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HomeMy WebLinkAbout1979-06-05; City Council; 5878; Proposed City ReorganizationCITY 'OF CARLSBAD AGENDA BILL NO. S�7 Initial: T Dept. Hd. LATE: June 51979 C. Atty. DEPARTMENT: City Manager C. Mgr. Subject: -- PROPOSED CITY REORGANIZATION Statement of 'the' Matter The possible reorganization of the City has been under consideration. for some time. The attached reorganization proposal has been developed after extensive review and analysis of existing City operations and a projection and analysis of future service demands on the City. As the City continues to grow, we -must be able to respond to the service demands of the community. The increasing demands for services can partially be met by adding additional employees. At the same time however, we must increase our management capabilities in order to insure that service is delivered in the most efficient and economic manner possible. The proposed reorganization ip designed to improve the management capabilities of the City ,without an increase in the number of adminis- trative positions. Although additional professional and technical. positions may be required because of growth, the proposed reorganization per se will not create the need for additional positions. s The attached reorganization proposal is submitted for City Council consideration. if the Council concurs in the proposal; it is recom- mended that reorganization be accomplished during the next fiscal year in three phases. Phase one, to occur within the next 60 - 90 days would involve reorganization of the Redevelopment Agency and Housing Authority into a Community Development Commission. Phase two would involve reorganization of the Building, Planning, and Engineering Departments into a Development Services group and would be accomplished prior to December 31, 1979. Phase three would involve creation of an Adminis- trative Services group prior to June 30, 1980. Exhibit Proposed Reorganization - Memo from City Manager to City Council, 5-22-79 various staff reports to City Manager on reorganization Recommendation Approve the proposed reorganization in concept and direct staff to prepare, for`further Council consideration, amendments to the Classification Plan, Salary Resolutions, and other documents necessary to implement the reorganization Council Action: the 6-5-79 Council concurred with the staff recommendation, approved proposed reorganization -in concept, and directed staff to prepare amendments to Classification,Plan, Salary Resolutions and other documents necessary to implement the reorganization for Council approval. DATE: MAY 22,J 979 TO: CITY COUNCIL FF.OM: City Manager SUBJECT: PROPOSED REORGANIZATION INTRODUCTION Departmental reorganization has been discussed by the City Council ' and staff over the past several years. While no major formal reorganizations have occurred, as the City has grown and personnel changed, both formal and informal changes have taken place. Internal departmental reorganizations take place frequently and are not usually brought before the Council unless amendments to existing budget, salary, or classification resolutions are required. As examples, the creation of separate organizational units to handle purchasing and personnel evolved out of the City Manager's office. Various separate city utilities were separate divisions up to about five years ago when they were brought under control of one depart- ment. Reorganization should be a response to some need. Two of the basic needs to be,considered are increased efficiency and -improved -service to the public. I must -admit a bias toward going slow on reorgani- zation because I have seen, over the years, some cities make• organizational changes, not in response to the need to increase efficiency or improve service delivery, but in response to a fad or based on the concept that change for the sake of change produces favorable results. In many of these ,instances, the reorganization only exchanged one set of problems for another set with no real improvement in efficiency or service delivery. And that, after all, is what it is all about - providing the public with efficient services. Some months ago I requested each department head to submit suggestions or thoughts about reorganization. Many perceptive and insightful comments and suggestions were submitted. Although personal needs or departmental vested interests may sometimes cloud objectivity, it is important and useful to review the department heads' comments since these are the people responsible for the delivery of service and any reorganization should be designed to enhance the service delivery capability of the departments involved. Although I am not prepared to implement all of the possibilities suggested by department heads, there are a few which deserve further consideration. Even though a specific reorganization proposal may be somewhat' desirable, a number of factors may make it impractical. The skills or personalities of the individuals involved may not be conducive with a proposed change, space may not be available to implement the proposed reorganization, or certain historical or political con- siderations may be more important than the advantages of the proposed change. DISCUSSION In any growing organization, public or private, growth, itself, creates problems in communication and span of control. As staff size and responsibilities increase, control and communication networks tend to break down. In such a situation, a manager finds it necessary to spend more and more time dealing with problems that relate to inadequate direction and control, lack of coordination, and communication failures. At the same time the problems facing the organization are becoming more complex and require increasingly sophisticated analysis and, consequently, more of the manager's time if the organization is to respond in an orderly and rational manner.. Carlsbad has not been immune to these influences. .Although coordination, control, and communications are still generally effective at this point, problems are developing and, if we are to avoid serious consequences in the future, consideration should be given to organi- zational changes. At present the City Manager has 16 people reporting directly to him. In light of the increasing complexity of City operations, and the volume of activity, this is an excessive span of control. The following reorganization proposal will decrease the manager's span of control from 16 to 16, and will provide better coordination, control, and communication without an increase in personnel. The proposed reorganization would provide for the merger of the Housing Authority and Redevelopment Agency, and consolidate a number of other depart- ments into two groups; a development services group and an adminis- trative services group. The first phase of the proposed reorganization would involve the merger of the Redevelopment Agency and the Housing Authority to create a Community Development Commission. As provided for in