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Home My WebLink AboutCitygate Associates, Inc - 2002-03-06CITY OF HUNTINGTON BEACH �- Vv-W(kftW) ABM. MEETING DATE: August 26, 2002 DEPARTMENT ID NUMBER: Council/Agency Meeting Held: 09 -Q10- 62 Deferred/Continued to: XApproved ❑ Conditio ally A proved ❑ Denied W. Cit lerk' S gnatureAV o c August 26, 2002 Department ID Number: c EE CITY OF HUNTINGTON BEACH w REQUEST FOR COUNCIL ACTION A SUBMITTED TO: HONORABLE MAYOR AND CITY COUNCIL MEMBERS _= SUBMITTED BY: RAY SILVER, CITY ADMINISTRATOR Q�� PREPARED BY: WILLIAM P. WORKMAN, ASSISTANT CITY ADMINISTRATOR SUBJECT: City Administrator's Response to Citygate Associates' Review of the Community Services Department Statement of Issue, Funding Source, Recommended Action, Alternative Action(s), Analysis, Environmental Status, Attachment(s) Statement of Issue: Citygate Associates was retained to complete an independent management and operations review of the Community Services Department as part of the city's organizational effectiveness program. The finished study has 70 recommendations from the consultant. The City Administrator's recommendations for implementation of those recommendations are proposed for Council action. Funding Source: The costs for adoption of those Citygate recommendations that have funding requirements will be identified in the Annual Budget, the reorganization plan for the Department,or will be paid for from existing budgeted funds. Recommended Action: Motion to: 1. Receive the Citygate Associates Management and Operations Study of the Community Services Department and adopt the City Administrator's recommendations to implement the findings of the Citygate Study. Alternative Action(s): The City Council may make the following alternative motion(s): 1. Do not accept the Citygate Study or adopt the City Administrator's implementation recommendations. RCA for City Administrator's Response -2- 8/21/2002 4:52 PM15 REQUEST FOR COUNCIL ACTION MEETING DATE: August 26, 2002 DEPARTMENT ID NUMBER: Analysis: Citygate Associates was retained by the city to complete a management review of the Huntington Beach Community Services Department. This management review is one in a series being completed to improve the economy, efficiency and effectiveness of city departments. The Community Services Department Study identifies accomplishments; key findings; consultant recommendations and an action plan for improvements in specific areas. In summary, the Study indicates that the Community Services Department is " ... focused on service delivery. The Department staff in all Divisions is dedicated, committed to customer service, and is doing a good job providing the day-to-day services that are budgeted. Overall, . . . few operational problems were [found] that create significant inefficiencies or ineffectiveness. Improvements that are needed are based on insufficient staffing and insufficient time to provide adequate supervisory support at the higher levels of the Department which result in problems related to organization and reporting relationships, the need for goals, objectives and work measures, staffing and financial reporting systems." The City Administrator's recommendations for implementation of Citygate's findings are detailed in Attachment 1 to this report. A full copy of the Citygate Management and Operations Study are included as Attachment 2. The City Administrator's responses were developed in cooperation with the Community Services Department. The adoption of these recommendations by the City Council is recommended. Attachment(s): 1. City Administrator's Recommendations for Implementation of Citygate's Findings 2. Citygate Associates Review of the Community Services Department — Final Report 3. PowerPoint Presentation: Review of the Community Services Department Attachment 1 To: Via: From: Date: i CITY OF HUNTINiGTON BEACH COUNCIL - ADMINISTRATOR COMMUNICATION Honorable Mayor and Members of the City Council Connie Brockway, City Clerk Ray Silver, City Administrator William P. Workman, Assistant City Administrator August 26, 2002 Subject: Late Communication — City Administrator's Response to the Citygate Review of the Community Services Department Several pages of the City Administrator's Response to the Citygate Review of the Community Services Department were inadvertently omitted from the City Council Agenda package. A complete copy of the response is included with this memorandum. It re I�ac_es Attachment 1 to Agenda Item #3 pages 3.4 through 3.9 Attachment 0 C C 0 Sy C ) rl -r� krI dN) n I D Ffa6`6 Citygate Findings 11. REVENUE AND EXPENDITURE RELATIONSHIPS Recommendation II-1 Add an analyst to the Department staff to report to the Deputy Director with the responsibility to take the lead on development of a financial reporting system that will permit the City to set fee levels based on information about which programs are self supporting and permit the City Council to make an informed decision regarding which programs/activities to subsidize and to what degree. This position will also assist in developing and maintaining Performance Measures and in doing program assessment, and preparing the annual Department budget. Recommendation II-2 Develop a budget structure, budget report and financial management system in conjunction with the Administrative Services Department that will record expenditures and revenues at the individual activity/class level within the Department. Recommendation II-3 Obtain a policy determination from the City Council regarding which Department sponsored activities are to be self supporting -including overhead and support from other departments -and which are to be subsidized, as a guide to developing a fee program that is automatically changed each year based on Council policy and effective cost/revenue information. III. OVERALL DEPARTMENT ISSUES Recommendation 111-1 Reorganize the Department to have capital projects report to the Department Director and have all operations report to the Deputy Director through a Superintendent of Recreation And Human Services, Superintendent of Beach Services, and a Manager of Cultural Affairs. City Administrator's Recommendations Recommended Action: The Community Services Department will propose a Senior Administrative Analyst for consideration in the 2002-2003 Annual Budget and reorganization plan. Recommended Action: The Community Services Department will develop an improved departmental budget and finance system within twelve months. Recommended Action: The Community Services Department will obtain the fee policy direction within one month in conjunction with the city's new Cost Allocation -Fee Study. Recommended Action: The Community Services Department will propose a reorganization within one month that includes key elements of this finding but recognizes the city's financial constraints. Citygate Findings City Administrator's Recommendations Recommendation III-2 Recommended Action: The Community Services Department Add an analyst position to assist in capital projects and development will propose consideration of this Analyst within 24 months in of the annual department budget. the 2004-2005 budget. Recommendation III-3 Recommended Action: The Community Services Department Reassign Community Services to report to the Assistant City will report to the Assistant City Administrator within one month. Administrator. Recommendation III-4 Recommended Action: The Community Services Department Undertake a program to develop a Mission Statement, Goals and will complete development of new mission statement, goals and Specific Objectives for the department and each of its divisions and objectives within twelve months include a process for annual review and development of new Specific Objectives that are the basis for budget requests. Recommendation III-5 Recommended Action: The Community Services Department Develop work Performance Measures for programs/activities that can will obtain training and complete development of performance be used to assess when and how changes should occur and measures within 18 months. resources shifted or added. Recommendation III-s Recommended Action: The Community Services Department Add an analyst to take the lead on development of a financial reporting will propose consideration of this Analyst within 24 months in system that will permit the City to set fee levels based on information the 2004-2005 budget. about which programs are self supporting and permit the City Council to make an informed decision regarding which programs/activities to subsidize and to what degree. This position will also assist in developing and maintaining Performance Measures and in doing program assessment, and preparing the annual Department budget. First described in Recommendation II-1. Recommendation III-7 Recommended Action: The Assistant City Administrator will The Assistant City Administrator should meet at least biweekly with hold quarterly training sessions with all the department Analysts the analysts assigned to departments that report to him. to set standards and improve performance beginning within one month. Recommendation III-8 Recommended Action: The 1,000 limit will be discussed during Allow additional exceptions to the 1,000-hour limit for some recurrent meet and confer sessions with the employee associations within employees. one month. 0 Citygate Findings IV. CAPITAL PROJECTS City Administrator's Recommendations Recommendation IV-1 Recommended Action: The Community Services Department Add an analyst position to the Department, reporting to the Director will propose a Senior Administrative Analyst for consideration in and assisting in capital project analysis and budget development. the 2002-2003 Annual Budget and reorganization plan. (First described in Recommendation No. III-2.) Recommendation IV-2 Recommended Action: The Community Services Department Assign the Development Section to report directly to the Department will propose a reorganization within one month that includes key Director who will then have comprehensive responsibility for capital elements of this finding. projects and reassign the Deputy Director to have day-to-day responsibility for all operating sections of the Department. Recommendation IV-3 Recommended Action: The Community Services Department Revise both the content and implementation of the Administrative will work with Public Works, Planning, and Building & Safety to Regulation governing implementation of capital projects. complete a revised AR within six months. V. MARINE SAFETY Recommendation V-1 I Recommended Action: The Community Services Department Develop a new system to estimate and document the number of will develop a revised system within four months. persons using the beach. Recommendation V-2 I Recommended Action: The Community Services Department Develop a staffing plan to accommodate the expected increase in will develop a revised staffing plan within six months. beach users over extended hours. Recommendation V-3 Recommended Action: The Community Services Department Move the permit processing for Central Park facilities to another will relocate permit processing to City Hall within three months. location in the Community Services Department. Recommendation V-4 Recommended Action: The Community Services Department Upgrade the Marine Safety computer systems and staff capability to will develop a plan for improved access to financial information be able to use the City financial software. within six months. 4J Citygate Findings Vl. BEACH MAINTENANCE City Administrator's Recommendations Recommendation VI-1 Recommended Action: The Community Services Department Develop baseline performance standards for beach and restroom will develop the standards and manual within four months. cleanliness and produce a standard policies and procedures manual for beach maintenance operations. Recommendation VI-2 Recommended Action: The Community Services Department Establish a record keeping and documentation log for parking meter will establish a record -keeping program within three months. repair and maintenance for operating efficiency and effectiveness, and possibly for increased staffing justification. Recommendation VI-3 Recommended Action: The Community Services Department Document equipment repairs and maintenance in orderly records and will improve the repair and maintenance record -keeping system logs. within two months. Recommendation VI-4 Recommended Action: The Community Services Department Fill the vacant mechanic position. has proposed the elimination of this position as part of the 2002- 2003 Annual Budget. Recommendation VI-5 Conduct an analysis of the equipment maintenance program and cost effectiveness of preventive maintenance: to include the development of a life expectancy and replacement cost list for all Beach Maintenance Section equipment. Vll. PARKING AND CAMPING Recommendation VII-1 Define the section's minimal standards for the auditing and training of recurrent parking attendants. Implement security measures at the parking structure and parking booths for the parking attendants and the cash collection. Recommended Action: The Community Services Department will develop an assessment of the equipment program within twelve months. Recommended Action: The Community Services Department will define standards and training within three months. Recommended Action: The Community Services Department will implement new measures within two month. R. Citygate Findings City Administrator's Recommendations Recommendation VII-3 Recommended Action: The Community Services Department Identify the appropriate dollar amount that dictates when money is will revise collection standards and procedures within three broken down from parking booths and include that in the Section's month. collection procedures. Recommendation VII-4 Recommended Action: The Community Services Department Conduct formal weekly or bi-weekly section staff meetings. will conduct bi-weekly section staff meetings within one month. Recommendation VII-5 Recommended Action: The Community Services Department Implement computerized scheduling and tracking system for camping will implement computerized scheduling and tracking within nine operations for reservations and data keeping. months. Recommendation VII-6 Recommended Action: The Community Services Department Document public complaints: to include the nature of the complaint will develop a complaint system within two months. and time of occurrence. Recommendation VII-7 Recommended Action: The Community Services Department Analyze the costs/benefits of contracting out the parking and camping will complete an analysis within twelve months. functions to the private sector. Vill. PARK SURVEILLANCE AND NATURE CENTER Recommendation VIII-1 Recommended Action: The Community Services Department Develop a Mission Statement for the Park Surveillance and the Nature will complete development of new mission statement, goals and Center operations, along with a list of Goals and Specific Objectives to objectives within twelve months. accomplish the Mission Statement, and a Work Plan to accomplish the Goals and Specific Objectives. Recommendation VIII-2 Recommended Action: The Community Services Department Evaluate the staffing needs for the changing requirements of the park will complete the new staffing plan in conjunction with the 2002- facilities, and develop a staffing plan to accomplish those needs. 03 Annual Budget and Reorganization Plan within one month. Recommendation VIII-3 Recommended Action: The Community Services Department Consider moving the Park Surveillance/Nature Center section from will eliminate the section in the 2002-03 Annual Budget within Marine Safety to the Recreation Division in the Department. one month. 01 Citygate Findings City Administrator's Recommendations IX. RECREATION Recommendation IX-1 Recommended Action: The Community Services Department Establish a Mission Statement, Goals, Objectives, and Performance will complete development of new mission statement, goals and Measures. objectives within twelve months. Recommendation IX-2 Recommended Action: The Community Services Department Reorganize recreation services in the department to increase will propose a reorganization within one month that includes key efficiencies, management supervision, and balance between workload elements of this finding but recognizes the City's financial and staffing (see also Overall Department Section). constraints. Recommendation IX-3 Recommended Action: The Community Services Department Establish customer satisfaction feedback loop. will establish a customer service feedback program within six months. Recommendation IX-4 Recommended Action: The Community Services Department Modernize program and update policies and procedures. will modernize program and update policies and procedures within eighteen months. Recommendation IX-5 Recommended Action: The Community Services Department Develop a maintenance plan in coordination with the annual budget. will work with the Public Works Department to develop an Improve coordination and communication with the Public Works improvement plan within twelve months. Department in order to improve the recreation facilities on a routine basis. Recommendation IX-6 Recommended Action: The 1,000 limit will be discussed during Evaluate re -current 1000-hour rule as it relates to the community meet and confer sessions with the employee associations within centers in order to provide efficient, and cost-effective services (see one month. also Overall Department Section). Recommendation IX-7 Recommended Action: The Community Services Department Re -vamp the youth sports program, including policies and procedures, will develop a re -vamped program within eighteen months. to meet the community's youth sports needs, to increase youth participation, and to ensure a fun and safe program. a- Citygate Findings City Administrator's Recommendations X. ADULT SPORTS Recommendation X-1 Recommended Action: The Community Services Department Establish Mission Statement, goals and objectives and performance will complete development of new mission statement, goals and measures for programs. objectives within twelve months. Recommendation X-2 Recommended Action: The Community Services Department Evaluate customer satisfaction of division programs and unmet needs will establish a customer service feedback program within six through customer and citizen surveys. months. Recommendation X-3 Recommended Action: The Community Services Department Benefit from use of technology when appropriate for registration and to will plan for more use of technology within nine months. track, organize, and communicate information. Recommendation X-4 Recommended Action: The Community Services Department Organization structure changes: re-classify senior recreation will propose a reorganization within one month that includes key supervisor as recreation coordinator and place under the recreation elements of this finding but recognizes the City's financial division (see Recreation Section). constraints within one month. X1 HUMAN SERWCES Recommendation XI-1 Recommended Action: The Community Services Department Establish mission statements, goals and objectives, and performance will complete development of new mission statement, goals and measures for Senior Center programs. objectives within twelve months. Recommendation XI-2 Recommended Action: The Community Services Department Develop Procedural Manual for Senior Center staff to use as a will complete a new procedures manual within twelve months. resource. Include a section on roles and responsibilities. Recommendation XI-3 Recommended Action: The Community Services Department Perform long-term planning to accommodate future needs of seniors. will conduct additional planning within twelve months. Citygate Findings City Administrator's Recommendations Recommendation XI-4 Recommended Action: The Community Services Department Re -define roles and responsibilities of Council on Aging and Senior will facilitate role definition within twelve months. Center. See also Recommendation No. XI-10. Recommendation XI-5 Recommended Action: The Community Services Department Evaluate programs and class offerings of the Senior Center on a will complete program and class assessment within nine routine and systematic basis to meet the needs of the senior months. population. Recommendation XI-6 Recommended Action: The Community Services Department Develop plan to address short and long-term office space issues for will complete a space plan within twelve months. Senior Outreach. Recommendation XI-7 Recommended Action: The Community Services Department Solve computer systems issues and provide on -going support for will develop a plan for improved computer systems within twelve Senior Outreach. months. Recommendation XI-8 Recommended Action: The Community Services Department Develop a procedural manual for Senior Outreach permanent, re- will complete a new procedures manual within six months. current, and volunteer staff. Recommendation XI-9. Recommended Action: The Community Services Department Change superintendent responsibilities to focus on management will propose a reorganization within one month that includes key oversight and planning (See Overall Department Section). elements of this finding but recognizes the City's financial constraint. Recommendation XI-10 Recommended Action: The Community Services Department Re -define the roles and responsibilities of the Council on Aging and will facilitate role definition within twelve months. Senior Outreach. Recommendation XI-11 Recommended Action: The Community Services Department Evaluate Opportunities to Combine Oak View Youth Sports with other will. propose a plan for Oak View that recognizes the City's City Programs to Benefit from Economies of Scale and to Foster financial constraints in the 2002-03 Annual Budget within one Community Growth. month. a Citygate Findings City Administrator's Recommendations . Recommendation XI-12 Recommended Action: The Community Services Department Evaluate Opportunities to Improve Oak View Facility. will propose a plan for Oak View within one month that recognizes the City's financial constraints in the 2002-03 Annual Budget. Recommendation XI-13 Recommended Action: The Community Services Department Increase Supervision and Support to Oak View Staff. will propose a plan for Oak View within one month that recognizes the City's financial constraints in the 2002-03 Annual Budget. Recommendation XI-14 Recommended Action: The Community Services Department Assist Project Self -Sufficiency foundation in resolving case will assist in resolving case management issues within six management system issues to Increase Program Efficiency and months. Effectiveness. Recommendation XI-15 Recommended Action: The Community Services Department Incorporate marketing and fundraising tasks in divisional goals and will develop new fundraising plans and incorporate them in the objectives to prepare for potentially difficult funding times. division's and department's goals and objectives within twelve months. XII. CULTURAL AND EVENT SERVICES Recommendation XII-1 Recommended Action: The Community Services Department Develop systems to improve communication between the Cultural and will develop a communications plan and implement it within two Event Services Division and the rest of the City staff. months. Recommendation XII-2 Recommended Action: The Community Services Department The Department Director needs to keep the department managers Director will establish new protocols for communicating informed of his decisions and directions. directions and decisions within one month. Recommendation XII-3 Recommended Action: The City Administrator's office will Define the roles of the Library Department and the Cultural and Event facilitate an interdepartmental dialogue on the definition of roles Services Division should play in providing cultural programs and within nine months. services. Citygate Findings City Administrator's Recommendations Recommendation XII-4 Recommended Action: The Community Services Department Upgrade the Art Center computer systems and staff capability to be will work with Information Services staff to plan and install able to use the City program registration software and the City improved computer systems within nine months. financial software. Recommendation X11-5 Recommended Action: The Community Services Department Provide additional staff time to free the Community Services Director will propose a reorganization within one month that includes to be more active in fundraising to support the Cultural and Event specific attention for fundraising. Services Division. Xlll. SPEcIFlc EVENTS Recommendation XIII-1 Recommended Action: The Community Services Department Develop a Permit Policy and Procedures Manual for Specific Event will complete a new procedures manual within twelve months. Permits and a tracking system to monitor compliance to permit requirements. Recommendation XIII-2 Recommended Action: The Community Services Department Budget an amount of money for fee Waivers to support selected non- will evaluate revising the city's existing policy on fee waivers profit organizations. within six months. Recommendation XIII-3 Recommended Action: The Community Services Department Charge a fee for Specific Event Permits. will evaluate and propose policies related to Specific Event Permits within three months. Recommendation XIII-4 Recommended Action: The Community Services Department Develop a Reporting system for Specific Event Permits. will develop a reporting system within nine months. X/V. HARBOR AREA Recommendation XIV-1 Recommended Action: The City Administrator's office will Transfer organizational responsibility for the Harbor to the Public evaluate roles and responsibilities and report on the findings Works Department, except park and lifeguard issues that can remain concerning the transfer of responsibility within six months. with Community Services. Citygate Findings City Administrator's Recommendations Recommendation XIV-2 Recommended Action: The Community Services Department Develop a fee program to fund dredging and the regulatory activities will propose fee program within six months. related to the Harbor. Citygate Findings IL REVENUE AND EXPENDITURE RELATIONSHIPS Recommendation II-1 Add an analyst to the Department staff to report to the Deputy Director with the responsibility to take the lead on development of a financial reporting system that will permit the City to set fee levels based on information about which programs are self supporting and permit the City Council to make an informed decision regarding which programs/activities to subsidize and to what degree. This position will also assist in developing and maintaining Performance Measures and in doing program assessment, and preparing the annual Department budget. City Administrator's Recommendations Recommended Action: The Community Services Department will propose a Senior Administrative Analyst for c7nsideration in the 2002-2003 Annual Budget and reorganization plan. Recommendation II-2 Recommended.Action: The Community Services Department Develop a budget structure, budget report and financial management will develop an` improved departmental budget and finance system in conjunction with the Administrative Services Department system within twelve months. that will record expenditures and revenues at the individual activity/class level within the Department. Recommendation II-3 Recommended Action: The Community Services Department Obtain a policy determination from the City Council regarding which will obtain the fee policy direction within one month in Department sponsored activities are to be self supporting-ir�cl ding conjunction with the city's new Cost Allocation -Fee Study. overhead and support from other departments -and whic are to be subsidized, as a guide to developing a fee program h9t is automatically changed each year based on Counolpolicy and effective cost/revenue information. f 111. OVERALL DEPARTMENT Recommendation III-1 Reorganize the Departrient to have capital projects report to the Department DiregWrand have all operations report to the Deputy Director throw kyla Superintendent of Recreation And Human Services, Superintendt of Beach Services, and a Manager of Cultural Affairs. Recommended Action: The Community Services Department will propose a reorganization within one month that includes key elements of this finding but recognizes the city's financial constraints. 