS
ADMINISTRATION AUTO ABATEMENT
RED,B ED A011INISTRATION
LF
HUD PROGRAM
8ND PROGRAM
REDV. PROGRAM
FIGURE 6A
BUILDING INSPECTION DEPARTIJENfT
ORGANIZATIONAL CHART
VACANT
DIRECTOR
EXECUTIVE SECRETARY
NITA RUSH
L. T. GUNN
ASSISTANT DIRECTOR
SR. STRUCTURAL ENG SPECIAL PGM COORDINATOR
THUNG. 3 MARTINDALE, W
FUNG F
RUGG TT, T
PLAN CHECKERS - BLDG INSP -
HOUSING REHAB SUPVR INSPECTION SVCS
PEREZ, 0 ST JOHN
BLDG INSP CH ELEC INSP
SIXVA� M GOODNOUGH, J
VAaNT
CLERICAL
LEWIS ELEC INSPECTORS
CH MECH INSP
GREENHALGH
MECH INSP -
r
BLDG INSPECTORS -
GRADING ENGINEER ADMIN SERVICES
WHISLER G" YARANON, E
ACCOUNTING -
GONYER
LEAD SPECIALIST
GRADING TECH - BICKERDIKE
CLERICAL
AS OF: 11/29/90
AUTH: 57
ASSG: 48
FIGURE 6B
CONTRA COSTA COUNTY
BUILDING INSPECTION DEPARTMENT ORGANIZATION
DIRECTOR
Frank Lew
r NitaRush
Exec. Secty
I
I.
I
ADMINISTRATIVE SERVICES INSPECTION SERVICES PLAN CHECK SERVICES HOUSING/CODE COMPLIANCE
Larry Gunn Mike St.John Soen Thung Micki Perez
OPERATIONS/MIS RESIDENTIAL INSPECTION ENGINEERING PLAN CHECK CODE COMPLIANCE
Eleanor Taranon Bill Martindale
CLERICAL SUPPORT COMMERCIAL INSPECTION RESIDENTIAL PLAN CHECK HOUSING INSPECTION
Christy Bickerdike Mike St.John
ELECTRICAL INSPECTION NEIGHBOR PRESERVATION
Jim Goodnough
MECHANICAL INSPECTION
Norm Greenhalgh
GRADING INSPECTION
Gordon Whisler
NOTE: Larry Gunn is acting director in Frank LeWs absence.
3/25/91
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