the State of California Health and Safety Code, the Housing Authority and Redevelop- ment Agency would merge and the City Council would sit as the Com- munity Development Commission. Consolidation of.these operations will lead to greater economy and efficiency. There are other reasons for consolidation as well. Some of Carlsbad's greatest housing needs are in or near the redevelopment area. Recent changes in the Community Redevelopment Law places greater emphasis on meeting housing needs in the redevelopment area. The Coastal Act also requires that the Local Coastal Program address the housing needs of low and moderate.income persons. At the same time the State of California is increasing its emphasis on housing activities on the part of local government. It is clear that the state's intent is for cities to increase their ability to respond to meet local housing needs. So that we can adequately respond when the Council deems appropriate, we need to closely coordinate our redevelopment and housing. This proposed reorganization will enable the City to respond and provide greater management capability without any increase in staff. With the conversion of the City's assisted housing program -2- from Section 23 to Section 8, the administrative burden of managing the housing operation has become less, however, as the City becomes involved in other housing activities, the City needs the capability to effectively manage such activities. This reorganization proposal will create'a greater management ability in the housing area and'should facilitate whatever activities the City ultimately becomes involved with. The position of Director of Housing Authority has been filled•in an acting capacity for quite some time since the departure of Robert Coles. The proposed reorganization would utilize existing authorized positions and would provide additional clerical support for the redevelopment operation. It is anticipated that this reorganization can be accomplished in a relatively short time frame and it is recommended that this proposed reorganization receive first priority. The attached organization charts contrast the existing organization with the proposed organization under a Community Development Commission. Another possibility for Housing Authority reorganization involves merger with the County Housing Authority or contracting with the Authority for housing services. The City is currently contracting with the County Housing Authority for operation of a residential rehabilitation loan program and this sort of relationship could be expanded to provide other services as well. However, it is not recommended at this point that the possible merger or contracting of additional services be explored until the scope and nature of the City's involvement in housing activities is more clearly identified. If in the future contracting or merger would provide better service delivery, that decision would best be made after basic policy choices have been made. The recommended "reorganization would not preclude a cooperative effort with the County Housing Authority in the future. The second priority for reorganization concerns creation of a development services group. This organization would combine most of those activities which provide services related to community develop- ment and would be grouped under a Director of Development Services. This sort of grouping would provide for better coordination between Engineering, Planning, and Building and is directly related to provide better public services, not only to large developers, but even to the average resident who has to go through the development teview process for relatively minor projects. There is a strong need for better coordination between th-- departments involved in community development. Under the present system there are, at times, barriers which have created difficulties. An example of such a situation involves the occupancy permit problem. The Building Department is presently responsible for issuing occupancy permits. occupancy permits for new construction are normally not issued until all conditions of development have been satisfied. Not only must the requirements of the Uniform Building, Plumbing, Electrical, and assorted Codes be met, but also any development conditions imposed by other departments such as Engineering,'Planning, and Parks and Recreation need to be satisfied before an occupancy permit is issued. -3- n Under, the present system, either through lack of established pro- cedures, poor coordination, or communication failures, occupancyr permits are sometimes issued when all development conditions have not been satisfied. Although each department involved reviews the project, no single authority, except the City Manager, exists to insure that the review is complete. Once an occupancy is granted, the City has lost a•very important lever to insure that development conditions are satisfied. We are working within the present organizational framework to improve the process but it is felt that through a raore unified organization approach, resolution of problems of this nature would become much easier. There are other examples c; where coordination and control are important. For example, the continuing sewer moratorium in the City creates a need for close examination and coordination of all projects to insure the require- ments of the sewer moratorium are adhered to and that we continue to effectively manage what scarce sewer resources are available. The problems in the community development services area are not technical problems but management problems. This proposed reorgani- zation could be accomplished without creating additional staff positions. The existing position of Public Works Administrator would be eliminated and a position to be known as Development Services Director would be created. This position would be responsible for coordinating, directing, and controlling all functions within the development services group. All activities under the Public Works Administrator would be transferred to the development services group with the exception of the Utilities/ Maintenance Division. With the possible merger of Carlsbad Municipal Water District with the City and with the requirement to meet a growing maintenance need, it appears appropriate that the Utilities/ - Maintenance operation receive a greater emphasis and would, therefore, be established as a separate department and the department head would report directly to the City Manager. Although this may present some coordination problems as far as development review is concerned, most engineering improvements for which the Utilities/Maintenance eventually becomes responsible, are designed by, or the design is approved by, the Engineering Division. Through simple management strategies, this coordination need can be easily accommodated. The creation of the position of Development Services Director and a development services group should provide better public service in the community development area. Better administrative