2 0 RN Citygate Findings City Administrator's Recommendations Recommendation III-2 Recommended Action: The Community Services` Department Add an analyst position to assist in capital projects and development will propose consideration of this Analyst wit in 24 months in of the annual department budget. the 2004-2005 budget. Recommendation III-3 Recommended Action: The Community Services Department Reassign Community Services to report to the Assistant City will report to the Assistant City Admir�irator within one month. Administrator. � Recommendation III-4 Recommended Action: The Community Services Department Undertake a program to develop a Mission Statement, Goals and will complete development of�new mission statement, goals and Specific Objectives for the department and each of its divisions and objectives within twelve oaths include a process for annual review and development of new Specific Objectives that are the basis for budget requests. Recommendation III-5 Recommended Action: The Community Services Department Develop Work Performance Measures for programs/activities that can will obtain training and complete development of performance be used to assess when and how changes should occur and measures wAin 18 months. resources shifted or added. Recommendation III-6 Recommended Action: The Community Services Department Add an analyst to take the lead on development of a financial reporting wi /.Oropose consideration of this Analyst within 24 months in system that will permit the City to set fee levels based on information the 2004-2005 budget. about which programs are self supporting and permit the City Council/ to make an informed decision regarding which programs/activitie o subsidize and to what degree. This position will also assist in developing and maintaining Performance Measures andn'n doing program assessment, and preparing the annual Depa ent budget. First described in Recommendation II-1. Recommendation III-7 Recommended Action: The Assistant City Administrator will The Assistant City Administrator should mee t le aast biweekly with the analysts assigned to departments that dport to him. hold quarterly training sessions with all the department Analysts to set standards and improve performance beginning within one 7 month. Recommendation III-8 Recommended Action: The 1,000 limit will be discussed during Allow additional exceptions to a 1,000-hour limit for some recurrent meet and confer sessions with the employee associations within employees. one month. Citygate Findings IV. CAPITAL PROJECTS City Administrator's Recommendations Recommendation IV-1 Recommended Action: The Community Services/ Department Add an analyst position to the Department, reporting to the Director will propose a Senior Administrative Analyst fo�co`nsideration in and assisting in capital project analysis and budget development. the 2002-2003 Annual Budget and reorganization plan. (First described in Recommendation No. III-2.) X Recommendation IV-2 Recommended Action: The COT md'hity Services Department Assign the Development Section to report directly to the Department will propose a reorganization wit in one month that includes key Director who will then have comprehensive responsibility for capital elements of this finding. projects and reassign the Deputy Director to have day-to-day responsibility for all operating sections of the Department. Recommendation IV-3 Recommended Action: The Community Services Department Revise both the content and implementation of the Administrative will work witb,Public Works, Planning, and Building & Safety to Regulation governing implementation of capital projects. completearevised AR within six months. V. MARINE SAFETY Recommendation V-1 Recommended Action: The Community Services Department Develop a new system to estimate and document then umber of will develop a revised system within four months. persons using the beach. Recommendation V-2 Recommended Action: The Community Services Department Develop a staffing plan to accommodat�eexpected increase in will develop a revised staffing plan within six months. beach users over extended hours. Recommendation V-3 Recommended Action: The Community Services Department Move the permit processi g for Central Park facilities to another will relocate permit processing to City Hall within three months. location in the Com un ti y Services Department. Recommendation V-4 Recommended Action: The Community Services Department Upgrade Marine Safety computer systems and staff capability to will develop a plan for improved access to financial information be e to use the City financial software. within six months. Citygate Findings City Administrator's Recommendations Vl. BEACH MAINTENANCE Recommendation VI-1 Develop baseline performance standards for beach and restroom cleanliness and produce a standard policies and procedures manual for beach maintenance operations. Recommended Action: The Community Services Department will develop the standards and manual within four months. Recommendation VI-2 Recommended Action: The Community Services Department Establish a record keeping and documentation log for parking meter will establish a record-keepi , (Yprogram within three months. repair and maintenance for operating efficiency and effectiveness, and possibly for increased staffing justification. Recommendation VI-3 Recommended motion: The Community Services Department Document equipment repairs and maintenance in orderly records and will improve the repair and maintenance record -keeping system logs. within two�rnonths. Recommendation VI4 Recofnmended Action: The Community Services Department Fill the vacant mechanic position. ass proposed the elimination of this position as part of the 2002- 2003 Annual Budget. Recommendation VI-5 Conduct an analysis of the equipment maintenance program and cost effectiveness of preventive maintenance: to include development of a life expectancy and replacement cost i�for all Beach 7 Maintenance Section equipment. W1. PARKING AND CAMPING Recommended Action: The Community Services Department will develop an assessment of the equipment program within twelve months. Recommendation VII-1 al stRecommended Action: The Community Services Department Define the section's mandards for the auditing and training of will define standards and training within three months. recurrent arkin ,atteni idants. Recommendafion VII-2 Recommended Action: The Community Services Department Imple t security measures at the parking structure and parking will implement new measures within two month. bo s for the parking attendants and the cash collection. Citygate Findings City Administrator's Recommendations Recommendation VII-3 Recommended Action: The Community Services Department Identify the appropriate dollar amount that dictates when money is will revise collection standards and procedures within4three broken down from parking booths and include that in the Section's month. collection procedures. ZZ Recommendation VII-4 Recommended Action: The Community Services Department Conduct formal weekly or bi-weekly section staff meetings. will conduct bi-weekly section staff meet gs within one month. Recommendation VII-5 Recommended Action: The Community Services Department Implement computerized scheduling and tracking system for camping will implement computerized schedij ing and tracking within nine operations for reservations and data keeping. months. Recommendation VII-6 Recommended Action: -.-The Community Services Department Document public complaints: to include the nature of the complaint will develop a comp ain't system within two months. and time of occurrence. Recommendation VII-7 Recommended Action: The Community Services Department Analyze the costs/benefits of contracting out the parking and camping will complete an analysis within twelve months. functions to the private sector. Vlll. PARK SURVEILLANCE AND NATURE CENTER Recommendation VIII-1 Recommended Action: The Community Services Department Develop a Mission Statement for the Park Surveil ance and the Nature will complete development of new mission statement, goals and Center operations, along with a list of GoalsdJSpecific Objectives to objectives within twelve months. accomplish the Mission Statement, and a Work Plan to accomplish the Goals and Specific Objectives. Recommendation VIII-2 Recommended Action: The Community Services Department Evaluate the staffing nee or the changing requirements of the park will complete the new staffing plan in conjunction with the 2002- facilities, and develop taffing plan to accomplish those needs. 03 Annual Budget and Reorganization Plan within one month. Recommendatio VIII-3 Recommended Action: The Community Services Department Consider oving the Park Surveillance/Nature Center section from will eliminate the section in the 2002-03 Annual Budget within Mann afety to the Recreation Division in the Department. one month. Attachment 2 C 1 TYGATE ASSOC I ATES, PLC N FOLSOM (SACRAMENTO) E MONTEREY N ORANGE MANAGEMENT CONSULTANTS REVIEW OF THE COMMUNITY SERvicES DEPARTMENT FOR THE CITY OF HUGU51 GVVG ® N Huntington Beach, CA 'E 705 Gold Lake Drive, Suite 100 0 Folsom, CA 95630 (916) 355-1385 or (800) 275-2764 Fax: (916) 355-1390 4 C1TY0fliT flSS:c18TES. uc TABLE OF CONTENTS Section Pare ExecutiveSummary...................................................................................Executive Summary-1 A. Organization of this Report ....................................................Executive Summary-2 B. Background and Major Themes for the Assessment of the Community Services Department of Huntington Beach................................................................Executive Summary-3 C. Overview of Key Findings and Recommendations ...............Executive Summary-4 D. Division Issues.....................:...............................................:.Executive Summary-7 E. Action Plan (Described)........................................................Executive Summary-9 Action Plan (Table with Priorities)........................................................................ Action Plan-1 I. Introduction.....................................................................................................................I-1 A. The City of Huntington Beach..............................................................................1-1 B. Study'Background.................................................................................................I-1 C. The Community Services Department..................................................................I-2 D. Objectives of the Management and Operations Review.......................................I-3 E. Study Approach and Work Plan......................................:.................................... I-4 II. Revenue and Expenditure Relationships....................................................................II-1 A. Expenditure Relationships.................................................................................. II-1 B. Revenue Relationships........................................................................................ II-2 C. Recommendations...............................................................................................II-4 III. Overall Department Issues......................................................................................... III-1 A. Overview of the Department.............................................................................. III-1 B. Organization and Reporting Relationships........................................................ III-2 C. Goals, Objectives and Work Measures.............................................................. III-6 D. Financial Reporting System......................................:........................................ III-8 E. Staffing ......................... :..................................................................................... III-9 F. Recommendations............................................................................................III-10 IV. Capital Project Development......................................................................................IV-1 SectionOverall...................................................................................................IV-1 A. Mission Statement and Goals.............................................................................IV-1 Mission Statement...........:::....................................................................:...........IV-1 Goals............................:...................................................................................IV-1 B. Organization and Functions............................................................................... IV-2 C. Findings and Observations..................................................................................IV-3 Staffing and Workload.......................................................................................IV-3 Organizational Structure and Reporting Relationships ...................................... IV-3 Communications/Effectiveness and Appropriateness. of Procedures and Processes............................................................................ IV-3 Table of Contents-1 G Ull VI`?C"Ifrli. [i. D. Recommendations..............................................................................................IV-5 V. Marine Safety................................................................................................................ V-1 SectionOverall.................................................................................................... V-1 A. Mission Statement and Goals.............................................................................. V-1 MissionStatement............................................................................................... V-1 Goals.........:............................................ ........................................................... V-1 B. Organization and Functions................................................................................ V-2 Beach Enforcement............................................................................................. V-2 Junior Lifeguard Program....................................................................... C. Findings and Observations.................................................................................. V-2 Education............................................................................................................ V-3 Staffing.......................................................................:........................................ V-3 Equipment............... :........................................................................................... V-3 Workload............................................................................................................. V-3 Communications................................................................................................. V-4 Operational Efficiency and Effectiveness........................................................... V-4 Facilities.............................................................................................................. V-4 ImpendingIssues..................................................................:............................. V-4 D. Recommendations............................................................................................... V-4 VI. Beach Maintenance......................................................................................................VI-1 SectionOverall................................................................................................... VI-1 A. Mission Statement and Goals............................................................................. VI-1 MissionStatement.............................................................................................. VI-1 Goals.....................................................:.......................................................... VI-1 B. Organization and Functions............................................................................... VI-1 Beach Maintenance............................................................................................ VI-2 ParkingMeters................................................................................................... VI-2 Vehicle Maintenance (Fleet Management)........................................................ VI-2 Building Maintenance (Pier Maintenance)........................................................ VI-3 C. Findings and Observations................................................................................. VI-3 Staffing............................................................................................................... VI-3 Managerial Planning, Direction and Reporting ................................................. VI-4 Workload............................................................................................................ VI-4 Communications.........................:...................................................................... VI-5 Operational Efficiency and Effectiveness/Service Delivery Systems ............... VI-5 Facilities............................................................................................................. VI-5 Effectiveness and Appropriateness of Procedures and Processes ...................... VI-6 ImpendingIssues............................................................................................... VI-6 D. Recommendations.............................................................................................. VI-6 VII. Parking/Camping Section......................................................................................... VII-1 SectionOverall..................................................................................................VII-1 A. Mission Statement and Goals............................................................................VII-1 MissionStatement.............................................................................................VII-1 cn G11.1a ar:= K Table of Contents-2 B. Organization and Functions..............................................................................VII-1 Supervisor (crew-leaders)................................................................................. VII-2 Lead-worker...................................................................................................... VII-2 Break person (recurrent)...................................................................................VII-2 Parking Attendants (recurrent)...........................................................................VII-2 C. Findings and Observations................................................................................ VII-2 Staffing.............................................................................................................. VII-2 Structure............................................................................................................ VII-2 Workload........................................................................................................... VII-3 Communications...............................................................................................VII-3 Operational Efficiency and Effectiveness .........................................................VII-3 CustomerService.............................................................................................. VII-3 Effectiveness and Appropriateness of Procedures and Processes......................VII-4 ImpendingIssues..............................................................................................VII-4 D. Recommendations.............................................................................................VII-4 VIII. Park Surveillance / Nature Center..........................................................................VIII-1 SectionOverall................................................................................................ VIII-1 A. Mission Statement and Goals.......................................................................... VIII-1 MissionStatement........................................................................................... VIII-1 Goals............................................................................................................. VIII-1 B. Organization and Functions............................................................................ VIII-2 ParkSurveillance............................................................................................ VIII-2 Programs and Facilities................................................................................... VIII-2 C. Findings and Observations.............................................................................. VIII-4 Staffing............................................................................:............................... VIII-4 Structure.............................................................:............................................ VIII-4 Managerial Planning, Direction and Reporting .............................................. VIII-4 Workload......................................................................................................... VIII-4 Communications, Operational Efficiency and Effectiveness, and Customer Service................................................................................... VIII-4 Facilities.......................................................................................................... VIII-5 Policies and Procedures.................................................................................. VIII-5 ImpendingIssues............................................................................................ VIII-5 D. Recommendations........................................................................................... VIII-5 IX. Recreation Division......................................................................................................IX-1 DivisionOverall .................. ...............................................................................Ix_ 1 A. Mission Statement and Goals.............................................................................IX-1 B. Organization and Functions ........................................................................... IX-1 Staffing............................................................................................................... IX-1 Programsand Workload.................................................................................... IX-2 Instructional Classes.............................................................................. IX-2 YouthSports Program............................................................................IX-2 OtherPrograms...................................................................................... IX-2 C. Findings and Observations.................................................................................IX-3 Table of Contents-3 OUR 071MRS. UC Staffing............................................................................................................... IX-3 . Managerial Planning, Direction and Reporting ................................................. IX-5 Service Delivery System...............................:....................................................IX-7 Funding.............................................................................................................. IX-8 Facilitiesand Equipment....................................................................................IX-8 CustomerService............................................................................................... IX-9 Policies and Procedures................................................................................... IX-10 ImpendingIssues.............................................................................................IX-10 D. Recommendations............................................................................................IX-10 X. Adult Sports Section..................................................................................................... X-1 SectionOverall.................................................................................................... X-1 A. Mission Statement and Goals.............................................................................. X-1 B. Organization and Functions................................................................................ X-1 Staffing................................................................................................................ X-1 Programs............................................................................................................. X-1 C. Findings and Observations.................................................................................. X-2 Workload............................................................................................................. X-2 Organizational Structure and Reporting Relationships ....................................... X-3 Managerial Planning, Direction, and Reporting ................................................. X-3 Service Delivery Systems and Processes............................................................ X-4 Communications................................................................................................... X-4 Operational Efficiency and Effectiveness........................................................... X-4 Customer Service................................................................................................ X-5 Facilities.............................................................................................................. X-5 Effectiveness and Appropriateness of Policies and Procedures ......................... X-5 ImpendingIssues................................................................................................ X-5 D. Recommendations...........:................................................................................... X-5 XI. Human Services.......................................................................................................:....XI-1 SeniorCenter Section.................................................................................................... XI-1 SectionOverall...................................................................................................XI-1 A. Mission Statement and Goals.............................................................................XI-1 B. Organization and Functions............................................................................... XI-1 Information and Referral....................................................................................XI-1 Classes. lasses:............................................................................................................... XI-1 Clubs.....................................................................................:.......................... XI-1 Services.............................................................................................................. XI-2 Rentals................................................................................:............................... XI-2 Staffing............................................................................................................... XI-2 Councilon Aging............................................................................................... XI-2 C. Findings and Observations................................................................................. XI-2 Workload and Staffing....................................................................................... XI-2 Organizational Structure................:................................................................... XI-3 Facility and Equipment ....................... Managerial Planning, Direction, and Reporting ................................................ XI-5 Table of Contents-4 UNMI ASSI E N Il: Service Delivery Systems.................................................................................. XI-5 Communications................................................................................................ XI-5 Operational Efficiency and Effectiveness.......................................................... XI-5 CustomerService............................................................................................... XI-6 Effectiveness and Appropriateness of Procedures and Processes ...................... XI-6 ImpendingIssues............................................................................................... XI-6 D. Recommendations.............................................................................................. XI-6 Senior Outreach Section................................................................................................ XI-7 SectionOverall................................................................................................... XI-7 A. Mission Statement and Goals............................................................................. XI-7 B. Organization and Functions..................:............................................................ XI-8 Staffing............................................................................................................... XI-8 Councilon Aging.............................................................................................XI-10 C. Findings and Observations...............................................................................XI-10 Staffing............................................................................................................. XI-10 Workload.......................................................................................................... XI-10 Organizational Structure.................................................................................. XI-10 Managerial Planning, Direction, and Reporting .............................................. XI-11 Service Delivery Systems................................................................................ XI-12 Volunteers............................................................................................ XI-12 Transportation Program....................................................................... XI-12 Meals.................................................................................................... XI-13 SocialWork.........................................................................................XI-13 Communication................................................................................................ XI-13 Facilities and Equipment..................................................................................XI-13 CustomerService.............................................................................................. XI-13 Efficiency and Effectiveness............................................................................XI-14 Policies and Procedures................................................................................... XI-14 ImpendingIssues............................................................................................. XI-14 D. Recommendations............................................................................................XI-14 Oak View Community Center Section........................................................................XI-15 SectionOverall.................................................................................................XI-15 A. Mission Statement and Goals..................:...:.................................................... XI-15 Mission............................................................................................................. XI-15 Goals.............................................................................................................. XI-15 B. Organization and Functions............................................................................. XI-16 Staffing.........:................................................................................................... XI-16 C. Findings and Observations...............................................................................XI-16 Organizational Structure and Service Delivery Systems.................................XI-16 Managerial Planning, Direction, and Reporting .............................................. XI-17 Workload.......................................................................................................... XI-17 Communications, Efficiency and Customer Service ....................................... XI-17 Facilities........................................................................................................... XI-18 Policies and Procedures..............................:.................................................... XI-18 Table of Contents-5 cnyogn a� UT& Lill ImpendingIssues............................................................................................. XI-18 D. Recommendations............................................................................................XI-18 Project Self -Sufficiency Section..................................................................................XI-19 SectionOverall.................................................................................................XI-19 A. Mission Statement and Goals........................................................................... XI-19 Mission............................................................................................................. XI-19 Goals and Objectives ... ....................................................................................XI-19 B. Organization and Functions....................................................:........................ XI-19 Staffing............................................................................................................. XI-19 Services............................................................................................................ XI-20 Project Self -Sufficiency Foundation................................................................ XI-20 C. Findings and Observations............................................................................... XI-21 Workload.......................................................................................................... XI-21 Managerial Planning, Direction, and Reporting .............................................. XI-21 Operational Efficiency and Service Delivery Systems....................................XI-21 Policies and Procedures................................................................................... XI-21 CustomerService............................................................................................. XI-22 D. Recommendations............................................................................................ XI-22 XII. Cultural and Event Services..................................................................................... XII-1 SectionOverall..................................................................................................XII-1 A. Mission Statement and Goals............................................................................XII-1 MissionStatement.............................................................................................XII-1 Goals...............................................................................................................XII-1 B. Organization and Functions..............................................................................XII-2 Administration..................................................................................................XII-3 Huntington Beach Art Center...........................................................................XII-3 FilmOffice........................................................................................................XII-3 Performing Arts Program -Concert in the Park .................................................XII-4 PublicArt Program...........................................................................................XII-4 SpecialProjects.......................................:.........................................................XII-4 SpecialEvents...................................................................................................XII-4 Historic Program — Newland House Museum ................................................XII-5 FundDevelopment..................................:...:.....................................................XII-5 Allied Arts Board — Huntington Beach Art Center.........................................XII-5 Goals.....................................................................................................XII-5 Objectives.............................................................................................XII-5 Historic Resources Board.................................................................................XII-6 Art Center Foundation......................................................................................XII-6 C. Findings and Observations................................................................................XII-6 Staffing.............................................................................................................. XII-6 Managerial Planning, Direction, and Reporting...............................................XII=6 Service Delivery Systems.................................................................................XII-6 Workload........................................................................................................... XII-6 Communications...............................................................................................XII-7 Table of Contents-6 (iiT`�,k`:tf flSS:Ciflif�, Ic: Operational Efficiency and Effectiveness.........................................................XII-7 ImpendingIssues..............................................................................................XII-7 D. Recommendations.............................................................................................XII-7 XIII. Specific Events / Pier Plaza......................................................................................XIII-1 SectionOverall................................................................................................ XIII-1 A. Mission Statement and Goals.......................................................................... XIII-1 Mission Statement....................................................................................... XIII-1 Goals....................................................................................... ...................... XIII-1 B. Organization and Functions............................................................................ XIII-2 C. Findings and Observations.............................................................................. XIII-3 Staffing............................................................................................................ XIII-3 Service Delivery Systems............................................................................... XIII-3 Workload......................................................................................................... XIII-3 Communications............................................................................................. XIII-3 Customer Service............................................................................................ XIII-4 Effectiveness and Appropriateness of Procedures and Processes ................... XIII-4 Impending Issues............................................................................................ XIII-4 D. Recommendations........................................................................................... XIII-4 XIV. Harbor Area.............................................................................................................. XIV-1 SectionOverall................................................................................................ XIV-1 A. Mission Statement and Goals.......................................................................... XIV-1 B. Organization and Functions..............:...............:............................................. XIV-1 C. Findings and Observations.............................................................................. XIV-2 Organizational Structure and Reporting Relationships ................................... XIV-2 ImpendingIssues............................................................................................ XIV-2 D. Recommendations........................................................................................... XIV-3 XV. Employee Survey Analysis .................................. :..................................................... XV-1 A. . Introduction...........................:.......................................................................... XV-1 B. Results for all Department Employees............................................................ XV-2 Survey Statements............................................................................................ XV-3 Appendix Appendix A: Community Services Department Current Organization Chart Appendix B: Employee Survey Instrument Table of Contents-7 rr EXECUTIVE SUMMARY AND ACTION PLAN This report presents the results of the Citygate Associates, LLC's Management and Operations Review of the City of Huntington Beach's Community Services Department. Citygate conducted its independent review and analysis between March 2002 and August 2002. The project was conducted to evaluate the general efficiency and effectiveness of the City's Community Services Department in an effort to recommend ways in which the Huntington Beach City government can better serve the community. The City recognizes that the Department is in a transition period and that a management assessment of this nature could be an effective informational tool at this time for both the City Council and the community. The scope of the work included the Department's functional divisions of Administration, Beach Services, Recreation, Human Services, and Arts/Cultural activities. Staff in these Divisions total approximately 70 full-time employees and up to 400 recurrent or part-time employees. As requested by the City, our review included an assessment of the following areas: ♦ Staffing and Workload ♦ Organizational Structure and Reporting Relationships ♦ Managerial Planning, Direction, and Reporting ♦ Service Delivery Systems ♦ Communications ♦ Operational Efficiency and Effectiveness ♦ Customer Service ♦ Facilities and Equipment ♦ Effectiveness and Appropriateness of Policies and Procedures ♦ Impending Issues. Our consultant team interviewed members of the Huntington Beach City Council, as well as key management employees, including the City Administrator, Assistant City Administrator, Department Director and other selected Department heads, as part of our initial study tasks. Throughout the project, we interviewed other employees with close working relationships with Community Services including managers and supervisors, as well as a large number of staff in Community Services. As additional means of developing our report and action plan, Citygate's consultants engaged in the following: ♦ Conducted a financial review, which focused on revenue, expenditures, and accounting systems. ♦ Performed a review and assessment of quantitative data as available on all divisions, and analyzed this data to evaluate performance. ♦ Conducted on -site observations of operations and operational results. Executive Summary-1 011^K15 ♦ Reviewed and analyzed official records, including budget documents and job descriptions and classifications. ♦ Conducted an employee survey to understand staff perspectives on the organization, management, workload, staffing, customer service, and equipment and technology as one of the means to validate our other information sources. A. ORGANIZATION OF THIS REPORT Citygate Associates' report on the management assessment of the Community Services Department is organized into fifteen chapters. Our report is introduced with this section, which presents our Executive Summary and Action Plan. After this Executive Summary is a General Introduction to the report, followed by our analysis of the Department's Revenue and Expenditure Relationships. The body of the report consists of a chapter on each major Division or functional area within the Community Services Department. These chapters define the mission and objectives of the Division/Section, our observations and analysis, and recommendations for improvement. Citygate's report is organized as follows: Chapter Number Chapter Description Executive Summary and Action Plan I. Introduction II. Revenue and Expenditure Relationships III. Overall Department Issues IV. Capital Project Development V. Marine Safety VI. Beach Maintenance VII. Parking/Camping VIII. Park Surveil]ance/Nature Center IX. Recreation X. Adult Sports XI. Human Services XII. Cultural and Event Services XIII. Specific Events XIV. Harbor Area XV. Summary of Employee Survey Results Appendix Executive Summary-2 OWL ZOOM uc B. BACKGROUND AND MAJOR THEMES FOR THE ASSESSMENT OF THE COMMUNITY SERVICES DEPARTMENT OF HUNTINGTON BEACH Through our observations, interviews, and data collection, Citygate finds the Community Services Department to provide a multitude of high quality services. The Department provides services in the following areas: ♦ Beach Maintenance ♦ Parking/Camping ♦ Marine Safety ♦ Recreation ♦ Youth Sports ♦ Adult Sports ♦ Senior Center and Services ♦ Human Services ♦ Capital Improvements, ♦ Arts and Cultural Affairs ♦ Specific Events. Citygate found that the Department is focused on service delivery. The Department staff in all Divisions is dedicated, committed to customer service, and is doing a good job providing the day-to-day services that are budgeted. Overall, we found few operational problems that create significant inefficiencies or ineffectiveness. Improvements that are needed are based on insufficient staffing and insufficient time to provide adequate supervisory support at the higher levels of the Department which result in problems related to organization and reporting relationships, the need for goals, objectives and work measures, staffing and financial reporting systems. Staffing overall in the Department is at a minimum due to financial constraints. Employees, including management staff, are therefore mostly focused on service delivery, which makes it difficult for them to allocate much time to assessing work systems, determining whether goals and objectives are appropriate to the future of the community, and developing the type of analytical and reporting systems which adequately support the decisions that need to be made by the Department and the City's policymakers. One reason for this limited focus is the extent of effort dedicated to capital projects, which has taken the vast majority of the time and attention of the Department Director and the Deputy Director. While this activity is consistent with the City Council approval of capital projects and consistent. with the City's Strategic Plan priorities, it leaves the remainder of day-to-day operations with less attention than is necessary to insure that programs are assessed and changed as needs of the community change. Many Department programs and budgeted activities have remained about the same for over a decade while participation in some of those programs, such as Youth Sports and Adult Softball, have declined. The day-to-day operating tasks are delegated to the supervisors_ and one Superintendent, who, because of special assignments, workload, and/or a lack of direction do not provide the needed oversight to programs and staff. Many. Q . . Executive Summary-3 0=11a�x rs.a. our key findings and recommendations are focused on those management and operational areas that are neglected as a result of staff being focused on service delivery as the highest priority. C. OVERVIEW OF KEY FINDINGS AND RECOMMENDATIONS Insufficient supervisory support for planning, assessment, and program development in operations from the higher levels of Department management is compounded by the lack of mission -oriented statements that reflect the guiding principles of the Department and a framework of goals that reflect the priorities. of the Department and its general direction. There are also no specific objectives tied to goals that define the specific activities that will be undertaken to achieve those goals. The Department budget submission does reflect goals for the Department and some of the Divisions or business units, but these are more statements of purpose rather than reflective of a careful assessment of what services and the nature of those services that should be provided to the community. Mission and goal statements would assist the staff in developing and establishing the service priorities and program direction of their units. A mission -driven and goal -oriented Department will annually review its mission and goals, and develop the specific objectives that translate into budget items for the coming year. This integration and alignment of "values" would chart the course of the Department for both the next year and the longer term. Employees would clearly know then what the Department will be doing and can become better aligned as active participants in changing and improving their own performance in relation to the Department's priorities. Clearly defined mission and goals and the development of specific objectives would also serve as an excellent communication tool to define for the policymakers and the public what the Department will be striving for in meeting the growing needs of the community. Existing performance measures are only descriptive of the volume of work, and do not adequately measure how and when program and staffing levels should change. The Department needs to develop and implement an ongoing goal setting process to include performance measures that assist in assessing the effectiveness and appropriateness of programs/activities. While management oversight is not optimal, our analysis indicates that staffing levels in most areas of the Department are providing a level of service that appears to be acceptable to the public and the policymakers of the City. Two areas that deserve particular comment are Beach Services and Recreation. Both of these Divisions are experiencing problems with the rules that prohibit. "recurrent" employees from working more than 1,000 hours per year, as a means of controlling some benefit costs. While this rule is not a problem with utilization of the vast majority of the recurrent workers and the positions they fill, in some areas this limitation creates problems of continuity and training. It would substantially improve the effectiveness of various Department operations through better training and avoiding transition problems in the middle of program operations if the 1,000-hour limit could be waived for one or two employees in each of several recommended classifications. One of the frustrations that we found expressed concerning the Community Services Department is the lack of adequate financial information to determine which programs/activities are self supporting and the extent to which revenue covers costs. While the new J.D. Edwards financial software used by the City will permit recording costs and revenue down to the level of individual recreation classes, the Department staff is not adequately briefed and trained on the new software capabilities. Furthermore, analytical staff does not exist within the Department to set up a Executive Summary-4 c :^ M.CM& uc financial reporting system that uses the new financial software to provide the information necessary to assess the appropriateness and effectiveness of programs, and to determine the adequacy of.fees to cover costs. Additionally, the City has not had an adequate "overhead or indirect charge" system to allow the allocation of support costs to the programs/activities in order to obtain a true assessment of what is or is not self-supporting. The new J.D. Edwards financial software and new "indirect charge system" (now being developed for the City) have the capability of resolving most, if not all, of the issues discussed above and providing the City with a financial analysis of any aspect of the Department's programs and facilities. The Department can then have the tools to develop a budget structure, budget report, and financial management system that will record expenditures and revenues at the individual activity level and be able to gather and analyze financial information. The City Council at this point should also make an updated policy determination regarding which activities are to be self supporting and which are to be subsidized, as a guide to developing program fees that are automatically changed each year based on this Council policy and the aforementioned cost/revenue information. The current organizational structure (see Appendix A) reflects a Department that has assigned tasks and lines of authority/reporting relationships based on the skills and preferences of individuals as they were hired or promoted. While this may have worked well for a Department that has had no urgent need to plan and change for the future and has focused instead on simply operating current programs, combining unrelated activities and separating related activities does not facilitate future planning, adequate program assessment or goal setting. We recommend combining "like" activities throughout the Department to not only enhance supervision and coordination of these very interrelated day-to-day activities, but also to increase future planning, efficiencies, and to develop work measures that will indicate when work load requires an increase in resources. We recommend, for example, that current recreation activities spread among different managers be consolidated under a Superintendent of Recreation and Human Services, and two Senior Supervisors (one for Adult Sports and one for the Recreation Centers) to provide clear responsibility for planning, coordinating and changing programs as needed — something that is lacking in the current organization form. Likewise, we recommend a Superintendent of Beach Services and a Manager of Cultural Affairs to consolidate all beach and arts functions, respectively. These three key Superintendent and Manager positions would report to the Deputy Director. Organization changes are also recommended based on the large anticipated increase in work volume and the nature of the beach visitors/usage beginning this next year due to the full operation of the new Conference Center. We recommend that all of the beach related activities, including Special Events, should report to a single Superintendent to increase coordination and customer service. Given the management issues involved in capital projects described earlier, we also recommend that Capital projects be reorganized so that the Development Supervisor reports directly to the Department Director. Under this scenario, the Deputy Director is relieved of capital project responsibility, but instead takes on the responsibility to oversee the day-to-day operations to organize and implement a goal setting program, plan for the future of the beach and recreation functions, assist in the development of a financial reporting system that permits program assessment, and provide the leadership to insure that the Superintendent of Beaches and a Superintendent of Recreation focus on and provide planning and coordinating leadership in those Executive