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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. VA:dg admin(n(.rrpt (11/I N91) 1 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. VA:dg adminfdrpt (1U12l91) 2 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 .} VA:dg adminfnl.rpt (11112(91) 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 VA:dg adminfni,rpt (1111219t) 4 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. VA:dg adminfnl.rpt (11111191) 5 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. VA:dg admintnl.tpt �ilnuvi� 6 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. VA:dg adminfnl.rpt (11/17!91) 7 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. VA:dg admin(nl.rp[ (11/12/91) 8 (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 VA:dg adminfnl.rpt cluwvi> 9 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. VA:dg adminfnt.rpl (I1"IZ191) 10 FIGURE I 0 s _ _ > C) kf Q O y o �•� O M o O ��`� �... C C=) CSG O ¢ U CA pQQa Via, Q E G � CQQQ � a "3 0 8 =, C) U � �n ° W ° o � w 3 w ° a O cn ° ^o ° o 0. C7 kr) d z0 U G ro 0 Z aQ � w z o 0 W ^ ° C7 o cu cu o U C7, oo 000 opo 0 0 o '03 a � � �-CAcu � Ln °' xx :3xczu _>W � . to xw 'uU w � � ❑ c Q � U � a � aLaw � G `co U � ¢ � : a o , 'o U a FIGURE 2 co oQw �-� .N = Y . E oV x � b c.OZOcn 8 & C) u, in !j v o O O `? G 00 `ero � N v, v? U00 Q Eoq z rA N 0 A Or. �p M 00 N O N Vl U O Vy �N z � .� � � o U p � to Q U U U U d4Q G N cn QQ QQ WQ c� � A d• c M O OM � ~ H kr) 00 6-3. Vy 6� A � as U � h zM N O �O M N N ] CCC�Q��� fAA _ 00N l� N vcq `"1 \0 N Ern N 69-• 69 69 69 GAI 1y W � � ryl 'y a, aa) to y.- _ v 03 a� aaj d uca uo ° z 0° ° �cn `� � � 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 7.4 \ \ \ f \ \ ƒ a � , % ! % ! � � ! ■ � � - . } . ! t ! . lit ;! », it ` � t k � § � \ . \ ! t% ■ \ . F[Cx[LI?E 7B ADMINISTRATION ASA G on s' seer Cm+ervanon 0.. Zoning InvKlipKd Id, c, j IMPLEMENTATION DIVISION ADVANCE PLANNING s-zX.1. 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