control, direction, and coordination should be achieved. The Development Services Director will be responsible for establishing administrative policies, procedures, and systems for the development services group. Such management assistance in this area will enable the City Manager to spend more of his time in dealing with the significant admin- istrative policy matters and become less responsible for the day to day coordination and control of these activities. It should 4,e possible to accomplish this change by the end of the calendar year. -4- V so The third area considered for reorganization -is in the administrative and staff services area. The City Manager is presently involved on a day to day basis with a large number of details involved in pro- viding staff services. At the present time the manager is required to help coordinate the activities of various departments as they respond to the needs of operating departments. As the scope and volume of staff services required for the successful operation of the City increases, the manager has less and less time to effectively coordinate and control 'these operations. Iri order to more' effectively utilize"staff resources and coordinate the activities of the staff departments, it is proposed that an administrative services group be created to be headed"by a Director of Administrative Services. This position would be responsible for coordinating the activities of all staff departments. Included within the administrative services group would be Finance, Personnel and Purchasing. The Administrative Services Director would also help coordinate certain activities, such as Business License collection of the City Clerk's office. It is felt that such an organization would be better able to respond to the greater demand from line departments for staff services and the organization, coordination, and control of these services would be much better if coordinated under a director. This reorganization does not require the creation of additional staff, positions. Existing positions would be reallocated and reassigned to a revised organi- zational structure. As with the development services grouping, the need in the adminis- trative services grouping is not for more technical positions or t expertise, but for better control and management of existing resources. There are a never ending number of details that need to be looked after and only through a better management structure, can we insure that these details will be attended to and that the staff service needs of operating departments will be met. ti" The overall intent of this reorganization proposal is to increase the City's capability to respond to the growing service needs of the community. The scope and complexity of activities undertaken by the City continues to grow, the present organizational structure makes it increasingly difficult to respond to the demands made upon it. This reorganization proposal should enhance the ability of the City organization to respond to the demands placed upon it. Although additional professional and technical positions may be required as time goes on due to an ever expanding workload, the reorganization per se can be accomplished without the creation of additional administrative positions. However, reorganization will require the elimination of certain existing positions and the creation of new positions in order to attract and retain the type of person with the necessary management skills to effectively administer the reorganized activities. Through this reorganization proposal, the City Manager will be relieved of the responsibility to look after a number of day to day administrative details necessary for the operation of the City. The City Manager's time will be available -5- to aid and assist the City Council in dealing with the complexYissues ue which face the CityMce the City in the anager will belbetternable oa to assist the Council future. The City in 'long range planning and the establishment of goals to guide t e City organization. Due'to.the increasing complexity of inter- governmental relations, the Manager must be more available to the Council for assistance in analyzing issues and developing policy alternatives. Through this proposed reorganization, it is intended that the manager will be better able to respond to the needs of. the Council aking role in order to respond to the con - to enhance its policy mity• The reorganization proposal stantly changing needs of the commun is not a revolutionary one but more an evolutionary one that is necessary to increase our management capability and stay abreast of the demands made upon the City organization by the community: PAUL BUSSEY City Manager PDB:ldg Atts. - 6- PROPOSED'DEVELOPMENT'SERVICES AND ADMINISTRATIVE'SERVICES'REORGANIZATION PRESENT ORGANIZATION CITY MANAGER Asst. Asst. to Adm. Purch. Finance Sec. to Bldg. Ping. Pub. Works C. Mgr. C. Mgr. Asst. Agent Director C. Mgr. Dir. Dir. Administrator (Pers.) Parks Polio Housing I I Redevel. Fire Bus. & Rec. Chief Authorit Coord. Chi: Lic. Dix. Supv. PROPOSED ORGANIZATION CITY MANAGER , Asst. Police Fire Library Sec. to Parks & Util. Redevel. C. Mgr. Chief Chief Director C. Mgr. Rec. Dir. Main. & Housing Dir. Administrative Development Serv. Dir. Serv. Dir. g. ng. Lty. Dir. Dir. E. . urc finance Pers. I Bus. Agent Dir. Dir. L. Su V. PROPOSED REDEVELOPMENT AGENCY AND HOUSING AUTHORITY'REORGANIZATION " PRESENT.ORGANIZATION HOUSING AUTHORITY REDEVELOPMENT AGENCY (City Council) .- "pity Manager' . Executive Director (City Council) City Manager (Executive Director) Redevelopment Coordinator Social Services Secretary/ Administrative Aide. Bookkeeper PROPOSED ORGANIZATION COMMUNITY DEVELOPMENT COMMISSION (City Council) City Manager (Executive Director) Director of Redevelopment and Housing Redevelopmen Secretary/ Housing -Program Coordinatot'll Bookkeeper Manager Administrative Social Services Aide Coordinator � n 1 CITY OF CARLSBAD Personnel Department ` MANAGER'S NOTE: Enclosures referenced in this memo have not been included in order to MEMORANDUM avoid confusion with the proposed reorganization charts DATE : December 1, 1978 prepared by the manager's office. TO City Manager FROM Personnel Director SUBJECT : REORGANIZATION I. PURPOSE The purpose of this memorandum is to propose a plan to accom- plish reorganization of the City government. The objectives of reorganization are assumed to be the following: A. Reduce the City Manager's span of control. B. Group similar organizational functions. C. Eliminate routine administrative functions from the daily attention of the City Manager. D. Group similar personnel skills for better utilization. E. Group similar items of equipment for better utilization and maintenance. F. Provide for maximum use of facilities. II. THE PLAN. The basic plan consists of reorganizing from the present structure to the desired structure by phases. There are several advantages to phasing such a reorganization: A. It provides flexibility to decision makers. The phases represent