Summary-5 two very separate areas. There is little likelihood that the need for direct and extensive involvement of the Department Director in capital projects will end soon as there are many projects currently underway and in planning stages that require the Director's attention. With the Deputy Director reassigned, we also recommend the addition of a staff analyst to report to the Department Director to provide much needed analytical skill to improve the conceptual development, costing, control, and reporting on capital projects. This recommendation, along with our recommendation to revise the content and implementation of the Administrative Regulation governing capital project implementation, would address some of the problems we documented with capital projects, including the frequency of project scope, budget, and specification changes by the Department. With this reorganization and recognition of the role of capital projects, we also considered the larger organizational context of the City to determine if there were adjustments that should be made in order to improve the effectiveness of the Community Services Department. After reviewing reporting relationships, we concluded that it would provide a much closer linkage and help provide better quality data to policymakers if the Department reported to the Assistant City Administrator. Given the workload distribution in the City Administrator's office, this reassignment will also provide closer day-to-day supervision of the Department, which is needed during the next several years as the Department is reorganized and undertakes goal setting, establishing a financial reporting system, and program assessment. One permutation of the "capital project" organization is to assign the Department Director to work directly out of the City Administrator's Office for the next few years in order to focus on capital project implementation. This would provide a clean separation in the short term between capital projects and operations in the Department. In addition to current staffing and organization design problems, the difficulties in the Department are also caused by the way in which priorities are set to allocate time between capital projects and operations. Given the financial systems issues associated with J.D. Edwards and the new indirect charge system described above, we also recommend a second analyst position to assist with designing the needed reports, adjusting the Department's annual budget preparation to create the basis for the reports, and then working with the Divisions and program supervisors to use the information in assessing their programs and establishing appropriate fee levels. This second analyst position can also work closely with operating personnel to develop and collect performance measures that further assist in program assessment. While the J.D. Edwards software contains the tools for financial and program analysis, without this position, the Department will not have the staff necessary to undertake financial and program analysis. Two substantial changes are occurring in the community that make it advisable for the Department to address all of these described issues. The new Conference Center signals the, beginning of substantial growth in the number of beach area "users" and a change in the nature of the use. This will create added burdens on the Beach Services Division and require a measured assessment of when to add additional resources in- order to maintain existing service levels. The second change in the community is the shift in socio-economic and demographic characteristics that affect the type of programs and activities that are needed/desired by the community. In addition, this shift in the makeup of the community will represent a moving target that will require attention, planning and sophisticated analytical tools to constantly adjust the Department's program mix and approach. Executive Summary-6 (MIR MOM uc D. DIVISION ISSUES As mentioned above, the Department Director and Deputy Director spend a majority of their time and focus on capital projects and therefore are able to devote an insufficient amount of time to day-to-day operations, with the principal focus being problems or complaints. As a result, supervisors who report to them are responsible for day-to-day operations, but in many cases, given the low staffing levels throughout the Department, they are also responsible for their own discrete programs, projects, and/or events. This precludes them from providing routine oversight and management of the various Division Programs and staff. For example, the one Superintendent is also in charge of the large 4 of July Parade event and the Senior Recreation Supervisor is responsible for citywide recreation events that include a surf contest, golf tournament, Easter egg hunt, and distance derby. All of these events take time away from developing goals and objectives, policies and procedures, and performance measures, and establishing program direction and evaluation. Overall, operational tasks were found to be principally administered by mid -management level employees with insufficient supervisory oversight, evaluation, planning, and program development, all of which are critical components of management. One impact of this lack of management and supervision at the division level is the minimal number of cases where mission, goal, and objective statements are used. The exception was those programs that receive outside funding resources from a foundation, agency, or board. Another impact is that operational planning and direction between the Department and the Divisions is not occurring. Policies and procedures are also lacking and record keeping is falling behind. Work plans and performance standards are not being developed to measure productivity, and roles and responsibilities are in some cases unclear between staff and between City Departments and outside boards. Finally, some programs are not meeting service level expectations of staff, such as Youth Sports, that lacks coordination and as a result, lacks program development and is experiencing declining attendance. Not all issues are associated with a lack of management time; some are a direct result of staff shortages as a consequence of the 1000-hour rule as mentioned earlier. The limited hour rules of recurrent employees mostly affect the Divisions/Sections of Marine Safety, Park Surveillance, Parking/Camping, Human Services, and Recreation. Some staffing shortages have resulted in a lack of fundraising and development for the arts program, a lack of equipment repair in beach maintenance, and a lack of youth sports coordination. These are not necessarily a result of the 1000-hour rule, but more a by-product of vacant and/or over -burdened positions. In these rare cases we recommend either the Department evaluate the need for additional staff, hire additional staff, or upgrade the responsibilities of current positions. It is anticipated that staffing problems will increase in Marine Safety and Beach Maintenance when the new Conference Center opens, and in Park Surveillance and Adult Sports when the new sports complex is complete. The Department's organizational structure can be improved to combine "like" activities to take advantage of economies of scale and standardized processes in Recreation, Sports, and Beach Services as discussed above. Another change that would benefit the Department would consist of transferring Harbor Area services to the Public Works Department since current issues fall within their organizational purview and expertise. In addition to the overall Department's financial accounting systems that were discussed earlier, there are other areas of service delivery and process efficiency that could be improved at the Ell Executive Summary-7 A (JIM11n. M1.01 5. ac Division level as well. The Arts Center, City Gym Swimming Program, and Parking/Camping registration processes are manual systems that could benefit from increased efficiency measures. Marine Safety needs to develop a new system for tracking the number of persons using the beach to assess staffing and workload issues. Processes used in Special Events should be upgraded to track personnel, equipment and supplies, to determine the best process for providing support and to create accurate financial records. Throughout the Divisions, there is a need for more uniformity in following policies and procedures, and especially for creating formal policy and procedural documents. Fees for permits, classes/leagues, special events, and harbor docking are in need of research and assessment in order for the City to recover as much revenue as appropriate to offset funding shortages. We found the Recreation Division's registration process to be very effective and in need of only minor improvements when utilizing the City's website and the new Safari program. While complaints appear to be infrequent, the Divisions generally do not communicate with their customers in a systematic way. There are limited examples of customer feedback loops that would help the Department assess the community's needs and determine whether the Department is meeting those needs in a satisfactory manner. Information from citizens and customers is important for establishing a mission and goal -oriented Department. Facilities used to deliver services, including the sports fields, recreational centers, human service centers, park spaces and art center are satisfactory. There is some need for minor or .major improvements to facility structures, additional availability of space, and better coordination with Public Works for routine maintenance. At the parking structure facility, there is a need for more security measures for parking attendants and cash collection. Equipment is in good repair in most functional areas with the exception of Beach Maintenance where staffing shortages are preventing equipment repairs and maintenance to occur in a timely manner. While beach maintenance has been substantially upgraded with new equipment over the past 8 years, the present maintenance staffing results in an inadequate equipment program. While we recommend filling the vacant mechanic position to solve this problem, we believe that the Division could benefit from an established process to systematically document repairs to justify the purchase of new equipment and to avoid costly repairs. Even the current log book system was not been maintained for quite some time, although the Department indicates that this has been corrected within the past few months. We also recommend that an analysis of the equipment maintenance program be conducted to measure and plan for incurred and future costs. Some Divisions also documented a need for computer support services. There are impending issues related to the City changing from a day -visit destination to an over- night destination with the new Conference Center and hotel. The beach population will increase and the hours of beach usage will change. The number of events on the beach will also increase. Marine Safety and Beach Maintenance Divisions will be most impacted by these changes, but with proper planning and record keeping procedures in place as we have recommended in this report, these Divisions should be in a position to document the anticipated changes and to provide sound guidance to the Department to maintain service levels. Another impending issue facing the Department is the likely significant increase in the senior population.. The Human Services Division that manages the Senior Center and senior outreach should incorporate this data into their long-term facility and program planning. Another critical issue is that the harbor needs to be dredged and procedures need to be put in place to prevent further silt build-up. In addition, measures should be taken by the City to enhance the water quality in that area. Executive Summary-8 atr,�^:-° MOM K E. ACTION PLAN A list of our recommendations and a blueprint for their implementation are presented in the following Action Plan. This plan contains: ♦ The priority of each recommendation ♦ The suggested implementation timeframe ♦ The anticipated benefits of each recommendation ♦ The responsible organization. The legend at the bottom of each page of the Action Plan defines the level of each priority indicated by the letters "A" through "D." It is important to note that priorities have been established independent of the suggested timeframe. For example, a recommendation may have the highest priority (indicated by the letter "A") but may require an estimated six months to implement. Conversely, a recommendation with the letter "C" priority, which indicates that the recommendation is not critical but will improve operations, may have a two -month timeframe, since the estimated implementation effort would not require an extended period of time. It is also important to note that an "A" priority, which indicates that the recommendation is deemed "mandatory or critical," should not be interpreted to mean that the recommendation is "mandated" by a statute or regulation --it is simply an "urgent" recommendation of high priority. The timeframes indicated in the Action Plan are intended to provide a guideline or estimation of the elapsed time necessary to make substantial progress on the implementation of each recommendation. Citygate's timeframes do not necessarily mean the anticipated completion dates for the implementation of each recommendation, nor do they include consideration of factors such as budget reductions. The responses from the City Administrator and the Department may indicate how much implementation progress can be made within defined timeframes. Executive Summary-9 tr:�rn K OCIME. UIC ACTION PLAN Reconuneirdation Priority AIBICID Time Frame for Implementation Anticipated Benefits Responsible Organization ll. REVENUE AND EXPENDITURE RELATIONSHIPS Recommendation II-1. Additional resources to develop a City Administration Add an analyst to the Department staff to report A 6 Months financial reporting system for sound City Council to the Deputy Director with the responsibility to decision -making and performance take the lead on development of a financial measures for program assessment. Community Services reporting system that will permit the City to set Department fee levels based on information about which programs are self supporting and permit the City Council to make an informed decision regarding which programs/activities to subsidize and to what degree. This position will also assist in developing and maintaining Performance Measures and in doing program assessment, and preparing the annual Department budget. LEGEND A Recommendation mandatory or critical B Strongly recommended C Not critical but will improve operations D Recommended but additional study required Action Plan-1 aunt n�imts. ttc Recommendation Priority AIBICID Time Frame for Implementation Anticipated Benefits Responsible Organization Recommendation II-2 Gain an understanding of the balance Community Services Develop a budget structure, budget report and A 8 Months between program revenue and costs to Department financial management system in conjunction determine whether or not a program is with the Administrative Services Department self- supporting and what fee level is that will record expenditures and revenues at the appropriate. individual activity/class level within the Department. Recommendation II-3 Gain a thorough understanding of which City Council Obtain a policy determination from the City A 6 Months activities are designated as self- Community Services Council regarding which Department sponsored supporting and which should be Department activities are to be self supporting -including subsidized. To assist the Department in overhead and support from other departments- setting appropriate fees. and which are to be subsidized, as a guide to developing a fee program that is automatically changed each year based on Council policy.and effective cost/revenue information. LEGEND A Recommendation mandatory or critical • • • • B Strongly recommended C Not critical but will improve operations aw mmpn ut D Recommended but additional study required Action Plan-2 Recommendation Priority Time France for Anticipated Benefits Responsible Organization AIBICID Implementation Ill. OVERALL DEPARTMENT ISSUES Recommendation III-1 Substantially improve the day-to-day City Administration Reorganize the Department to have capital A 3 Months Departmental operations. Implement Community Services projects report to the Department Director and assessment recommendations. Department have all operations report to the Deputy Director through a Superintendent of Recreation And Human Services, Superintendent of Beach Services, and a Manager of Cultural Affairs. Recommendation III-2 Increase staffing resources to needed City Administration Add an analyst position to assist in capital A 6 Months area (capital projects) and therefore City Council projects and development of the annual increase management time for department administration. Community Services department budget. Department Recommendation III-3 Enhance overall management and City Administrator Reassign Community Services to report to the A 1 Month supervision to the Department for Assistant City Administrator. reorganization, goal setting, and establishment of a financial reporting system. LEGEND A Recommendation mandatory or critical B Strongly recommended C Not critical but will improve operations D Recommended but additional study required Action-Plan-3 Ltt)riflt SWIMS. ac Recommendation Priority Time Frame for Anticipated Benefits Responsible Organization AIBICID Implementation Recommendation III-4 Provide guiding principles to the Community Services Undertake a program to develop a Mission A 3 Months Department. Establish framework of Department Statement, Goals and Specific Objectives for the goals that reflect the priorities of the City Administration department and each of its divisions and include Department. a process for annual review and development of City Council new Specific Objectives that are the basis for budget requests. Recommendation III-5 Measurement of programs to help Community Services Develop Work Performance Measures for A 12 Months determine when and how to change as Department programs/activities that can be used to assess the community changes. when and how changes should occur and resources shifted or added.. Recommendation III-6 Establishment of an effective financial City Administration Add an analyst to take the lead on development A 6 Months reporting system. City Council of a financial reporting system that will permit the City to set fee levels based on information Community Services about which programs are self supporting and Department permit the City Council to make an informed decision regarding which programs/activities to subsidize and to what degree. This position will also assist in developing and maintaining Performance Measures and in doing program assessment, and preparing the annual Department budget. (First described in Recommendation II-1. LEGEND A Recommendation mandatory or critical • B Strongly recommended • • Y C Not critical but will improve operations ctaits.uc D Recommended but additional study required Action Plan-4 Recontntendation Priority Tinte France for Anticipated Benefits Respo►tsible Organization ABICID Implemetttatiott Recommendation III-7 Insure coordination of staff that are Assistant City The Assistant City Administrator should meet at A 1 Month engaged in cross -departmental work. Administration least biweekly with the analysts assigned to departments that report to him. Recommendation III-8 Improve the effectiveness of various City Administration Allow additional exceptions to the 1,000-hour B 4 Months Department operations through better City Council limit for some recurrent employees. training and less transition problems. IV. CAPITAL PROJECTS Recommendation IV-1 Re -focus management staff to City Council Add an analyst position to the Department, A 6 Months department oversight tasks and to provide additional resources to capital City. Administration reporting to the Director and assisting in capital project analysis and budget Community Services project analysis and budget development. (First development. Department described in Recommendation No. III-2.) Recommendation IV-2 Enhance the day-to-day management Community Services Assign the Development Section to report A 1 Month and oversight of operations. Department directly to the Department Director who will then have comprehensive responsibility for capital projects and reassign the Deputy Director to have day-to-day responsibility for all operating sections of the Department. LEGEND A Recommendation mandatory or critical B Strongly recommended C Not critical but will improve operations D Recommended but additional study required Action Plan-5 .r anr�t€ r�:u�t�. ttc Recommendation Priority Tinte Frame for Anticipated Benefits Responsible Orgaytization AIBICID Implementation Recommendation IV-3 Clarify the capital project process for City Council Revise both the content and implementation of D 1 Month better communication with the City Council, other departments, and City Administration the Administrative Regulation governing community. implementation of capital projects. V. MARINE SAFETY Recommendation V-1 Identify and count the anticipated new Beach Services Division Develop a new system to estimate and document B 2 Months beach users. the number of persons using the beach. Recommendation V-2 Determine when to add staff to existing Beach Services Division Develop a staffing plan to accommodate the B 2 Months operations. expected increase in beach users over extended hours. Recommendation V-3 Provide better service to the public. Community Services Move the permit processing for Central Park D 1 Month Increase division staff efforts in other Department facilities to another location in the Community priority areas. Services Department. Recommendation V-4 More timely and accurate financial Community Services Upgrade the Marine Safety computer systems C 6 Months information. Department and staff capability to be able to use the City financial software. LEGEND A Recommendation mandatory or critical • • • • B Strongly recommended Vol C Not critical but will improve operations ang minx. ac D Recommended but additional study required Action Plan-6 Reconunertdation Priority Time France for Anticipated Benefits Responsible Organization AIBICID Implementation Vl. BEACH MAINTENANCE Recommendation VI-1 Assess staffing levels on an on -going Community Services Develop baseline performance standards for B 4 Months basis based on developed standards of Department beach and restroom cleanliness and produce a performance. Beach Services standard policies and procedures manual for beach maintenance operations. Recommendation VI-2 Evaluate the revenue loss associated Beach Services Establish a record keeping and documentation B 2 Months with problematic equipment. log for parking meter repair and maintenance for operating efficiency and effectiveness, and possibly for increased staffing justification. Recommendation VI-3 Allow cost -benefit analyses for future Beach Services Document equipment repairs and maintenance in B 1 Month resource decisions. orderly records and logs. Recommendation V14 Increase timeliness of equipment repairs Community Services Fill the vacant mechanic position. B 6 Months and reduce costs. Department City Administration LEGEND A Recommendation mandatory or critical B Strongly recommended C Not critical but will improve operations D Recommended but additional study required Action Plan-7 am 16SCOU tic Recommendation Priority Time Frame for Anticipated Benefits Responsible Organization A/BICID Implementation Recommendation VI-5 Measure and plan for equipment costs in Beach Services Conduct an analysis of the equipment C 6 Months a systematic manner. maintenance, program and cost effectiveness of preventive maintenance: to include the development of a life expectancy and replacement cost list for all Beach Maintenance Section equipment. Vll. PARKING AND CAMPING Recommendation VII-1 Audit and train staff at an appropriate Beach Services Define the section's minimal standards for the C 2 Months level. auditing and training of recurrent parking attendants. Recommendation VII-2 Increase overall safety and security of Beach Services Implement security measures at the parking B 2 Months the parking attendants and of the cash Community Services structure and parking booths for the parking collected. Department attendants and the cash collection. Recommendation VII-3 Standardize the process for cash Beach Services Identify the appropriate dollar amount that B 1 Month collection and establish a proper dictates when money is broken down from auditing system. parking booths and include that in the Section's collection procedures. LEGEND A Recommendation mandatory or critical • • • • B Strongly recommended IVIN C Not critical but will improve operations arm, morims, uc D Recommended but additional study required Action Plan-8 Recomnteudatiott Priority Tinte Frame for Anticipated Benefits . Responsible Organization A/BIC/D Implemetttatiott Recommendation VII4 Increase regular communication Beach Services Conduct formal weekly or bi-weekly section B I Month between full-time and recurrent staff. staff meetings. Recommendation VII-5 Enhance process efficiency. Community Services Implement computerized scheduling and C 9 Months Department tracking system for camping operations for Beach Services reservations and data keeping. Recommendation VII-6 Increase customer service. Beach Services Document public complaints: to include the D I Month nature of the complaint and time of occurrence. Recommendation VII-7 Promote the implementation of Community Services Analyze the costs/benefits of contracting out the D 6 Months recommendations. Department parking and camping functions to the private sector. LEGEND A Recommendation mandatory or critical B Strongly recommended C Not critical but will improve operations D Recommended but additional study required Action Plan-9 C€1 T MM. tic Recommendation Priority Time Frame for Anticipated Benefits Responsible Organization AIBICID "Implementation V111. PARK SURVEILLANCE AND NATURE CENTER Recommendation VIII-1 Assist the staff in accomplishing what Beach Services Develop a Mission Statement for the Park B 3 Months the citizens, the City Council and the Surveillance and the Nature Center operations, Community Services Department want along with a list of Goals and Specific to have accomplished. Objectives to accomplish the Mission Statement, and a Work Plan to accomplish the Goals and Specific Objectives. Recommendation VIII-2 Anticipate additional staffing needs with Beach Services Evaluate the staffing needs for the changing C 2 Months the development of new facilities. requirements of the park facilities, and develop a staffing plan to accomplish those needs. Recommendation VIII-3 Increase customer service. Combine Community Services Consider moving the Park Surveillance/Nature D 1 Month similar department services for better Department Center section from Marine Safety to the process efficiency. Recreation Division in the Department. LEGEND A Recommendation mandatory or critical • • B Strongly recommended C Not critical but will improve operations tare im ut D Recommended but additional study required Action Plan-10 Recommendation Priority Time Frante for Anticipated Benefits Responsible Organization AIBICID Implementation IX. RECREATION Recommendation IX-1 Assist the staff in accomplishing what Recreation Division Establish a Mission Statement, Goals, B 3 Months the citizens, the City Council and the Community Services Department want Objectives, and Performance Measures. to have accomplished. Recommendation IX-2 Provide better services and more Community Services Reorganize recreation services in the department A 6 Months efficient work systems. Department to increase efficiencies, management supervision, and balance between workload and staffing (see also Overall Department Section). Recommendation IX-3 Enhance customer service through a Recreation Division