control mechanisms which can be triggered by selected conditions such as different space allocations, budget procedures, classification changes or implementation of better technology. I B. It provides a delay time .hereby employees can accept and adjust to the reorganization. C. It provides for time wherein employees who will have a status change can accept and adjust to that change. V D. It provides for less organizational disruption by prescribing a pattern for change. III. PHASE I. This phase is shown on Enclosure II. There are three primary changes from the present organization. A. First change: Group routine administrative functions under a single manager. This grouping has been titled Administrative Services and would be headed by the Administrative Services Manager. This would serve to consolidate four reporting units under one, thereby, reducing the City Manager's span of control. It would further reduce the involvement of the City Manager in the routine day to day normal course o1. f ,,..sue.....,.. functions. The Administratives Services "Manager would report only exceptions to the City Manager or could recap activities of the divisions of the Administrative Services Department on a prescribed reporting basis. It would require the creation of a position of Administrative Services Manager. B. The second change \could be to place the Building Inspection functior.+xnder, the purview of the Planning Director. This would serve to consolidate related functions and eliminate a reporting unit. It would enable the City to eliminate the position of Building Director, utilizing a title of Building Inspection Superintendent, responsible to the Planning Director to manage building inspection functions. C. The third proposed change during Phase I would involve separating the utilities Maintenance Department as an independent deparment. Thereby providing direct access to the City Manager by a utilities Maintenance Manager responsible for one of the primary public service departments. This move would then place the Public Works Administrator in a position of Public Works Director providing a narrower scope and con- sequently better concentration upon those matters related directly to engineering and public works projects. IV. PHASE II. The Phase II organization is shown as Enclosure III. There are two significant steps in moving to Phase II. A. The first step would be to place t'ie Engineering Department functions under the Community Development Department. This would eliminate the position of Public Works Administrator but create the position of Community Development Manager. B. The second s_ep required to achieve Phase II would be to place the Carlsbad Housing Authority under the management purview of the Community Development Manager. The Carlsbad Housing Authority could be placed under the direction of a Housing Manager who would be responsible to the Community Development Manager. V. PHASE III. Phase III would achieve the ultimate organizational structure desired. There are two principle s:.eps involved in Phase III. A. The first step would be to create a Community Services Department which would have a Community Services manager heading the department and would have the Librar1r. Recreation and Housing Authority as sub- divisions within the department. It would create the need to establish a position of Community Services Manager. B. The second change required according to Phase III would be to move the Parks function from Parks and Recreation under the purview of the Utility Maintenance Manager in the Utility Maintenance Department. VI. SUMMARY The reorganization proposed would serve to greatly reduce the City Manager's span of control enabling him to function on a daily basis by working directly with six individuals: The Administrative Services Manager, The Community Services Manager, The Police Chief, The Fire Chief, Utility Maintenance Manager, and the Community Development Manager. Each of these individual managers would have grouped within their departments similar type of functions, skills and equipment which could be more economically utilized under the Phase III organizational plan. The sub -divisions within the various main headings would vary depending upon the importance of their function. Conceivably, in the Community Development Department there could be a City Engineering Director, Planning Director, Building inspection Superintendent and a Redevelopment Superintendent. The Department of Community Services Development could end up with a Community Services Manager, Library Director, Recreation Director, and Housing Authority Director. � y1 EROME N. PIETI ersonnel Director JNP/jn c December 6, 1978 MEMORANDUM TO: City Manager FROM: Library Director SUBJECT: DEPARTMENTAL REORGANIZATION POSSIBILITIES Reference is made to your memorandum of September 27, 1978 in which item.number 7 read, "Reorganize Recreation, Senior Citizens and Library into Leisure Services Department". It is rather difficult to be positive about the reorganization suggestion for the following reasons: 1. The Carlsbad Library in no way could fit into the category of "Leisure Services". Perhaps a rereading of the 1978-79 budget program stare-ment migbt be in order. It reads - "The educational a..► cultural needs of the community con- tinue to be served by the Carlsbad City Library. Coopera- tion between the Library and the schools has been extremely beneficial to the young people of the City. The major pro- ject for 1978-79 will be the completion of a new History of Carlsbad and the completion of oral history interviews with outstanding citizens." The Library serves the educational, informational and cultural needs of the community. Only one whose Library experience is without documentation could evaluate the needs of our Library solely in terms of "leisure services". 2. The City Librarian answers directly to the City Manager under Carlsbad's code, however, she also must be cognizant of the requirements of the State Library, the Serra System and the local Library Board of Trustees. Reports must be made for all four entities, and many meetings are required. There are too many layers of authority now -- and one more would be too much. 3. Would this not be yet another expensive layer of government? San Diego County, under a former CAO (Chief Administrative Officer) set up such a group of super agencies using economy as the reason for so doing. The present CAO, Mr. Graves, is in the process of eliminating, or placing in other posi- tions, the heads of these agencies. The reason he gives for this is -- saving money. December 6, 1978 page (2 `DEPARTMENTAL REORGANIZATION POSSIBILITIES The agency methcd has been a trend for 12 to 15 years and what it seems to do is set up a series of super department heads who answer directly to the City Manager. This in turn creates a larger bureaucracy and further removes the various department heads from the Manager. The Library definitely does not need this. There is so little contact at present with either the City Manager of the City Attorney that it is a matter of deep concern to the Library Staff." One sugges- tion to resolve this problem would be to allow the Librarian to deal directly with the Assistant City Manager. This could be acceptable only if he was able to make some of the needed decisions. Most of the contacts with the City are of an emergency nature and cannot wait several days for a solution. 4. Is this idea of reorganizing all departments somewhat premature? Could the City justify adding another level of government at tUs stage in its development? Would this be an extravagant use of the taxpayers money? 5. The Library spends many hours meeting the•rieeds of Senior Citizens. There are also programs for them as well as all the other age groups from pre-school on up. I was not aware that the City had a specific department for Senior Citizens. 6. A strengthened Board of Library Trustees (as recommended in both the 1973 and 1978 Master Plans) would seem much more feasible. These individuals educate themselves in depth as to library procedures, personnel, administration and policy. They are willing to spend endless hours concentrating on the program. If their terms of office were lengthened and if the Council allotted them full responsibility,.a more satisfactory governance would exist. The Council always has the last authority by requesting quarterly reports and by final authority on the budget. 7. Librarians have resisted the trend toward "umbrella concepts" for many years. It does not seem to be a satisfactory answer to a unique service. A letter from Mr. Cy Silver of the California State Library makes the following statement: "The State Library knows of no evidence showing a saving of money nor any demonstrated improvement in library service coming about through placing the library operation under another directorship. Obviously the administrator who is a profes- sionally trained and experienced librarian can be expected to plan more wisely, budget more inno7atively, direct more surely and communicate more effectively the philosophy and services of the library, both to the public and to the administration than could a professional in another field. December 6, 1978 page (3 DEPARTMENTAL REORGANIZATION POSSIBILITIES The important point.is the library's ability to communi- cate with its citizen users." The Carlsbad Library's reputation in San Diego County and its constant increase in circulation attest to its ability to reach the people. Unless there is some overpowering reason for reorganization, my suggestion would be to allow this unique service to function in its present form. GEORGI�#A D. COLE Library Director GDC/b MEMORANDUM DATE: December 19, 1978 TO: Paul Bussey, City Manager FROM: James C. Hagaman, Planning Director. SUBJECT: DEPAr.TMENTAL RE -ORGANIZATION I realize it may be a bit late to respond to your request for comments on potential departmental re -organization, however, I would like the opportunity, through this memo, to share some thoughts on a very cursory basis. In reviewing your matzo on re -organization possibilities it occurred to me that one concern which would be most helpful is tho determination of the exact goals and objectives being sought in the organizational structure to fully evaluate how each suggest re -organization stands up against the intended goas. I can assume certain goals which to me seem obvious, although not inclusive to your needs. ' One need, in my opinion, is to minimize the number of persons reporting directly :o you and to establish clear responsibility lines for those individuals. The advantage of minimizing the number of persons with clear responsibility would enable you to fully develop an effective management team which would encompass the entire City organization rather than the somewhat fragmented organization of today. Another need is to free you from everyday routine activities, thus enabling you to be available to department heads and others or. a regular basis. You would have the opportunity to spend more time directing and establishing policies for the City and theoretically those responsible for carrying out your desires would do so. The proposed organizational changes in 1, 2 and 3 seem to express a need to develop a more effective and efficient plan processing system. This seems to be a constant reoccurrance. The public seems at times to be frustrated in dealing with the plan checking process. acceptsent Curreorwand ardhethem BuildingthroDepthemvariousdepartmenplans or plan checks tsforcomments Patty Cratty monitors the location of the plans and responds to those inquiries about where they are. In this process there is no such person who can, with any credibility, assure anyone when the plans will be finished. The system lacks accountability and respon- sibility. Whether the re -organization of the three departments in various ways is the answer to the problem is a matter of judgment. A re -organization may be an extreme answer to a problem which could be resolved in a simplier way. —� ORA" Memo Paul Bussey December 19, 1978 one individual, in any of the three departments concerned with the plan checking process, could be accountable for the process. Thus persons wishing specific information on the progress of their plans would only have to communicate with one individual. Another method to accomplish this would be to assign an individual in each department to a special team which would meet once a week. The -Chairman of this team would be responsible for overseeing the process, but each individual would-be working together to accomplish the intended goals. I have listed the proposed organizational changes 1, 2, 3, 6, and 10 of your memo with some brief pro and con statements which may assist you in your research. 4 t f PRO CON 1. COMBINE BUILDING & ENGINEERING . similar field inspection only portions of Engineering activities (could be combined) relate to construction both are primarily concerned department would have to be with safety sectionized as to functions to be effective coordination is important in Loth areas could mean new training of personnel to be efficient reduces number of persons reporting directly to City Manager some activitiftrof Engineering are basically non -related 2. 