Establish customer satisfaction feedback loop. B 3 Months systematic process. Recommendation IX-4 Provide programs that are effective in Recreation Division Modernize program and update policies and A 18 Months meeting the community's needs. procedures. Recommendation IX-5 Improve recreational facilities in a more Recreation Division Develop a maintenance plan in coordination with C 3 Months efficient and timely manner. Public Works Department the annual budget. Improve coordination and communication with the Public Works Department in order to improve the .recreation facilities on a routine basis. LEGEND A Recommendation mandatory or critical B Strongly recommended C Not critical but will improve operations D Recommended but additional study required Action Plan-11 A (not lia VOTTS. lK Recommendation Priority Time Frame for Anticipated Benefits Responsible Organization AIBICID Implementation Recommendation IX-6 Establish efficient staffing procedures. City Administration Evaluate recurrent 1000-hour rule as it relates to B 4 Months Maintain appropriate staffing levels. Community Services the community centers in order to provide Department efficient, and cost-effective services (see also Overall Department Section). Recommendation IX-7 Meet the community's youth sports Community Services Revamp the youth sports program, including A 18 Months needs in an effective and safe manner. Department policies and procedures, to meet the Recreation Division community's youth sports needs, to increase youth participation, and to ensure a fun and safe program. X. ADULT SPORTS Recommendation X-1 Assist the staff in accomplishing what Human Services/Sports Establish Mission Statement, goals and B 3 Months the citizens, the City Council and the Division objectives and performance measures for Community Services Department want Community Services programs. to have accomplished. Department Recommendation X-2 Maintain customer satisfaction. Adult Sports Division Evaluate customer , satisfaction of division C 3 Months programs and unmet needs through customer and citizen surveys. LEGEND A Recommendation mandatory or critical • • • • B Strongly recommended C Not critical but will improve operations comrm a ,ut D Recommended but additional study required Action Plan-12 Recommendation Priority Tune Frame for Anticipated Benefits Responsible Organization A/BICID Implementation Recommendation X-3 Enhance process efficiency and Adult Sports Division Benefit from use of technology when appropriate C 9 Months effectiveness. for registration and to track, organize, and communicate information. Recommendation X-4 Realize cost savings. Provide more Community Services Organization structure changes: re-classify A 3 Months effective processes by combining like Department senior recreation supervisor as recreation services. Administrative Services coordinator and place under the recreation division (see Recreation Section). A HUMAN SERVICES Recommendation XI-1 Assist the staff in accomplishing what Human Services Division Establish mission statements, goals and B 3 Months the citizens the City Council and theCommunity Services Department want Community Services objectives, and performance measures for Senior to have accomplished. Department Center programs. Recommendation X1-2 Provide clear direction to staff and Human Services Division Develop Procedural Manual for Senior Center C 5 Months therefore increase productivity. staff to use as a resource. Include a section on roles and responsibilities. Recommendation XI-3 Plan and prepare for changes in senior Human Services Division Perform long-term planning to accommodate B 12 Months demographics. future needs of seniors. LEGEND A Recommendation mandatory or critical B Strongly recommended C Not critical but will improve operations D Recommended but additional study required Action Plan-13 CliMIr BS 1011S. lK Recommendation Priority Time Frame for Anticipated Benefits Responsible Organization AIBICID Implementation Recommendation XI4 Establish clear lines of authority. Human Services Division Re -define roles and responsibilities of Council C 6 Months Community Services on Aging and Senior Center. See also Department Recommendation No. XI-10. Recommendation XI-5 Increase customer satisfaction using a Human Services Division Evaluate programs and class offerings of the C 4 Months systematic process. Senior Center on a routine and systematic basis to meet the needs of the senior population. Recommendation XI-6 . Enhance staff productivity and customer Community Services Develop plan to address short and long-term C 4 Months service. Department office space issues for Senior Outreach. Recommendation XI-7 Enhance computer process efficiency. Community Services Solve computer systems issues and provide on- C 6 Months Department going support for Senior Outreach. Recommendation XI-8 Train new staff in a quick and easy Human Services Division Develop a procedural manual for Senior C 4 Months manner. Outreach permanent, re -current, and volunteer staff. Recommendation XI-9. Enhance divisional oversight and Community Services Change superintendent responsibilities to focus A 2 Months management of operations. Department on management oversight and planning (See Overall Department Section). LEGEND A Recommendation mandatory or critical • • B Strongly recommended C Not critical but will improve operations ca rt mim. ac D Recommended but additional study required Action Plan-14 Recommendation Priority Time Frame for Anticipated Benefits Responsible Organization A/BICID Implementation Recommendation XI-10 Establish clear lines of authority. Human Services Division Re -define the roles and responsibilities of the C 6 Months Community Services Council on Aging and Senior Outreach. Department Recommendation XI-11 More efficient department processes for Community Services Evaluate Opportunities to Combine Oak View A 18 Months like services and community growth. Department Youth Sports with other City Programs to Benefit from Economies of Scale and to Foster Community Growth. Recommendation XI-12 Enhance existing facility to better Community Services Evaluate Opportunities to Improve Oak View D 6 Months support organizational goals. Department Facility. City Administration Recommendation XI-13 Enhance organizational goals and Human Services Division Increase Supervision and Support to Oak View A 1 Month increase employee satisfaction. Community Services Staff. Department. Recommendation XI-14 Increase program efficiency and Community Services Assist Project Self -Sufficiency foundation in C. 6 Months effectiveness. Department resolving case management system issues to increase program efficiency and effectiveness. Recommendation XI-15 Maintain adequate resources. Human Services Division Incorporate marketing and fundraising tasks in B 3 Months divisional goals and objectives to prepare for potentially difficult funding times. LEGEND A Recommendation mandatory or critical B Strongly recommended C. Not critical but will improve operations D Recommended but additional study required Action Plan-15 An.. (J= ST- NU. tic Recommendation Priority Time Frame for Anticipated Benefits Responsible Organization AIBICID Implementation Xll. CULTURAL AND EVENT SERVICES Recommendation XII-1 Improve communication processes to Community Services Develop systems to improve communication B 3 Months keep the Division better informed. Department between the Cultural and Event Services Division and the rest of the City staff. Recommendation XII-2 Maintain the authority of managers to Community Services The Department Director needs to keep the A 1 Month do their jobs effectively. Department department managers informed of his decisions and directions. Recommendation XII-3 Reduce duplication of services. Community Services Define the roles of the Library Department and C 6 Months Department the Cultural and Event Services Division should Cultural Services Division play in providing cultural programs and services. Recommendation XII-4 More efficient, timely, and effective Community Services Upgrade the Art Center computer systems and C 9 Months Fork processes. Department staff capability to be able to use the City program Cultural Services Division registration software and the City financial software. LEGEND A Recommendation mandatory or critical • B Strongly recommended • • C Not critical but will improve operations mrm 16T irts, uc D Recommended but additional study required Action Plan-16 Recommendation Priority Time Frame for Anticipated Benefits Responsible Organization AIBICID Implementation Recommendation XII-5 Ability to provide the programs that will Community Services Provide additional staff time to free the D 2 Months facilitate increases in revenues. Department Community Services Director to be more active City Administration in fundraising to support the Cultural and Event. Services Division. Xlll. SPECIFIC EVENTS Recommendation XIII-1 Insure that applications are processed in Specific Events Division Develop a Permit Policy and Procedures Manual C 9 Months a consistent manner and that they are in for Specific Event Permits and a tracking system compliance with City policies and to monitor compliance to permit requirements. conditions of approval. Recommendation XIII-2 Better organization and control of the Community Services Budget an amount of money for fee waivers to D 3 Months rgan support to non-profit Department support selected non-profit organizations. o organization. Recommendation XIII-3 Provide a permit process that is self- Community Services Charge a fee for Specific Event Permits. D 3 Months funding and does not impact the City Department budget. Recommendation XII14 Ability to compile all data into a central Specific Event Division Develop a Reporting system for Specific Event C 9 Months database to be analyzed for conformance to City standards; data Permits. would also help to determine trends and to identify potential problem areas. LEGEND A Recommendation mandatory or critical B Strongly recommended C Not critical but will improve operations D Recommended but additional study required Action Plan-17 ..n.. ate€ UK Recommendation Priority Time Frame for Anticipated Beirefits Responsible Organization AIBICID Implementation XIV. HARBOR AREA Recommendation XIV-1 Place organizational responsibility on City Administration Transfer organizational responsibility for the B 2 Months the more appropriate Department and Harbor to the Public Works Department, except thus increase staff effort on other high park and lifeguard issues that can remain with priority issues. Community Services. Recommendation XIV-2 Place service costs on direct City Administration Develop a fee program to fund dredging and the A 4 Months beneficiaries. regulatory activities related to the Harbor. LEGEND A Recommendation mandatory or critical • • • • B Strongly recommended C Not critical but will improve operations (matt ms stun ac D Recommended but additional study required Action Plan-18 I. INTRODUCTION A. THE CITY OF HUNTINGTON BEACH Incorporated in 1909 with a population of 915, the City of Huntington Beach has grown to cover 28 square miles with a population exceeding 190,000. A full -service charter city with a Council/Administrator form of government, Huntington Beach provides services through the following departments and offices: ♦ Administration ♦ Building and Safety ♦ City Attorney ♦ City Clerk ♦ City Treasurer ♦ Communications ♦ Community Services ♦ Economic Development ♦ Fire ♦ Library ♦ Planning ♦ Police ♦ Public Works. These departments and offices are guided by the City's Vision: "To be recognized as a model organization, respected for valuing the community it serves and the people it employs. " And Mission: "To maintain a safe community, a high quality of life, the most cost effective and highest quality services, facilities, and products in response to the changing needs of our community. " B. STUDY BACKGROUND To improve City services, the City Council developed policy to conduct periodic management reviews of City departments. The management and operations review of the Community Services Department was to assess the Department's management systems, organization structure, productivity, service delivery, staffing levels, and budget comparisons, in terms of its overall economy, effectiveness, and efficiency. In brief, the City seeks the strategic utilization of its finite resources to provide responsive, efficient, effective and timely service to meet the growing needs of Huntington Beach. WIN I-1 COW ILS'?C.5. U . The Community Services Department was the second to undergo this process under the new City Council policy developed in 1999. C. THE COMMUNITY SERVICES DEPARTMENT The Community Services Department provides the City of Huntington Beach with the traditional parks and recreation services, as well as cultural, senior and beach lifeguard services. There are three divisions within the Department: ♦ Human Services A superintendent supervises the 12 FTEs and over 20 seasonal employees of this division. They have responsibility for operating the various senior centers, along with the Oak View Community Center. This division also has the responsibility for the clubhouse rental program, Project Self -Sufficiency, adult and youth sports programs, sports field allocations, and, the scheduling and organization of sports activities. ♦ Beaches, Recreation and Development The Deputy Director of the Community Services Department manages the 39 FTEs and over 350 seasonal employees of this division. They have responsibility for the maintenance of all beach related vehicles and boats, parking meter collection and maintenance, beach parking lot and structure maintenance, all maintenance related to public restrooms, operating the camping functions, and maintains the change machines. This division is responsible for marine safety, running the Junior Lifeguard program, and enforcing all safety laws on the beach. This division is also responsible for operating the Edison and Murdy Community Centers and the City Gym and Pool, which are the main facilities where the majority of recreational activities and programs occur. ♦ Cultural Affairs/Specific Events The Manager of Cultural Affairs oversees the 3 FTEs and over 8 seasonal employees. This division is responsible for the City's Art Center and all the events that take place there. This division is also responsible for the City's Art and Public Places Program and all instruction related to art education. The Administration of the Community Services Department provides oversight to all operations whose mission is to "Provide for the planning, direction, supervision, budget coordination, and clerical services necessary for the operation of departmental programs. " The Department Director is selected by, and reports directly to, the City Administrator. During the past decade, the Department has undertaken many projects that have expanded the, number and quality of recreation facilities available to the public. Some of the more notable of these projects include: ♦ New playground equipment or safety surfacing at 49 park sites to meet updated safety and accessibility standards. ♦ 60 new benches and tables at approximately 30 parks. I-2 ♦ Completion of the Senior Outreach facility. ♦ Expansion of the Huntington Central Park Equestrian Center. ♦ McCallen, Prince, Norma Brandel Gibbs, Sherwood, Discovery Well, Ruth Finley, Ruth Bailey, and Ron Pattison Parks are renovated, expanded or constructed. ♦ Boys and Girls Club Recreation Center at McCallen Park. ♦ Skateboard Park at Murdy Community Center. ♦ Joint City/School District improvement to Kettler Sports Field completed. ♦ Huntington Beach Art Center opened. ♦ Master plan for Huntington Central Park approved. ♦ City purchased and renovated the City Gym and Pool. ♦ Pier Plaza completed and two restaurants opened. ♦ Lifeguard Tower Zero completed. ♦ Beach Maintenance facility under construction. ♦ Band shelter in Huntington Park completed. ♦ South Beach Improvements underway. ♦ Beach Public Services Center completed. ♦ Design of second phase of South Beach Improvements completed. ♦ Night lighting installed at Marina High School to support youth sports. ♦ Partnerships with Chevrolet, Kawasaki, Simple Green, Coca Cola & Adopt —a- Highway. ♦ Sports Complex under construction. D. OBJECTIVES OF THE MANAGEMENT AND OPERATIONS REVIEW This project was established to evaluate the structure, operational policies, workflow methodology, and general efficiency and effectiveness of the Community Services Department in an effort to better utilize the skills and talents of its employees. Specifically, the City was seeking findings and recommendations as to how to improve the Department's overall performance and opportunities for improvement that included: ♦ Staffing ♦ Structure ♦ Managerial planning, direction, and reporting ♦ Organization ♦ Service delivery systems o I-3 W cn n flWx�fs. L ♦ Workload ♦ Communications ♦ Operational efficiency and effectiveness ♦ Customer Service ♦ Impending Issues. According to the U.S. General Accounting Office, a performance audit (management and operations review) is defined as the following: "A performance audit is an objective and systematic examination of evidence for the purpose of providing an independent assessment of the performance of a government organization, program, activity, or function in order to provide information to improve public accountability and facilitate decision -making by parties with responsibility to oversee or initiate corrective action. " In this effort, the City of Huntington Beach engaged Citygate Associates to conduct an independent, objective, and rigorously analytical review of the Community Services Department. E. STUDY APPROACH AND WORK PLAN The management and operations review of the Community Services Department addressed issues and questions related to: ♦ Vision, Mission, and Strategy ♦ Organizational Philosophy and Goals ♦ Performance and Efficiency ♦ Management and Supervision Structure ♦ Reporting to Citizens and Resource Management ♦ Organizational Responsiveness and Customer Service ♦ Work Flow and Processes ♦ Communication. In order for us ' to obtain the essential components to assess and evaluate the aforementioned areas for the management and operations review, we used the following approach: ♦ Conducted a project kick-off meeting with executive management to describe the study's scope, objectives, approach and schedule. Presented an Employee Orientation Session to describe the study's goals and objectives and respond to questions. ♦ Conducted a financial analysis by reviewing the revenue sources and comparing them with comparable neighboring cities to identify fiscal strengths. ♦ Conducted in-depth interviews with City Council Members and the Department managers and executives to obtain their viewpoints on those areas that are I-4 C Ulit UK performing well, those that need to be improved, and to identify the problems and opportunities facing the City. ♦ Obtained and reviewed pertinent and descriptive documents including financial, operating, organization and related management information. ♦ Conducted an employee survey to assess the perceptions and develop a profile regarding the city's mission, goals, and objectives; organization,. workload, and staffing; morale; customer service; political environment; pay and fairness; communications, financial management; equipment and technology, and leadership and supervision. ♦ Interviewed key employees within each department and held on -site meetings to identify further issues and validate current data and information. ♦ Reviewed the stated mission, goals, objectives, performance measures and service level definition used by operating departments to assess the processes used to formulate strategy, policy and direction, as well as each department's achievements within this framework. ♦ Analyzed workload and work distribution. ♦ Reviewed organizational structure. ♦ Reviewed initial findings with the City. ♦ Developed and presented our Final Report and Action Plan. Using this study approach, we developed working papers to continuously review and guide our study and subsequent findings. This allowed us to establish a constructive working relationship with the City, its executive management, and its employees during the course of the study. Our resultant observations, findings, and recommendations are presented in the following chapters of this report. I-5 .. .. OUR Al.YXIMs. U. II. REVENUE AND EXPENDITURE RELATIONSHIPS The Community Services Department is an interesting City operation because it is both large and ` small. It is large in its public profile, providing recreation, beach and park/recreation facility construction services that are readily recognized by the public. Yet it is small in the relative size of its budget, representing barely 4 percent of the total City budgeted funds in Huntington Beach and just over 7 percent of City General Fund expenditures. A sense of this financial size of the Department relative to the remainder of the City is reflected below: Fiscal Year 2001/02 Budget All Funds General Fund Community Services $15,842,986 $9,984,499 Library 5,210,849 4,046,472 Information Systems 11,883,964 4,036,038 Economic Development 12,033,688 969,159 Fire 25,129,190 19,006,820 Police 45,720,563 40,044,079 All Others 248,036,323 58,947,444 Total 363,857,563 137,034,511 Underlying this financial data, while providing a sense of scale, is more important information discussed in the following sections. A. EXPENDITURE RELATIONSHIPS While the City budget documents divide the Community Services Department budget into 37 business units, it is more descriptive for our purposes to consolidate these units into five operating functions: Administration, Beach related services, Recreation, Human Services, and Arts/Cultural activities. Looking at the current year appropriations for each of these functions provides a sense of size or scale that will be important in thinking about findings and recommendations in latter parts of this report. Budgeted General Fund appropriations for each of these operating units are: Administration $ 876,951 Human Services $ 896,736 Arts/Cultural $ 230,886 Recreation $2,549,363 Beach $5,020,205 As seen above, over half of the Department expenditures/activities focus on the Beach (Marine Safety, Beach and Pier Maintenance, Parking, Camping, Events), largely providing services to people who do not live in Huntington Beach. This financial relationship between the II-1 crr�tt aa�r€s. ttc Department activities has remained essentially the same since at least 1992. Unlike many other operating departments in which there is usually some day-to-day relationship between the function/activities, in Community Services the two largest functions (Recreation and Beach) have little or no relationship between each other in objectives, nature of the service provided, customers, or required staff skills. This presents a, unique challenge in managing the Department, even more so since this Division is neither reflected in the organization of the budget business units nor in the supervisory assignments. On the departmental organization chart, beach and recreation activities are intermixed, even if they are unrelated. Another financial relationship that has importance later in this report is the large number and dollar volume of park/beach capital improvement projects that have taken up a substantial amount of time and focus on the part of Department and Citywide management. The current two-year budget reflects a FY01-02 and 02-03 CIP budget for the "ll" Community Services Department projects of $19,446,000. The recent "Park Strategy and Nexus Study" completed for the City in December 2001 reflects 27 capital projects of $102,806,000 over the coming ten years. CIP projects such as completion of South Beach, Central Park Sports Complex, improvement of the Youth Sports facilities at the community centers, and a new or renovated Senior Center will continue to take a great deal of time and focus in the Department. B. REVENUE REL4TioNsH/ps Most City Departments "receive" at least some revenue associated with the services they provide to the public. The amount may be as little as charges for copies of documents or as extensive as water or sewer charges intended to recover the full cost of service. Unless revenue is "earmarked" to cover the cost of a particular service either by law or accounting practice, the revenue is normally deposited in the General Fund and is not used to directly offset the cost of a departmental operation. Most of the revenue received by the Community Services Department is not "earmarked" and so is deposited in the General Fund. The current financial software is not being used to its full capability and so this revenue associated with Community Services Department activities is generally recorded in large indistinct categories that make it currently impossible to determine the extent to which revenue actually equals the cost of services provided. Some of the major revenue categories related to Community Services Department activities include parking lot/structure and parking meter revenue, which exceeds $4,000,000 annually (as reflected in the Department's latest budget submission) and beach related concessions generate about $1,000,000. Recreational Class fees exceed $2,400,000. The Coca Cola franchise generates $300,000 per year. There are other smaller sources that collectively generate $400- 500,000 each year. From one perspective these revenue sources that total approximately $8,500,000 each year almost offset the nearly $10,000,000 General Fund expenditure portion of the Community Services Department budget. However, this does not properly take into account that parking and beach concession related revenue is intended to cover some on -going costs incurred by a number of departments providing services in the beach area in addition to those services provided by Community Services. II-2 gill WINE tic Even though $5,000,000 in Community Services activities, such as Marine Safety and Beach Maintenance, can be seen as directly related to the beach area, generalized revenue (such as the approximately $5,000,000 in parking and concession fees) is usually levied to cover the costs of multiple departments including Police and Public Works, not just the more obvious beach activities of Community Services. To "earmark" the parking and concession revenue for Community Services use rather than deposit the money into the General Fund would ignore the reality of these other costs. Interestingly, while there is a conceptual understanding that multiple departments provide services in the beach area, there seems to be no effort to calculate the full cost of City beach services and offsetting revenue. In fact, in reviewing the financing of some capital projects, beach parking and concession revenue is being used to fund debt service on capital projects. As a result, as little as half of the $5+million in beach related revenue may be available to offset Community Services and other department services to the beach. A similar discussion can be had with regard to revenue that can be more directly related to a department. Recreation class revenue and Junior Lifeguard participation fees are examples. In these instances, the revenue can be more directly related to the activities of one department and there is often an effort in setting the fee level to demonstrate that the fee covers the full cost of the service. While it has been pointed out that fees from all of the various recreation related activities do appear to equal the approximately $2,500,000 annual recreation expenditures, nevertheless there clearly are not sufficient revenues to also cover a pro-rata share of departmental administration costs nor the support costs from finance, personnel, purchasing and similar functions that behind the scenes actually make it possible for a recreation program to operate. Even if the City wanted- to ignore the issue of whether revenue should be recognized as covering costs in other supporting departments, the City does not have adequate data to determine whether costs of Community Service Department activities