0Aq3INE BUILDING & PLANNING both operations in development structural safety not a major review are primarily concerned function of planning with private property zoning enforcement activities basic resistance to either already have cooperative efforts department controlling strong need for coordinator of final inspections . there is a need for better communication between two functions reduces number of persons reporting directly to City Manager 3. CREATE NEW DEPARTMENT COMBINING BUILDING, PLANNING AND ENGINEERING reduces number of persons reporting too diverse an operation to directly to City Manager effectively control could combine and coordinate would lead to another layer similar functions in various of administration, perhaps de - operation under one supervisor feating purpose of orginization would require extensive re- training of some personnel 416 y a u x Y 6. COMBINE ALL INSPECTION SERVICES with cross training might lead to reduction in personnel or at least no significant increase may speed up processing with better coordination . reduces number of persons reporting directly to City Manager Planning does not have a total individual to spare . would require major training management effort which can ill be afforded now each department will have difficulty with results administration of this would be critical or would lead to constant conflicts 10. COMBINE REDEVELOPMENT AND HOUSING ASSISTANCE . housing and redevelopment under . additional administrative one individual would provide more burdens on the Redevelopment co-ordination of efforts Coordinator by overseeing required paperwork for housing could tie redevelopment housing assistance assistance goals and the policies of the housing element of the General current housing assistance seems Plan into a more co-ordinated effort reasonably free of controversy and a change of status quo could lead to unanticipated problems a -A M TO: Paul D. Bussey October 20, 1978 City Manager FROM; Roy J. Kundtz Chief of Police In considering and recommending reorganizational changes, one must keep in mind, uppermost, what is to be accomplished. If the paramount con- cern is a seeable savings in money, then it is doomed at the beginning. If the purpose is to make city government more efficient, responsive and effective then reorganization is mandatory. "Good organization of itself does not think, display ititiative, or respond effectively to a given set of circumstances, but provides the necessary structure by which, and through which, the transmittal of information is facilitated, and the distribution of authority, responsibility, and accountability flows." A quick count of major and minor department and division heads in the City reveals there are about 17 or 18 people who routinely report to the City Manager for purposes of receiving approval or authorization, status reporting, problem solving, ect. Authorities have determined that the span of control (the number of subordinates who can be proper- ly supervised by one person) should be from six to twelve with eight being the optimum number. In reducing the span of control which is justified if efficiency in decision making is our goal, the first hur- dle is that responsibility should not be assigned a person unless he has the authority necessary to fulfill it. Put another way, one of the most vioT-ated principles of organization is our failure to delegate authority. Another important aspect of reorganization is that old traditional habits must be broken. All personnel must be schooled in the lines of authority and chain of command. Finally, management is an art that can apply principles but people, the real key, make it work. Carlsbad is fortunate that they have some understanding and knowledgeable leaders who are capable of accepting more responsibility. MY recommendation tends to first, group tasks and functions which are similar and then by purpose or process. The attached shows six or eight major departments directed by a head who is already employed by the City in a similar capacity, with the exception of the Public Safety Director. Administrative Services -Department With the exception of Finance, these are vital housekeeping units and logically fall into their own grouping. Finance being more diversified and complex may be considered for full department status or the A.S.D. could be headed by the public service comptroller counterpart. Leisure Services Department These services are a natural grouping of purpose. It is also the only department geographically spread throughout the City. Therefore, this is a much greater responsibiltiy than appears. � �i Environmental Department The only change recommended here is the addition of housing which is too closely related to development and redevelopment to be assigned elsewhere. Public Works Department This department is staffed with engineering and building specialists and are geographically adjacent to each other. With Maintenance obtaining -full department status. Public Works will have time to devote to monitoring on- going projects and planning. Maintenance Internal and external maintenance can best be handled by one department with full status. This is a sound purpose department. Increased efficiency should be apparent immediately and coordination with Public Works will not have changed appreciably. Public Safety Department The combining of Police and Fire into a Public Safety Department has been a historical fact in a minority of cases. This was based upon the premise that they are both emergency services of a continuous basis and some sav- ings by way of efficiency accrues by cooperating. Some old line cities upon incorporation chose this method of inaugurating both services. Some cities returned to single departments as the city grew. There have been practically no successes in merging fire and police after a reasonable length of successful service by both departments. Since neither of the chiefs appear competent to fulfill a Safety Director type position', there appears no benefit to the city but rather a. danger that both departmen,:s may suffer. - __A CITY MANAGER (BUSSEY) ADMINISTRATIVE SERVICES DEPARTMENT (PIETI) PUBLIC SAFETY DEPARTMENT ( ) LEISURE SERVICES DEPARTMENT (BALDWIN) Finance Police Recreation -.. Purchasing Fire Senior Citizens City Clerk Library Personnel Central Services ENVIRONMENTAL DEPARTMENT (HAGAMAN) PUBLIC WORKS DEPARTMENT (BECKMAN) MAINTENANCE DEPARTMENT (GREER) Redevelopment Engineering Utilities Planning Building Park Maintenance i Housing Public Works General Maintenance t M E M O R A N D U M TO : CITY MANAGER FROM . Coordinator, Parks and Recreation Department DATE . October 10, 1978 SUBJECT: DEPARTMENTAL REORGANIZATION POSSIBILITIES If reorganization of the City's departments is deemed sufficiently justified and will provide better and timely service to the public, then it should be considered. The present horizontal span of con- trol, with appropriate liaison/coordination between departments, appears to be functioning adequately. If a more vertical or pyramidal span of control would be more effective, the following are possible considerations. 1. Combine Public Works Administration, Building, Planning, Engineering and Redevelopment into a Development Agency, Administration or Department. 2. Combine Recreation, Senior Citizens, Library, Housing Assistance, and Parks into a Human, Leisure or Community Services and Resources Agency, Administration or Department. 3. Combine Finance, Purchasing, Personnel Central Services and City Clerk into an Administrative Services Agency, Administra- tion or Department. 4. Combine Police and Fire into a Safety Agency, Administration, or Department. 5. Designate the Utilities Maintenance Division as a Agency, Administration or Department. 6. In the foregoing combinations, the elements therein could re- main or be designated as departments or divisions. Using the department expression would not "demote" current department heads. It is not recommended that the Park Maintenance Section and the Tree Section of the Parks Division in the Parks and Recreation Department be separated. The technical complexities of the two tasks are suffi- ciently similar to require the expertise of a school trained and ex- perienced supervisor. The tasks accomp.L.shed and the equipment used by the two sections are not generally compatible with many of the tasks and equipment used by elements in the Utilities Maintenance Division. If considering integration with another element, the Park Division should be a separate entity. The attached letter justifies not transferring the Tree Section from with the Parks Division. i 1 . M1 Z In the event that the Parks Division is separated from the Recreation Division and the Parks and Recreation Administration is necessarily eliminated, it will become necessary to reassign the long and short range tasks of park planning and development to another element, the most obvious would be Planning. The Recreation Division has need of clerical assistance for 40 hours a week either on a full or part time basis, to do necessary typing and activities registration, The Parks Division has mininal need of clerical. assistance and could jointly use the clerical facilities of another element. The combining of all inspection services (Public {Yorks, Building, Planning, Fire, Parks, Landscaping, Irrigation) would require that one or two persons have a vast knowledge or experience in all the inspection areas, which is unlikely. The other undesirable aspect would be creation of a large element of several persons, each with expertise in an area, which would not be a good utilization of man- power. The present system, which i.s presently being refined, utilizes expertise from within the departments or divisions to make appropriate inspections which are coordinated by the Planning Department. The foregoing recommendations are submitted for consideration if the present organization is considered inappropriate for its present and future tasks. Respectful/ly7 sub fitted, i Joe Eggleston, Coordinator Parks and Recreation Department JE:swf } MEMORANDUM TO: City Manager FROM: Public Works Administrator DATE: October 12, 1978 SUBJECT: DEPARTMENTAL REORGANIZATION POSSIBILITIES Thank you for the opportunity to comment on the several suggested modifi- cations. Before I comment on the specific suggestions, I would like to make some general comments. In my opinion, one of the reasons for need- ing some reorganization is that the operational span of control of the City Manager is too broad. With the growth of the City and increasing number of complex substantive issues we must deal with on a day-to-day basis, the use of your time in dealing with routine processes that could quite adequately be handled by department heads is non -productive. From my personal experience, it is getting increasingly difficult 'to gain ac- cess to you, and any kind of restructuring that would consolidate your operational span of control would be to the general benefit. It would reduce time - your time wasted in meetirgs and the department heads' time wasted waiting for meetings. Now, in response to the specific items the following are my comments: I. "Combine Building and Engineering." fie positive factors of this combination would be the elimination of a department head and the subsequent cost savings. It is assumed the position to be elimi- nated would be Building Director in that the legal requirements of State and Municipal Codes require us to have a City Engineer. This combination would facilitate the coordination of the efforts of City Inspectors. It would also allow us to consolidate public counter functions into one operation. The negative aspects are that it would extend the workload of an existing department head and would require additional training for the City Engineer. While this combination is a common practice in many cities throughout the country, to effectively achieve this combination here would re- quire a strong leader at the superintendent or foreman level in the Building Department. This combination would expand the responsibilities of the Public Works Administrator's office. This would be offset by the elimination of some of the efforts now required to coordinate the ac- tivi"ries of two departments and to cover those incidences of "non - coordination." 2. "Combine Building and Planning." This is an unusual combination. I have seen It achieved in only one other city and that city was fully developed with a program of fostering redevelopment rather than new development. While this combination could possibly facilitate zone code enforcement, et al; and while many planners have an architectural background (and, therefore, could possibly be compatible with building trades), I believe that building code enforcement per se would become less of a technical function and would assume a flavor of insuring that a "statement" is achieved at each project. In a city as fast growing as we are, I have generally negative reactions to this pro- posal. 3. "Reorganize Public Works completely into a new department under a dif- ferent title, to include Building, Planning and Engineering." This combination would insure a coordination of developmental processes, but if it is to be effective it would require strong division heads and a department head with flexibility and the ability to understand considerations outside of primary area of discipline. I really feel that diversity of opinion (strong division heads) is important. A major plus would be that we could achieve a combinat'yn of records, thereby avoiding much duplication. The implication of separation of Utilities/Maintenance would cause a problem with coordination of work originated in Engineering and would substitute the City Manager as the arbiter instead of the Public Works Administrator. The head of this new department would need to have suf- ficient authority and backing from the City Manager's office otherwise the result would be an inability to effectively lead the division heads. The division heads have earned and they deserve the stature of depart- ment heads. This could be retained if you create an agency set-up headed by an Assistant City Manager/whatever in charge of coordination. 4. "Make Utilities/Maintenance a separate department." Further isolating this department would not achieve anything unless it were grouped in an agency set-up under an Assistant City Manager. It certainly ►nerits the status of a department with a department head in charge. 