are being offset by the amount of revenue collected for an activity because neither revenue nor expenditures are being recorded in small enough units to be able to determine whether or not revenue for programs is covering the costs. To illustrate, expenditures are being recorded for Youth Sports, Adult Sports, and Instructional Classes as broad categories or business units. Revenue for these activities is combined and recorded in a single broad category of "recreational fees." Therefore, it is not possible to determine whether fees are covering the costs in any particular activity. In order to accomplish this, however, you need to record revenue in small discreet categories such as Youth soccer league participation, Adult softball, and educational/hobby classes —cooking, photography, etc. And importantly you need to record costs or expenditures in the same categories. The new J.D. Edwards financial software is capable of recording expenditures and revenues at these smaller levels that will permit the City to determine whether fees for a particular activity are adequate to 'cover recreational and beach related costs, but the Community Services Department staff resources are not available to achieve this. As will be discussed later in the report, this is principally because the Department does not have enough staff with the analytical experience and knowledge to develop an adequate cost accounting system for departmental use in assessing whether programs should be continued and/or fee levels are adequate. II-3 0 i I tM 9 ��'�. a, C. RECOMMENDATIONS Recommendation No. II-1: Add an analyst to the Department staff to report to the Deputy Director with the responsibility to take the lead on development of a financial reporting system that will permit the City to set fee levels based on information about which programs are self supporting and permit the City Council to make an informed decision regarding which programs/activities to subsidize and to what degree.. This position will also assist in developing and maintaining Performance Measures and in doing program assessment, and preparing the annual Department budget. The City's new J. D. Edwards financial software has the capability of recording revenue and expenditures down to the level of individual instructional classes and specific types of Youth Sports activities, if that micro level is needed by the Department to determine whether a program is self supporting and what fee level would be appropriate to charge participants. Presently the financial system only records expenditures at the much larger business unit level, such as Youth Sports as a single activity, and revenue at an even higher level where all recreation fees are lumped into one category. What information the Department has on the relationship between the cost and revenue of individual programs and activities is generally recorded as a discreet activity on a P.C., a much more labor intensive and less reliable way of gathering and analyzing information. The problem is that the Department does not have the staff with either the time or the analytical background to work closely with Administrative Services staff in developing an appropriate financial analysis system using the new software. Nor does the Department have the staff to design and conduct program assessment activities using the financial information. This type of analysis is necessary, however, in order to insure that programs change to meet the needs of the changing community and to insure that programs are self supporting or subsidized to an extent consistent with City Council policy. Currently those determinations cannot be made by the Department. With the major changes that will be occurring in the community and the Department over the next decade as a result of new tourist activities and changing City demographics, it is important to have the in-house analytical capabilities that will help avoid continuing activities that are no longer appropriate, insuring the cost-effectiveness of programs that are retained, determining how and when to expand services in the beach area in response to an increasing number of tourists and set appropriate fee levels. An analyst assigned to the Deputy Director will provide this in-house capacity. Recommendation No. II-2: Develop a budget structure, budget report and financial management system in conjunction with the Administrative Services Department, that will record expenditures and revenues at the individual activity/class level within the Department. WIN am II-4 tli`G°lt RWi1101 [IC This recommendation can only be effectively implemented with the addition of the analyst position recommended above. Recommendation No. II-3: Obtain a policy determination from the City Council regarding which Department sponsored activities are to be self supporting —including overhead and support from other departments —and which are to be subsidized, as a guide to developing a fee program that is automatically changed each year based on Council policy and effective cost/revenue information. Once the Department has an effective budgeting and financial management system, it would be helpful to obtain an updated determination from the City Council regarding what activities are to be self supporting and which are to be subsidized and to what extent. The present policy is based on the outdated cost allocation model. Currently without good cost and revenue information and without a good "overhead" or indirect charge model citywide, setting fees for programs is an educated guesstimate. Once the City Council determines what is to be self- supporting/subsidized, the Department can use the financial system to help set fees. It is important to recognize in this process that "self supporting" means including the support costs of not only the Department supervision and administration, but also the support cost of other Departments such as Administrative Services. Currently the City is developing a revised indirect charge model that should be reviewed to determine its usefulness in this fee analysis. II-5 A A OUR OWES. LC III. OVERALL DEPARTMENT ISSUES As each of the Divisions of the Community Services Department were reviewed, some issues were common to all of them: such as organization and reporting relationships within the Department, the need for goals, objectives and work measures, staffing, and financial reporting system. This section of the report addresses the Department as a whole and the issues common to all of the Divisions. A. . OVERVIEW OF THE DEPARTMENT Any organization will have some areas where it can improve, particularly where staffing is necessarily at a minimum due to financial constraints and employees are focused on service delivery. It is difficult in that organizational environment to focus much time on assessing work systems, assessing whether goals and objectives are appropriate to the future of the community and developing the type of analytical and reporting systems that adequately support the decisions that need to be made by the Department and the City's policy makers.. The sections of this report that follow will provide recommendations for improvement in each Division. While we believe that the recommended. changes will improve the efficiency and effectiveness of each Division, we found few operational problems that add up to large inefficiencies and ineffectiveness. The Department staff in all Divisions is very dedicated, focused on customer service and doing a good job providing the day-to-day services that are budgeted. The staffing level is adequate with some few exceptions that are discussed in the specific sections of this report. The key descriptor in the above paragraph is "doing a good job providing the day-to-day services that are budgeted." With the exception of capital project administration and cultural/arts, the Department programs and budgeted activities have remained about the same for over a decade while participation in some of those programs, such as Youth Sports and Adult Softball, have declined. The Department staff has not had the time or the information available to assess the reason for attendance/participation change, but do recognize that it is occurring. While the Department budget submission reflects goals for some of the Divisions (or business units as they are referred to in the City budget), the goals are more a statement of purpose than reflective of a careful assessment of what services and the nature of those services should be provided to the community: How have demographic and community preferences changed; how will they change; and what general programs and specific program content is needed and will be needed to meet the needs of the customers being served by the Division? The projects or specific objectives in each Division for the coming year are generally responsive to problems or improved ways of providing the same programs/services that have been around for over a decade. The Performance Measures are descriptive of the volume of work, such as the number of participants or the number of classes, but are not designed to serve adequately as a measure of how and when program and staffing levels should change. These are all reflective of the fact that the staff has focused on "doing a good job providing the day-to-day services" but have had little time; direction or information to assess how and when changes in the Department's activities should occur. One of the frustrations that we found expressed concerning the Community Services Department is its lack of adequate financial information to determine which programs/activities are self supporting and the extent to which revenue does not cover costs. While the new J.D.Edwards .. III-1 (if4 M. ay.MIS. K financial software used by the City will permit recording costs and revenue clear down to the level of individual recreation class, the Department staff are not trained on the new software and therefore unable currently to use its capabilities. Neither do they have the analytical staff within the Department to set up a financial reporting system that uses the new financial software to provide the information necessary to assess the appropriateness and effectiveness of programs and to determine the adequacy of fees to cover costs. Additionally the City has not had an adequate "overhead or indirect charge" system to allow the allocation of support costs to the programs/activities to obtain a true assessment of what is or is not self-supporting. While some of the issues listed above are the product of not having analysts assigned to this large and multifaceted Department, another cause is the extensive number of capital projects that necessarily have taken the time and focus of the Department Director and Deputy Director. Approved by the City Council and reflective of the City's Strategic Plan, capital projects become of the highest priority. In a Department with such an extensive capital project focus and without the staff to support this, day-to-day activities receive extended attention from the highest levels of management principally when problems 'and complaints occur. As a result, programs and activities are allowed to remain unchanged year after year. Two substantial changes are occurring in the community that make it advisable for Department to address all of these issues. The new conference center signals the beginning of substantial growth in the number of beach area "users" and a change in the nature of the use. This will create added burdens on the Beach Services Divisions of the Department and require a measured assessment of when to add additional resources in order to retain a level of service in the area that meets a City Council service level objective. The second change in the community is the shift in socio-economic and demographic characteristics that affect the type of programs and activities that are needed/desired by the community. In addition, this shift in the makeup of the community will represent a moving target that will require attention, planning and sophisticated analytical tools to constantly adjust the Department's program mix and approach. Many of these issues are addressed also in other sections of this report that focus on different Divisions in greater detail. However, these issues are of substantial enough.concern and affect all Divisions in a way that really requires them to be addressed as well from the perspective of the overall Department. That is the purpose of the findings and recommendations below. B. ORGANIZATION AND REPORTING RELATIONSHIPS The current organization chart for the Department, included here as Appendix A, reflects a Department that has assigned tasks and lines of authority/reporting relationships based on the skills and preferences of individuals as they were hired or promoted. While this may have worked all right for a Department that has had no urgent need to plan and change for the future and has focused instead on simply operating current programs well, combining unrelated activities and separating related activities does not permit future planning, adequate program assessment nor goal setting. For example, Human Services is combined with the Senior Center and reports to the same Superintendent who handles Adult Sports, the Oakview Community Center and some of the special youth programs. The other community centers report to the supervisor under the Deputy Department Director and Youth Sports are split among two of the community centers with no coordinator. Recreation classes for all ages report to the Deputy ..Pell .. III-2 (K-15 ftt5riiffE tic Department Director who also directly handles beach activities, except for Special Events that report directly to the Department Director. While the Department has six major activities (Administration, Beach, Recreation, Human Services, Cultural/Arts, and Capital Projects), this organizational arrangement is not reflected in the organization chart in Appendix A. The Department is facing a major change in work. volume and the nature of the beach visitors/usage beginning this next year with the full operation of a Conference Center that is reported to be booked up for the next three years. Those who attend the conference will not only come to the downtown area for entertainment.and dining, but conference sponsors and the hotel will seek to use the beach area for some activities. All of the beach related activities, including Special Events, should report to a single Superintendent who will be responsible to not only supervise and coordinate these very interrelated day-to-day activities, but also have the time and focus to plan for the future and develop the work measures that will indicate when work load and quality require an increase in resources. With some sophisticated analytical tools, it will also be possible to relate new City tax, lease, parking and other beach revenue to the costs of providing the services. Recreation activities are spread among different Supervisors, Superintendents, the Deputy Director and the Department Director in a way that precludes any one person being responsible to develop and lead an analysis of programs in relationship to changes that are now occurring in the socio-economic and demographic makeup of the community. It is uncommon in similar departments to have recreation activities split in this fashion. Rather they more commonly report to a single Superintendent, as should be the case in Huntington Beach as well. This will provide clear responsibility for planning, coordinating and changing programs as needed, something that is lacking now -in the current organization form. The next large aspect of Department operations that has a bifurcated organizational form is capital projects. On the organization chart in Appendix A, this "Development" function reports to the Deputy Director. Yet, the Department head begins the projects and carries them to a certain point with the Deputy Director and the Development Supervisor serving as assistants/analysts. When the project has been approved by the City Council and has been funded, then these latter two individuals take on a more primary role on the project implementation team, but with the Department Director participating in major decisions. Overall, a significant amount of the Department Director and Deputy Director's time is spent on capital projects and funding, and all of the Development Supervisor's time is spent on capital projects as well. As a result, day-to-day operating aspects in the other Divisions of the Department are handled by supervisors and one Superintendent, except for problems and items in which these middle management personnel do not have the authority or do not have a clear idea of the direction needed to make a decision. The Department Director understands the problem and the need to reorganize the Department in order to provide more direction, planning, and program assessment/change. Yet, all of the top management are too busy with capital projects to undertake the necessary organizational evaluation and goal setting exercises. Capital projects should be reorganized so that the Development Supervisor reports directly to the Department Director and the Deputy Director is relieved of capital project responsibility, but instead takes on the responsibility to oversee the day-to-day operations, organize and implement a goal setting program, plan for the future of the beach and recreation functions, assist in the III-3 CfENM V111M.1 5. MI. development of a financial reporting system that permits program assessment, and provides the leadership to insure that the Superintendent of Beaches and a Superintendent of Recreation focus on and provide planning and coordinating leadership in those two very separate area. As information in a later section of this report on capital projects indicates, there is little likelihood that the need for direct and extensive involvement of the Department Director in capital projects will end soon. There are many projects currently underway and in the planning stages and capital projects simply require the authority and decision making of the highest level in the Department, who is responsible directly to the City Administrator for the successful implementation of each project from inception to completion. This proposed role for the Deputy Director recognizes the reality of the current capital project work list in the Department. Elsewhere in this report we recommend the addition of a staff analyst to also report to the Department Director to provide the much needed analytical skill to improve the conceptual development, costing, control, and reporting on capital projects. We have found that both Human Services and Cultural/Arts operate well regardless of where they may be assigned, both because of the very separate nature of the activities, as well as the quality of the work being done by the staff. Therefore, these two functions were not a major determinant of the organizational form that we are recommending. Below is a reorganization of the Community Services Department that reflects the principles and issues discussed above. We believe that this will provide the best opportunity for planning and direction of the very separate functions of the Department. CITY OF HUNTINGTON BEACH COMMUNITY SERVICES DEPARTMENT PROPOSED ORGANIZATION CHART Budget and Project Analyst Capital Development Projects Director Deputy Director Clerical and Accounting Support Supt. of Recreation and Supt. of Manager of 111 Specific Human Services Beach Services Cultural Affairs Events Human I Adult I Marine Services Recreation Safety Senior Community Beach Center and Centers and Maintenance Activities Youth Recreation Parking and Classes h I Camping III-5 (JIM AMMUS. U With this reorganization and recognition of the role of capital projects, we looked at the larger organizational form of the City to see if there were adjustments that should be made there as well in order to improve the effectiveness of the Community Services Department. Capital projects should be conducted with a close cooperation and interrelationship with Public Works and Administrative Services. Both of these are central in cost estimating and financing projects and Public Works is responsible for project construction in most instances. Both Public Works and Administrative Services report to the Assistant City Administrator, which provides a very good linkage for Public Works capital projects, but Community Services reports to the City Administrator. It would provide a much closer linkage and help provide better quality data to the policy makers if Community Services reported to the Assistant City Administrator. Given the workload distribution in the City Administrator's office, this reassignment will also provide closer day-to-day supervision of the Department, which is needed during the next several years as the Department is reorganized and undertakes goal setting, establishing a financial reporting system, and program assessment. Given the workload of the City Administrator, this closer oversight is problematical if the reassignment does not occur. As part of the reassignment of the Community Services Department to the Assistant City Administrator, we are recommending that the analysts in Administrative Services, Public Works, Community Services, . and the City Administrator's Office meet at least biweekly with the Assistant City Administrator to insure that these key staff are briefed on current City policy and priorities relative to their assignments at the moment. It will also allow the Assistant City Administrator to insure the coordination of these staff who nominally work in separate departments but frequently are engaged in work that crosses over departmental lines. As staff analysts, their role is often to support other departments and make sure analysis takes into account data and perspective from all departments. Insuring this role and coordination should be the responsibility of the Assistant City Administrator who supervises their departments. One permutation of the "capital project" organization is to assign the Department Director to work directly out of the City Administrator's Office, still reporting to the Assistant City Administrator, for the next few years in order to focus on capital project implementation. This; would provide a clean separation in the short term between capital projects and operations in the Department. In addition to current staffing and organization design problems, the difficulties in the Department are also caused by the way in which priorities are set to allocate time between capital projects and operations. C. GOALS, OBJECTIVES AND WORK MEASURES The review of the Divisions of the Community Services Department found that there was not a Mission Statement that reflects the guiding principles of the Department and not a framework of goals that reflect the priorities of the Department and its general direction. In addition, there are no specific objectives tied to goals that spell out the specific activities that will be undertaken to achieve the goals. Instead, the goals are largely statements of purpose. Projects or specific objectives are responsive to problems or improved ways of providing the same programs/services that have historically been provided. Those projects that look out to the future are not accompanied by other projects that will actually provide the analytical tools to accomplish the work. Although the Department lists Performance Measures in their budget submissions, these do not measure several dimensions of a program to help determine not only when but also how to change. Instead, the Performance Measures reported by the Department are largely descriptive of the volume of work. For instance, they record the number of recreation classes offered, number of respondents to a customer survey, number of participants in various programs and number of The Sands distributed. Performance Measures should reflect carefully asked questions such as "What is the target population for a program? How do we know if we have reached them? What are the objectives of the program? How do we know whether we have accomplished them? Even if participants enjoyed what was offered, how do we know if anything could have been effectively added? From these questions come measures and then tools to accomplish the measurement. Too often in organizations Performance Measures become simply those things that it is easiest to count without asking what the measure is supposed to tell us. A Mission driven and Goal oriented Department will annually review its Mission, Goals and develop the Specific Objectives that translate into a Work Plan that is the basis of the Department budget request. In the annual review, the Department should evaluate whether it accomplished its objectives and use this information to modify the Mission Statement and Goals as needed and establish new Specific Objectives and a Work Plan for the coming year. This will be an integrated package that charts the course of the Department for both the next year and the longer term. Employees clearly know what the Department will be doing and can become more active participants in thinking about changing and improving their own work in relationship to the future. A Mission Statement, Goals and Specific Objectives also serve as an excellent communication form to tell policy makers and the public what the Department will be doing and how it will be changing. Moreover, they serve as a measure of effectiveness by permitting policymakers to clearly see whether Specific Objectives have been accomplished and how close the Department is to achieving its Goals. Community Services needs to develop and implement an on -going goal setting process to include a Mission Statement, Goals, Specific Objectives, and annual review. In addition, it needs to develop Performance Measures that actually assist in assessing the effectiveness and appropriateness of programs/activities. Granted that the City has a Strategic Plan and some of the items there apply partially or wholly to the Community Services Department. These serve as the overarching directive to the Department from the policymakers regarding what general priorities the Department should acknowledge in developing its own Goals and Specific Objectives. In a sense the City is the whole, the Community Services Department is a part of the whole, and the latter's activities should reflect the basic direction and priorities of the City as reflected in the Strategic Plan. From this perspective, the City should be reviewing its Strategic Plan regularly to ensure that the Department's activities stay aligned with the latest priorities of the City Council. The recommended reorganization of the Community Services Department separates it into logical pieces whose activities are interrelated. This lends itself well to the establishment of Goals and Specific Objectives. Without this reorganization it will be far more difficult to pull the interrelated activities together to set Goals and difficult to hold any one supervisor responsible, since responsibility even for Specific Objectives will often be divided among Divisions that report to different managers. Clearly, Goals and Specific Objectives related to the beach area will be different that those related to Recreation, Human Services or Cultural/Arts. This needs to be recognized in both the Department's organization as well as its goal setting. III-7 (111RItt MIX 03. L: D. FINANCIAL REPORTING SYSTEM A financial reporting system is more than simply recording the revenue and expenditures. It should record that information and then produce reports that show the cost of business units, programs, specific activities, one-time projects/events and then also reflect the revenue at each of these levels of detail. Ideally, a manager or policymaker should be able to ask concerning any activity, "What did it cost?" and "Were costs fully covered by revenues?" In recording costs, it is also important to have a system that will accumulate the direct labor contribution of staff in other Divisions of the Department and in other departments of the City, as well as apply an "indirect charge or overhead rate" to reflect the cost of general support services for which it is