5. "Combine Park Maintenance with Utilities/Maintenance as a single depart- ment." This is a very good idea, but should be accomplished only with the near -term prospect of a new combined yard for both functions. This combination is of two similar functions and would allow more effective use of equipment and manpower. It would eliminate a currently awkward situation wherein Parks & Recreation is responsible for parkway mainten- ance, -tree trimming, etc. 6. "Combine all inspection services (Fire, Planning, Public Works, Building) Into a single division." I cannot picture cross -training in all disci- plines. Coordination could certainly be achieved, but it would be at the expense of trading in field time for meeting time. The latter would be required to effect the coordination. I don't think we can afford the time to experiment with this one for quite a while. 7. "Reorganize Recreation, Senior Citizens and Library into Leisure Ser- vices Department." You already have my comments on this one. -- - i • 8. "Combine Police and Fire." I am not qualified to comment on this one. 9. "Create Administration Services Department to include Finance, Pur- chasing, Personnel, Central Services and City Clerk." I strongly sup- port this in a modified form. The isolation of the Personnel Director ' from the Personnel Officer (City Manager) by the insertion of a depart- ment head would be dysfunctional. The creation of an Assistant City Manager/Administrative Services and the appointment of that person as ! the Personnel Officer might solve that problem. The remaining portion of this combination sounds like an excellent idea. 10. "Combine Redevelopment and Housing Assistance." Isn't it pretty much working that way now on important policy issues? i 3 J Ronald A. BecKman, R.E. 1 Public Works Administrator RAB:VEB i t i i i CARLSBAD FIRE DEPARTMENT MEMORANDUM TO: CITY MANAGER DATE: 10-6-78 FROM: FIRE CHIEF SUBJECT: Ramblings/Reorganization In responding to the idea of perhaps combining police and fire services I feel that to a certain degree we have combined some of the services, i.e., radio dispatching. At the present time the police and fire departments have a very amiable working arrangement assisting one another on many calls. The subject of police and fire consolidation has been the object of many studies and investigations and in fact has been incorporated in some areas as you well know. I do feel, however, for Carlsbad, due to the large area and growing pains that we have that any economic benefits that might be achieved would be offset by a decrease in the level of service. In regard to combining inspections into one division I believe this might be worthy of future committee study. However, I am not aware of all the different types of inspections being made by the City and whether we are referring to incorporating other functions such as plan checks into the division of in- spections. Most inspections are concerned with projects during the con- stxuction stages and once the project is completed generally do not make further inspections of the project. Fire inspec- tions differ somewhat in that our inspections are on -going and are of a maintenance type to assure that the building continues to be used as intended and is maintained so as to provide a reasonable degree of life safety. I see no advantage in having a different division make fire inspections unless the division was to have total control of enforcing the codes, plan checking, etc., to a point of eliminating the need of our fire prevention bureau. K. Tho Pson 1 78-226 October 10, 1978 14 ' MEMORANDUM TO: City Manager FROM: Director of Utilities & Maintenance SUBJECT: Departmental Reorganization Possibilities I have reviewed the list of departmental reorganization possibilities with interest and I am supportive of these efforts to make our organi- zation more effective for and responsive to the public's needs. It is my impression, from reviewing the department titles, that each of the changes suggested will improve some functional areas but may well have a negative affect on areas that function well at present. As an example, the combination of Building and Engineering may well improve the plan check and inspection functions of both departments, but result in a negative improvement in the functional area of Planning, Contract Admin- istration and code enforcement. I would suggest some consideration be given to organizational efforts to combine functions of Building, Planning and Engineering into a two or three department organization or perhaps under the umbrella department of Public Works with two or three functional divisions. It would appear feasible to me to combine the functions of inspection, plan check, code enforcement and contract administration into a Current Programs Department; the functions of subdivision planning, general planning, building code development (an operating DCC so to speak), and CID into a Future Program Branch might also be considered. Perhaps some preliminary discussion as to how the functional areas described could best interface would be beneficial prior to determining the reorganizational titles. Should there beserious consideration of Alternative 3, reorganizing Public Works into an umbrella agency, I believe that consideration should be given to making the Utilities/Maintenance function as a separate operating depart- ment. Alternative 4, "Make Utilities/Maintenance a separate department". -This department functions (for better or worse) as a separate department in many ways at this time due to size (it has the largest number of employees), function (it is removed from the development and planning process) and budgetary requirements (seven budget accounts and about 30% by money account). Coordination of the Engineering and Utilities/Maintenance function is achieved by the current organizational scheme, however, this coordination might function as well in an inter -departmental mode as it does in an intra-departmental scheme as now operating. Alternative 5, "Combine Park Maintenance with Utilities/Maintenance as a single department". I believe that this alternative could function well if a singli- yard facility was available. The inclusion of Parks maintenance would allow w .. . `Reorganization (continued) -2- October 10, 1978 better coordination of equipment needs, standardization of safety practices, operating policies, and disciplinary requirements and coordination of effort as concerns right-of-way maintenance/anti-litter efforts, and traffic sight distance/signing functions. Such a combined department would loose some effectiveness if it remained necessary to operate from separate yard locations. I am particularly supportive of the creation of an Administrative Services Department. It is, in my opinion, a very functional arrangement that would relieve the City Manager of many routine matters that he must coordinate because of the department status of the present administrative support activities. It would be necessary, however, to delegate authority for administrative act- ivities to the Administrative Department Head to make this alternative viable. I would'be most willing to discuss these alternatives further and develop a more comprehensive analysis of them should you desire. �— ROq*R W. GREER Director of Utilities & Maintenance RWG: pag cc! Public Forks Administrator