difficult to clearly segregate the costs associated with the particular program/activity of interest. Revenue analysis needs to reflect not only the directly recovered revenue from fees at the level of activities, but also indirect revenue such as increased sales, business license tax or property tax revenue associated with an activity. This broader analysis is important in considering whether or not the City is subsidizing programs like beach activities or needs to raise revenue like parking, event and other fees. Ultimately a financial reporting system is not only for reporting and controlling costs and revenue, but providing the information that will permit assessing whether program/activity fees are at an adequate level, whether (or to what extent) general tax funds are subsidizing activities for particular programs, population groupings, geographic areas, etc. A financial reporting system is a management system and a source of information for policy making. It permits the City Council to clearly and with full information determine which programs/activities should be self-supporting and which should not. Prior to the recent implementation of the new J.D. Edwards financial software, Community Services recorded most costs and revenues below the Division or business unit level through separate in -department bookkeeping. They did not usually apply the cost of labor and indirect charges from other portions of the Department and other City departments, but instead measured "self supporting" as the direct program/activity costs compared to the revenue. In the citywide financial reporting system, costs and revenues were at the higher Division and Department level, making it impossible to answer the question of whether and what is being subsidized by General Tax funds. One added complication is that park maintenance costs are budgeted in Public Works, making it further difficult to associate full program or project costs with revenue. The City has not had the capability. to knowledgeably assess the financial condition of Community Service programs/activities and has not had the information to make policy regarding the use of revenue to offset operations vs. capital expenses. The end result is that the City has been able to determine how much General Tax money helps support the Community Services Department as a whole, could not know how much tax support goes to particular aspects of the Department. The new J.D. Edwards financial software and new "indirect charge system" (now being developed for the City) have the capability of resolving most if not all of the issues discussed above and providing the City with a financial analysis of any aspect of the Community Service programs and facilities. The current problem is that no one in the Department has the knowledge or training to use the software for this capacity. It is simply because Department personnel are cam iu R: HTW10 tr, tic III-8 operating staff with experience in their own programs and with little time to become experts in financial reporting systems. Yet to design such a system requires their input: What programs/activities to develop costs for? What one-time projects or events? What revenues should be applied against which costs? This argues for having an in-house analyst who works closely with the Administrative Services Department and City Administrator's Office in designing the needed reports, adjusting the Department's annual budget preparation to create the base for the reports, and then works with the Divisions and program supervisors to use the information in assessing their programs and establishing appropriate fee levels. As an aside, this individual can also work closely with the operating personnel to develop and collect Performance Measures that further assist in program assessment. What is being recommended here is- a second and separate analyst position. The first recommended above is to assist on capital projects and annual Department budget preparation. This second analyst is the key position that will facilitate program assessment and determining/justifying when resources need to be shifted in recreation or increased in the beach area in response to more public year round use of the beach area and use of that area for different purposes than is now being generally experienced. While it may seem like a large commitment to hire two analysts for the Community Services Department, this is a large major department now with no analyst and one about to undergo major change while attempting to continue implementation of capital projects. Two analysts will, substantially improve Departmental effectiveness and give the City Council theproper anticipation of an improvement in the capital project process. E. STAFFING Our research indicated that staffing levels in most areas of the Department are providing a level of service that appears to be acceptable to the public and the policymakers of the City. In addition to the two analyst positions discussed immediately above, two other areas deserve particular comment: beach services and recreation. Both of them are experiencing problems with the rules that prohibit "recurrent" employees from working more than 1,000 hours per year. While this policy, intended to help control the cost of benefits, does not create a problem in all Department operations, in some areas this limitation creates real problems of continuity and training. When an employee has reached the 1,000-hour limit, a new employee is hired or reassigned to take over that position's responsibilities with no opportunity to have much transition time. It is also difficult to train some of the employees in proper customer service, security and safety procedures when they may work so few hours per day in order to stay under the 1,000 hour limit for the year. It would substantially improve the effectiveness of various Department operations through better training and avoiding transition problems in the middle of program operations if the 1,000 hour limit could be waived for one or two employees in each of the following classifications: Arts Education Coordinator, Gallery Aide, Lifeguard (pool), Maintenance Worker (for the club houses), Mechanic, Meter Worker, Parking Attendant, Preparator, Recreation Coordinator, Recreation Leader, Swim Instructor, Social Worker. F. RECOMMENDATIONS The following recommendations are an outgrowth of the findings and issue discussions above. Recommendation No. III-1: Reorganize the Department to have capital projects report to the Department Director and have all operations report to the Deputy Director through a Superintendent of Recreation and Human Services, Superintendent of Beach Services, and a Manager of Cultural Affairs. Recommendation No. III-2: Add an analyst position to assist in capital projects and development of the annual department budget. Recommendation No. III-3: Reassign Community Services to report to the Assistant City Administrator. Recommendation No. III-4: Undertake a program to develop a Mission Statement, Goals and Specific Objectives for the department and each of its divisions and include a process for annual review and development of new Specific Objectives that are the basis for budget requests. Recommendation No. III-5: Develop Work Performance Measures for programs/activities that can be used to assess when and how changes should occur and resources shifted or added. Recommendation No. III-6: Add an analyst to take the lead on development of a financial reporting system that will permit the City to set fee levels based on information about which programs are self supporting and permit the City Council to make an informed decision regarding which programs/activities to subsidize and to what degree. This position will also assist in developing and maintaining Performance Measures and in doing program assessment, and preparing the annual Department budget. Recommendation No. III-7: The Assistant City Administrator should meet at least biweekly with the analysts assigned to departments that report to him. Recommendation.No. III-8: Allow additional exceptions to the 1,000-hour limit for some recurrent employees. III-10 IV. CAPITAL PROJECT DEVELOPMENT SECTION OVERALL The Development section of the Department is staffed by one Development Supervisor who reports to the Deputy Director. This section is responsible for the acquisition, development and renovation of parks, beaches and recreation facilities/amenities. The initial development of project ideas, concepts, financing and policy approval is handled by the Department Director, who then assigns the approved project to the Deputy Director and Development section for implementation. A. MISSION STATEMENT AND GOALS Mission Statement There is no published mission statement for this program. Goals The goal of the Development activities, as stated in the budget material, is to improve the quality of life in Huntington Beach by creating new facilities and rehabilitating existing facilities to meet the need and desires of the community. But the goals are really stated in a more comprehensive manner in the July 2001 Huntington Beach Strategic Plan where the priorities include: "Expand and rehabilitate park, cultural, beach, and recreation facilities serving residents and visitors. " "Facilitate and complete beach master plan improvements to accommodate visitor -serving business growth. " "Protect and preserve open space and parklands. " "Ensure that budgeted capital projects are delivered on time and within budget. " Related to these priorities are two that address the issue of financing projects and activities: "Grow and diversify revenue sources. " "Enhance and grow public/private partnerships to generate revenues for public services. " It is important to restate these priorities here, because the Development section and the related Department staff are aggressively pursuing these priorities of the City. While there has been some disagreement_ within the public and among policymakers regarding the Department capital project and financing activities, the Department is in fact consistent in their adherence to the approved priorities in the City Strategic Plan. IV-1 VA CEMMA41MM15. t. B. ORGANIZATION AND FUNCTIONS The development of capital projects from inception through implementation is governed by a series of Administrative Regulations: Fiscal Impact Statement Capital Improvement Maintenance Impact Statement Administration of a Major Public Project Dated 2/23/96 Dated 11/1/96 Dated 10/9/01 . Collectively these regulations provide for a process whereby a potential capital project is reviewed by staff and its size, scope, possible financing alternatives and maintenance impact are researched before the project conceptual plan is discussed with any public group. The most central of these three regulations is the "Administration of a Major Public Project." It provides that a project must be presented to the City Administrator's Executive Team for preliminary discussion to establish goals and priorities. If approved, a multi -departmental project team is to be formed to guide the project through its various phases, including preliminary cost estimates to be developed by Public Works Engineering to assist in determining the viability of a project, and hiring a consultant to develop conceptual plans and a detailed cost estimate. Construction funding and a financing source for maintenance are also reviewed and determined prior to the project going to the City Council for approval of the project concept and financing. Public Works Engineering is then responsible for administering construction of the project with the multi -department project team monitoring progress and funding. The Development Supervisor staffing the Community Services Development Section provides assistance to both the Department Director and Deputy Director through the above project process and may serve as a project team member. The latest budget documents prepared by the Department list 10 major capital projects in some stage of development ranging from currently under construction to being about to enter the stage of developing a conceptual plan. These include such projects as Phases I and II of the South Beach Improvement, Phases I and II of the Sports Complex, Phase I of the Murdy Park Youth Sports Complex, developing conceptual plans for the Edison Park Youth Sports Complex, Bartlett Park, 16 acres of Central Park and the Rodger's Senior Center. A December 2001 report to the City projected over $100,000,000 in capital projects under the auspices of the Community Services Department during the current decade. This large volume of projects has resulted in taking not only all of the time of the Development section staff but also the vast majority of the time and focus of the Department Director and the Deputy Director. While this activity is consistent with the City Council approval of the capital projects and consistent with the City Strategic Plan priorities, it leaves the remainder of the day-to-day operations with less attention than is necessary to insure that programs are assessed and changed as needs of the community change. IV-2 C. FINDINGS AND OBSERVATIONS Staffing and Workload Since capital projects are the first priority focus of the upper management staff in the Department, the time necessary to conceptualize, research, and implement projects is allocated first with the day-to-day operations receiving attention largely to solve problems that appear. Little time is available to evaluate and modify programs or to assess the future needs of the community, since the highest priority is the capital development program. It is not easy to simply ask the upper management to reallocate its time and devote more to the day-to-day operations, because to do so will result in inadequate attention being given to the capital projects that are already "in the pipeline." Simply stated, staffing for capital projects is adequate only at the expense of management attention to other aspects of the Department operations. While some of the additional management staff time that is needed is made up through work weeks greater than 40 hours, additional staff and reorganization of assignments needs to be made to restore balance in the management and leadership of the Community Services Department. Organizational Structure and Reporting Relationships Because there are so many capital projects underway now, a radical instant change in focus for the Department is not practical. Capital projects need to continue receiving a high level of attention and need the Director's management level in order to have the authority necessary to make the inevitable decisions that arise throughout the life of a project. Yet, more attention needs to be devoted to the day-to-day operations of the Department and planning for the future of those operations as the beach area changes and the community's own demographics change. Elsewhere in this report, a new Department wide organization is recommended. In that reorganization it is recommended that the City hire and assign an analyst to the Community Services Department to largely assist in capital projects and provide some broader assistance in budget development. However, it is also recommended that the Development section report directly to the Department Director and redirect the Deputy Director to devote all of his time and focus to the day-to-day operations and planning/implementing operational changes for the future. This change in organizational structure and reporting relationships will provide high-level direction to both the capital projects and day-to-day operations, a balance that is currently missing. Communications/Effectiveness and Appropriateness of Procedures and Processes One of the persistent concerns that was encountered in our research of the development process was that Community Services capital projects frequently wind up very different in scope, cost and financing plan from where they started and that the projects were often described to the City Council and the public before the factual issues had been resolved. The result. is the perception on the part of some people in the community and city organization that project concepts and facts were frequently changed and that some projects might not have been approved if the final scope and cost had been known from the beginning. There are at least two major reasons why Community Services capital projects undergo frequent change. The first is that the Department has no analytical support. All of the analysis forr- . ...... IV-3 L[ET R ASS°G"Qts. tK. programs and projects must be done by the Director, Deputy Director and a Development Supervisor. This is not only a problem of having the undivided time to undertake the needed analysis on a project when it is at its early conceptual stage, but also the analytical skills and working relationship with the analysts in Administrative Services and Public Works. It has been recommended elsewhere in this report that an analyst position be added to the Department. The second reason is that the Administrative Regulation governing the capital project process does not appear to be followed, partly because the regulation itself is ambiguous. A strict reading of the regulation as described in Section B above would suggest that the City Council would not see or hear of a project until it had been thoroughly researched by the staff, including development of conceptual plans upon which to base construction and maintenance cost estimates. However, hiring a consultant to prepare conceptual plans requires at least City Council budget approval, which is probably not forthcoming without a sufficient project description and financial analysis to convince policy makers that the project is viable. The regulation, then, provides no orderly defined point in the process to engage the City Council in the early policy level discussion of a project with sufficient information to make a decision to proceed with at least conceptual planning and detailed cost analysis. The problem then is that the City Council is made aware of projects with no process to assure that thorough staff analysis has occurred by that point. The regulation also places substantial responsibility on the Public Works Department for preparation of cost estimates, and yet there is a lot of participation in that process by the Community Services Department, that does not have the analytical staff to properly participate in the process of developing construction and maintenance cost estimates. Furthermore, these cost estimates are often perceived to be provided to the City Council through the Community Services Department, rather than through Public Works, as the regulation would seem to require. The project team role needs be clarified. While it is formed at the outset of a project, there is not a subsequent clearly defined role for the sponsoring department other than membership on the team. Who makes presentations to the City Council and the public? Who has responsibility for conceptually describing a project and for the construction and maintenance cost estimates, and what role does the sponsoring department have in this? The ambiguity in the Administrative Regulation and the subsequent difficulty in following the regulation have contributed substantially to the somewhat messy capital project process involving Community Services. This may not be the sole contributing factor, but it is a major factor and effectively prevents the City Administration from imposing order on the process. Several things need to occur to improve on the capital project process. The Administrative Regulation needs to be rewritten to provide the clear points in the process at which a project is first presented to the City Council and what information and level of analysis needs to accompany that presentation. Subsequent points of City Council involvement need also to be defined, along with the required information and level of analysis. Which department has responsibility for the analysis and presentation of projects to the City Council needs to be defined in the regulation and made clear to city staff. Moreover, the role of the project team vis- a-vis the department sponsoring a project needs to be clarified for each step of the process. FIN .. IV-4 L l it W.--'M tic D. RECOMMENDATIONS Recommendation No. IV-1: Add an analyst position to the Department, reporting to the Director and assisting in capital project analysis and budget development. Community Services is a major department with multiple functions, a complex budget and many capital projects. The Department does not have analytical staff that can help develop the quality information that the City Council needs to make policy decisions, nor does the Department have the staff time and analytical skills to develop assessment methodology for its varies programs. An analyst can help fill this gap. In order to maintain communication and coordination with Administrative Services and Public Works staff, it is recommended elsewhere in this report that the analyst meet weekly with the Assistant City Administrator and the analysts from these two departments and the City Administrator's Office. Recommendation No. IV-2: Assign the Development Section to report directly to the Department Director who will then have comprehensive responsibility for capital projects and reassign the Deputy Director to have day-to-day responsibility for all operating sections of the Department. The Community Services Department has a nearly inescapable responsibility for a large number of capital projects that are now in progress. With the already existing and necessary time commitment to these projects by the Department Director, it is necessary to arrange for someone to take on day-to-day responsibility for operations and to direct the assessment and modification of programs as needed. The Deputy Director position is the logical one to take on day-to-day direction of operations; however, currently that position directs part of the operations but spends a large amount of time on capital projects. The result is that top management in the Department pays attention to day-to-day operations when problems occur, with the remainder of the time devoted to capital projects. To restore balance to the management and leadership of the Department, it is recommended that the Department Director assume full responsibility for capital projects and the Deputy Director assume responsibility for day-to-day operation of the department. Recommendation No. IV-3: Revise both the content and implementation of the Administrative Regulation governing implementation of capital projects. The Administrative Regulation regarding "Administration of a Major Public Project" is ambiguous and not implemented in accordance with the process outlined there. Among the changes that need to be made are a clarification of the role of the project team and the corresponding role of the sponsoring department. Clear points in the development process need to be identified for City Council policy involvement and the information and level of analysis needed by the City Council. Responsibility for analysis and presentations to the City Council needs to be clarified for city staff. IV-5 OUR 0901B. a: V. MARINE SAFETY SECTION OVERALL The Marine Safety Division of the Community Services Department provides lifeguard services for approximately 3.5 miles of City operated beach and is responsible for responding to all emergencies on the City beach. Over 9 million visitors use the City beach annually and the Marine Safety Division averages more than 2,000 rescues each year. In addition, the Marine Safety Division may respond to mutual aids and other aquatic emergencies within Orange County. The Division also provides safety direction and service to the specific and special events held on the beach, and operates a Junior Lifeguard program for the City. A. MISSION STATEMENT AND GOALS Mission Statement The purposes of Marine Safety is: ♦ To provide professional quality open water and beach safety through education,. prevention and emergency response. ♦ To provide a safe, clean beach environment along with easy public access to the pier and beach. ♦ To create a safe destination for the public in a fiscally responsible manner. ♦ To promote the city's image as a major extended stay destination attraction by maintaining a quality beach environment. Goals The 2001 Huntington Beach Strategic Plan has established eight Strategic Issues. The Marine Safety Division is guided most specifically by the following: The Public Safety goal to "Maintain a healthy and safe community" and its priority to: "Provide quality police services with the highest professional standards. " "Provide open water and beach safety through education, prevention, and emergency response. " The Environment & Natural Resources goal to "Enhance the community's environmental quality and maintain its unique natural resources" and its priority to: "Maintain safe and clean beaches, waterways, and coastal ocean waters. " The Mission is accomplished by providing service to citizens with highly trained and equipped Marine Safety personnel. Beach safety is their number one priority and has resulted in a beach safety record that is exemplary. B. ORGANIZATION AND FUNCTIONS This section is staffed with 16 Permanent Positions and 134 Non -Permanent or recurrent Positions. The Permanent Positions include the Marine Safety Chief, 4 Marine Safety Lieutenants, 10 Marine Safety Officer II's, and an Administrative Secretary. The recurrent positions include 20 Ocean Lifeguard III's, 10 Ocean Lifeguard II's, 100 Ocean Lifeguard I's, and 2 Maintenance Workers. Beach Enforcement Lifeguard service is provided during all daylight hours, 365 days per year. The level of service changes with the season, the day of the week, the time of day and the weather. It is estimated that there will be 9,000,000 visits to the beach this year. This is an increase over last year because part of the beach was closed for beach improvement projects. Annually there are about 25 boat rescues, 2,600 water rescues, 1,900 medical aids, 57,000 preventative actions, and 13,500 law enforcement actions performed by the Division staff. Junior Lifeguard Program The purpose of this program is to acquaint the youth of the community (ages 9 to 17) with the experience of ocean swimming and its hazards, while exposing them to an environment that will teach them courtesy, respect, discipline, sound morals, and good sportsmanship. The program includes ocean and beach safety, lifesaving techniques, procedures for bodysurfing, body boarding, board surfing, development of swimming skills, competition with other Junior Lifeguard programs, volleyball, and miscellaneous beach games, activities, field trips and ecology. It is the City's most important beach safety education program and it supplies Marine Safety with a majority of their lifeguard recruits. The Junior Lifeguard program direct program costs are covered with revenues (about $400 each for each participant). The Friends of the Junior Lifeguard Program is a non-profit support group that works to raise money for interior improvements (supplies, furniture, etc.) for the new Junior Lifeguard building. C. FINDINGS AND OBSERVATIONS The Marine Safety Division has an excellent history for providing high quality beach safety services and they have made the necessary adjustments from year to year to accommodate the increase in beach population and activities. This has been done so effectively that the full scope and importance of their work is sometimes not apparent. Over the past decade, the Division has undergone reorganization, some expansion and team building that have resulted in this effective service delivery system. Activities at the beach will change in the next year because of the transition of the City from primarily being a day -use site to being a multi -night destination for visitors. The complete impact on the beach is unknown, but the City must be prepared to handle whatever develops. Reasonable predictions need to be made for the changes that will occur and appropriate plans need to be developed to deal with them. Education Permanent educational displays are maintained at the Beach Public Services Center or Junior Guard Headquarters for public education lectures and tours. Staff currently travels to schools and service clubs to provide these programs. Staffing A staff of 130-150 lifeguards (active and reserve personnel) is necessary to provide the service of protecting the City's beaches. The current staff includes 110-120 active and reserve personnel, and the Division recruits and hires 15-20 new recurrent lifeguards per year. To perform first line lifeguard duties they must be responsible men and women who are strong swimmers. Recurrent employees for the city are limited to 1,000 hours of employment per year. This creates many problems in retaining qualified personnel, or in recruiting and training new personnel. This situation is compounded because the available candidates for these positions are limited. This situation is expected to get even more difficult with the anticipated change in staffing needs in the near future. Equipment Budget restrictions have limited the funds available for the purchase of equipment and the time available for personnel training. Budget restrictions have been offset by innovative programs such as the partnerships with Kawasaki and Chevrolet. Minimum standards need to be established for these items and equipment replacement funds reliably set aside to assure the continued availability of needed equipment. Workload Budget reductions have resulted in a reduction of the lifeguard staff and a reduction of beach supervision. Such reductions need to be closely evaluated so that the results do not put the City at a higher risk than is acceptable. The City really has no way presently to measure the impact of staffing changes or the need for added staff. The Marine Safety headquarters staff is responsible for: ♦ Support for Marine Safety management operations, including clerical work, scheduling and planning meetings, developing minutes for meetings, operations planning, records management and preparing reports. . ♦ Monitoring budget and expenditure accounts and follow up on .payments for lifeguard assistance for special events. ♦ Development of instructional and informational manuals. ♦ Processing special event permits for the beach, including assistance for the applicant, monitoring permit conditions, collecting fees and issuing refunds, coordination with staff and follow up on problems. ♦ Support to the public including answering questions, selling parking permits and answering 3 telephone lines. V-3 ci�rr�n a��s, uc ♦ Issuing permits and collecting fees for the use of the Central Park facilities, including the bandstand, amphitheatre, picnic shelter, camping sites and special events areas. Issuing permits for Central Park is time consuming and uses time that needs to be spent supporting the Marine Safety operations. Because Central Park and the Marine Safety office are located so far apart, it is difficult to follow up on the permits and it is not very convenient for the public. This task should be relocated to another more suitable Division in the Department, possibly the Community Services office in City Hall. Communications There have been problems with the budget processes. Budget accounts and money are moved from one place to another, or completely disappear without any explanation. There are also no line items for needed accounts in the view of Division staff. The Department does not presently have the knowledge or training to track -down these finance system problems. Operational Efficiency and Effectiveness There are a large number of employees that have been Marine Safety Division employees for many years. This creates a knowledge and experience resource that could be very valuable for the Division in its operations. The Marine Safety managers are viewed by some as being a closed group that does not allow others on staff to have input in decisions that affect them, while Department management feels that significant effort has been made to be inclusive. It could be helpful to the Division as a whole to have a more formal and regular team building and. goal setting process that involves as many staff members as possible. Facilities This section will be moving to a new lifeguard headquarters building. The new facility will include locker facilities for female lifeguards, garage space for all vehicles and equipment, meeting and training rooms, and offices for staff. This will provide some isolated space for staff to perform their work without interruptions from visitors. Impending Issues The impacts from the new development adjacent to the beach and the City of Huntington Beach transitioning from a daily -visitation destination to an over -night destination are unknown, but it can be assumed that there will be an increase in the beach population. The increase will likely occur not only during the peak swimming hours, but earlier and later in the day and on cooler days that are not that attractive for swimming (because the people are there already). It is also expected that there will be additional events scheduled on the beach, both formal and informal. This will result in the need for additional staff to supervise and protect the beach users. D. RECOMMENDATIONS Recommendation No. V-1: Develop a new system to estimate and document the number of persons using the beach. V-4 The current system of determining beach attendance has been to use the number of parked vehicles and multiply it by a factor that has shown to be relatively accurate. This formula worked because most beach visitors came to the beach in vehicles. This will change with the new development adjacent to the beach. The new numbers should then be accumulated in a database along with the weather, hotel activities and other influential conditions so they can be analyzed to improve the prediction of attendance and staffing needs. Recommendation No. V-2: Develop a staffing plan to accommodate the expected increase in beach users over extended hours. A prediction can be made for the potential increase in beach visitations and the resulting staffing requirements. The prediction can be made based on the typical weather patterns in Huntington Beach and a conservative guess on beach attendance during different times of the day. Measures should be developed to determine when to add staff and the funding anticipated in budget reserves.. Recommendation No.V-3: Move the permit processing for Central Park facilities to another location in the Community Services Department. Permits for uses in Central Park are issued by the Marine Safety staff at the Marine Safety headquarters for special events and for use of the bandstand, amphitheatre, picnic shelter and campsites. This creates a workload for the Marine Safety staff at a time when they are very busy supporting the beach operations. This responsibility should be moved to another Division in the Department, such as the Community Services office in City Hall, to provide better service to the public and free the Marine Safety staff for their other work. Recommendation No.V-4: Upgrade the Marine Safety computer systems and staff capability to be able to use the City financial software. The Marine Safety headquarters office cannot access the City financial software for their financial information. This requires that the information must be obtained through other means that is less timely and less accurate. V-5 (11YOM arOCIEs. u: VI. BEACH MAINTENANCE SECTION SECTION OVERALL This section of the Community Services Department is responsible for the cleanliness and maintenance of the 3.5 miles of beach, the public restroom facilities, bike trails, and Huntington Harbor. This section is also responsible for the maintenance of all beach related vehicles and boats, parking meter collection and maintenance, Pier and Pier Plaza maintenance and minor maintenance of the Main Street Promenade Parking structure. A. . MISSION STATEMENT AND GOALS Mission Statement According to the 2001 Huntington Beach Strategic Plan, the City is to "Maintain safe and clean beaches, waterways, and coastal ocean waters." The Beach Maintenance Section is the operating section for achieving this. Goals ♦ Increase parking meter revenues in budget year 2003/2004 by $20,000. ♦ Provide a safe, healthy, and attractive beach and pier environment for 9 million annual visitors, and assists the City in becoming a destination attraction. ♦ Aid in protecting our wild and marine life. ♦ Attract visitors to downtown shopping corridor. B. ORGANIZATION AND FUNCTIONS This section is comprised of 12 full time employees (1 current vacancy, mechanic), which includes 2 crew leaders, 2 equipment operators, 2 maintenance workers, 2 parking meter attendants, 1 equipment maintenance specialist, 1 mechanic, 1 construction maintenance worker, and 1 supervisor, and approximately 30 recurrent employees. Within this section, the supervisor allocates his/her supervisory time as follows: ♦ 45% - Beach Maintenance ♦ 15% - Parking Meters ♦ 15% - Vehicle Maintenance ♦ 15% - Building Maintenance ♦ 10% - Harbor Waterways VI-1 01TAR MOM 76. K Beach Maintenance The maintenance of the beach includes mechanized collection, hand picking of trash on all surface areas where equipment cannot reach, blowing the sand off sidewalks and stairs, raking and sanitizing the beach, disc beach (as needed), sweep all parking lots, dig fire rings, and remove sand off showers. This also includes the cleaning and washing of all public restrooms, sweeping the beach service road, steam cleaning or hosing down pier and parking structure, and dumping all trash cans. Parking Meters Employees assigned to parking meter maintenance and collection are responsible for the over 1,700 parking meters and 7 parking machines. This involves the collection of revenues and transportation thereof to the City Treasurer's Office, along with the parking machine audit tapes, repairing the non-functioning parking meters, maintaining the parking meters, establish working relationships with other City departments, responding to customer needs, and other duties. In budget year 2001/2002, the section will be replacing 125 parking meters due to corrosion and timer malfunction. In 2000/2001, $824 in revenue was generated per meter. For 2001/2002, $942 is the budgeted revenue for each parking meter, and for 2002/2003, $1,059 is the revenue estimate per meter. The following table represents the revenues (in dollars) collected from the parking operations from the Fiscal Year 1997/1998 — 2000/2001: 1997/1998 1998/19991999/2000 2000/2001 -yr % Increase Parking Zones Recreation 380,057 518,269 676,204 527,773 39% Beach Blvd 13,985 11,138 11,439 5,850 -42% Residential 189,527 246,035 343,938 371,279 96% Business 356,715 327,766 433,923 525,860 47% Pier. Plaza 177,365 294,389 415,468 491,898 277% Total 1;117,649 1,397,598 1,880,972 1,922,660 72% Overall, the parking operation revenues collected have increased by over 72 percent from FY 97/98 — FY 00/01. Parking meter staff estimates an average annual increase of $200,000 over the last 4 years and expects an increase to continue through the current fiscal year. Vehicle Maintenance (Fleet Management) Mechanics are principally responsible for maintaining the beach maintenance and lifeguard vehicles and equipment, responding to damage reports in a timely manner, keeping all maintenance and repair records and data for all equipment, and working with other departments and divisions on special projects. VI-2 f IM tr Approximately 75 pieces of rolling stock are included in this section, including 39 vehicles. Building Maintenance (Pier Maintenance) This includes sanitizing the restrooms, dumping trashcans, steam cleaning and washing down the pier decking, and maintaining the pier buildings. Approximately 615,000 visitors are expected at the pier annually. C. FINDINGS AND OBSERVATIONS Overall, there is a strong "family -oriented" element involved in the services delivered by the staff of the Beach Maintenance Section, meaning that each staff member knows what they should do, and does it, in order to work together to deliver services. The "pride" and "entrepreneurial spirit" that is seen among the staff is the main impetus of why and how responsibilities are fulfilled. Sentiment exists that the reason this section sees their resources (i.e., staffing) remain stagnant as the demand for services is increasing, is that they will "do whatever it takes to get the job done." Though this work ethic is admirable, it will begin to take a toll on the morale and satisfaction of the staff if they are not able to meet their high, yet informal standards because of the increased demand and relatively finite resources to meet that demand level. This potentially could harm the effectiveness and efficiency of future services delivered. Staffing The full time staffing level for the beach maintenance crew seems to be adequate for the current level of service the section is providing. However, there is indication that staffing is inadequate for both equipment repair and maintenance and for the parking meter operation, as discussed in the following paragraphs. Short staffing for equipment repair and maintenance is evidenced by staff complaints indicating that equipment repairs are not happening in a timely manner. For the last year and a half, the section has been operating a `one-man shop,' with only 1 full time mechanic and a recurrent. This lack of staffing resulted in a reduction of regular preventive maintenance of all equipment, and complete elimination of regular documentation and record keeping for what services are being provided. During the last 4 years since 1998, the number of parking meters has. increased by over 200 and the number of parking machines has increased by 6. Prior to 1998, collections of the parking meters and machines occurred 2 to 3 times during the regular workweek. Today, parking meter staff engage in collections 4 to 5 times per week, including weekends and holidays in order to keep up with service demands. The staffing has, however, remained the same: 2 full time employees and 2 recurrent employees. As a result, regular maintenance of the parking meters and machines is not occurring, and record keeping of equipment repairs has become non- existent. With the workload increased, meter maintenance and collection is dependent upon full staffing. As a result, on occasion the parking meter attendants have asked meter enforcement personnel and police officers to not give tickets in a `certain area' because he/she cannot get to the meters for timely emptying or repairing. This results in visitors/cars parking free and in decreased VI-3 ~ • � . . cn5911 AMEN uc revenues as well as public complaints if the visitor is given a ticket (i.e. "meter not working, so why ticketed? etc.). Managerial Planning, Direction and Reporting The beach maintenance crew is not micro -managed by the supervisor. Each crewmember takes it upon themselves to do a good job and be `proud' of their work, thus working as effectively and efficiently as possible, within the resources available to them. Further, much flexibility is given by the supervisors to allow the staff members to take `ownership' over their responsibilities, and thus over the beach. Workload According to City documents, the 9 restroom buildings are completely sanitized daily with a follow-up day crew in the peak season to visually inspect and address any major concerns. The beach is raked and deep screened daily during the peak season, and 1 to 3 times per week during the non -peak season. The trashcans are dumped daily, and the pier decking is steam cleaned and washed down 4-5 times per week year around. According to section documents, the following duties are performed daily or more than 3 times a week year round: ♦ Clean and wash down all beach restrooms. ♦ Sweep beach service road with kick broom. ♦ Steam clean or hose down pier and parking structure. Dump all trashcans. The following duties are performed daily during peak season and as needed during the off- season: ♦ Hand picks trash on all hard surfaces and areas where equipment cannot clean. ♦ Blow sand off sidewalks and stairs. ♦ Rake and sanitize beach. ♦ Disc beach. ♦ Sweep all parking lots. ♦ Dig fire rings. ♦ Remove sand off showers. These beach maintenance standards are very general, in that they do not indicate the level of detail that could document performance standards and operations, resource allocation, adequate levels of stock and materials, etc. All of this is necessary for projecting workload and future staffing and clearly communicating the service level consequences of alternative staffing levels as beach use increases. With these general standards, beach maintenance service levels are based on the workers' own judgment regarding what is adequate beach cleanliness. This makes it difficult for policymakers to know the expected results of any staff level increase or decrease. Aside from the beach maintenance functions, the priority for vehicle and equipment repair is as follows: 1. Lifeguard rescue boats: 2. Lifeguard units. 3. Beach maintenance sweepers. 4. Beach maintenance trashcan dumping machines. 5. Beach maintenance rakes, sanitizers, and tractors. 6. Pickups and miscellaneous equipment. The mechanic uses this priority list as an overall guide for equipment repair. However, oftentimes there are competing priorities, and the mechanic will use a different type of prioritization process. For example, if the mechanic arrives at the shop to find 7 "damage reports" of equipment that all need immediate attention, he will communicate with the different staff members involved to obtain an understanding of priorities: When do you need it? How long can you go without it? From this, he will prioritize the work. Communications The section may be unprepared for the City special/specific events that occur which increase service demand. Staff have indicated that in the past they have not been informed of when these events are going to take place, therefore rendering them ill -prepared because extra staff was not scheduled and resources were not adequately deployed. Operational Efficiency and Effectiveness/Service Delivery Systems For the beach maintenance, parking meter, and mechanic operations, services are being provided on an "ad hoc" basis, meaning services are being rendered in a reactionary way. For example, the "band -aid" approach is being utilized for the cleanliness of the beach: The raking and sanitizing is not happening as much as the work schedule reflects, with only the high priority `sections' of the beach receiving attention on an as -needed basis. In addition, the equipment .and parking meters are not being regularly maintained, but rather only `fixed when broken.' Currently, this system may be `working' and providing a perceived adequate service level in the sense that City revenues are continuing to grow, residents and visitors continue to visit the beaches, and complaints seemingly are relatively minimal. However, with the lack of formal policies and procedures for most of the operations and the _ lack of measurable operational/performance standards, the `band -aid' approach may potentially harm the Department's abilities to provide overall quality services when service. demands increase. The Department must be able to document the services they provide "now," in order to establish a standard baseline of services for future resource and service allocation decisions. Facilities This section will be moving to a new facility. There are not any major concerns about this re- location. While there will be additional storage and a more modern facility, there do not appear VI-5 (IMI M anon. u: to be any significant process improvements or detriments that are likely to arise at the new facility. Effectiveness and Appropriateness of Procedures and Processes The reduced utilization of recurrent employees for revenue collection in regards to the parking meters is desirable. Staff has properly expressed concern that recurrent staff should only be involved with meter maintenance, cleaning, removing graffiti, etc. and not the handling of monies, leading to tighter and stricter security for the collection, transportation, and accounting of parking meter revenue. Impending Issues Already, the Beach Maintenance Section has been experiencing an overall increase in the demand for their services as indicated by the increase in parking revenues as a result of increasing visitors. The current construction of the Hyatt Regency Huntington Beach Resort and Spa and its pending opening will result in thousands more visitors to the area, leading to an even higher demand for services, due to increased parking, beach use, traffic, and use of public facilities. There is growing concern that because of their stagnant resource level (i.e. staffing), the section will not be able to `keep up' with service demand, thus unable to meet their own quality and performance standards regarding the cleanliness of the `entire' beach and surrounding areas. D. RECOMMENDATIONS Recommendation No. VI-1: Develop baseline performance standards for beach and restroom cleanliness and produce a standard policies and procedures manual for beach maintenance operations. There is a growing concern among staff that this section is continually asked to do more with less. For example, the addition of the coming attractions will put a greater demand on current services, while the future increase of resources (i.e. staffing, etc.) to meet those higher demands are not being budgeted. Moreover, the raking and sanitizing of the beach . is currently not happening as often as said in City documents. The regular raking and sanitizing is only happening on `sections' of the beach, typically the high.utilized areas, and the rest of the beach is cleaned on an `as needed' basis. The lack of formal baseline performance standards (the level of service that can be documented for which beach maintenance performance can be quantitatively and qualitatively measured) lends to the subjectivity, or judgment, on the staff s part that dictates what parts of the beach operation responsibilities are completed and what are not. The section must be able to document what their baseline for performance standards are in order to document what services will occur, or not occur, as a result of higher demand. Thus, the section will have the ability to explain what the consequences may be of not increasing their resources, when asked to increase their service provisions. In other words, the development of performance standards of maintenance and operations will document what is happening "right- VI-6 M.u: now," and what will not happen if demand increases without an increased investment in section resources. As mentioned earlier — the City is to "Maintain safe and clean beaches, waterways, and coastal ocean waters." The Beach Maintenance Section is the key operating section for achieving this. This recommendation will help the City and Department develop a standard for what is `safe and clean' and establish a baseline for the allocation of sufficient resources towards achieving "...safe and clean beaches, waterways, and coastal ocean waters." Recommendation No. VI-2: Establish a record keeping and documentation log for parking meter repair and maintenance for operating efficiency and effectiveness, and possibly for increased staffing justification. The goal of this section is to increase revenues by $20,000 by upgrading equipment and providing immediate servicing of broken or full parking meters. The issue here is that broken meters and/or meters that are full of monies, are temporarily unable to collect revenues for the City, causing a loss in revenue. One way for the section to justify increasing resources (i.e. staffing) to meet the increasing service demands; is to keep accurate records to document the possible revenue losses if and when meters are temporarily out of service. This documentation, and subsequent establishment of baseline standards, will allow the section to demonstrate the consequences of not being able to service/maintain and or collect monies from the parking meters in a timely manner. Accurate record keeping of the number of meters that are non-functional at any given time and the documentation of how long it takes before the meter is emptied or repaired will give a more accurate picture of the problem, as relates to revenue loss. From this, a cost benefit analysis can take place to analyze the revenue loss to the City versus purchasing newer and better equipment or hiring more staff. Recommendation No. VI-3: Document equipment repairs and maintenance in orderly records and logs. For the last year and a half, the section has been operating a `one-man shop,' with only 1 full time mechanic and a 1.5 days/week recurrent. This staffing structure resulted in a reduction of regular preventive maintenance of all equipment, and complete elimination of regular documentation and record keeping for what services are being provided. Documenting equipment repairs and maintenance will allow the section to better track the repairs that are undergone for all fleet equipment. This record keeping could be used to track costs associated with different equipment and document the service history for repair efficiency and effectiveness. In the past, the mechanics had the time to keep up with the paperwork, but with the increase in service demand and the stagnant resources, the record keeping has ceased. Accurate record keeping and documentation that associates costs with the repairs being done could help the section justify either purchasing newer equipment as to avoid the repair costs or hiring another full time mechanic. Essentially, this record keeping along with the later recommendation of developing an equipment life expectancy list, will allow for cost -benefit analyses for future resource decisions. VI-7 crrrren au�:c�iF�. uc Recommendation No. VI4: Fill the vacant mechanic position. Short staffing for equipment repair and maintenance is evidenced by staff complaints indicating that equipment repairs are not happening in a timely manner. For the last year and a half, the section has been operating a `one-man shop,' with only 1 full time mechanic and a recurrent. The current and .continued staffing for the equipment and repair operations of 1 mechanic has resulted in repairs for equipment backing up and equipment maintenance suffering. In addition, the current mechanic averages 20-30 hours/week of overtime during peak -seasons because of the workload needs. The vacant mechanic position will lead to high costs for the City for vehicle and equipment replacement if preventive maintenance is not occurring and will also lead to decreased efficiency and effectiveness of beach operations due to broken equipment that is "sitting." Moreover, as visitation to the City increases, the quantity of equipment, and the `wear and tear' of that equipment, will further demand the services of the mechanics, creating an even bigger workload and service issue. In addition, service continuity will suffer if the 1 mechanic became ill or decided to take a vacation. Filling the existing mechanic vacancy will allow the section to keep up to date with the preventive maintenance of equipment and the timely repairs of broken equipment, thus protecting the City from vehicle and replacement costs and beach operations service deficiencies. In addition, the mechanics will be able to begin record keeping of repairs and maintenance, as discussed in the previous recommendation. If the City is not able to fill this vacant position, then some alternatives such as contract services or utilizing other City maintenance personnel and. facilities should be explored. Recommendation No. VI-5: Conduct an analysis of the equipment maintenance program and cost effectiveness of preventive maintenance: to include the development of a life expectancy and replacement cost list for all Beach Maintenance Section equipment. The section does not have a comprehensive equipment list that details life expectancy and the associated costs for repair, maintenance, and replacement of all the rolling stock and other equipment used to meet the section's responsibilities. This type of list will allow the section to measure and plan for the costs that will be incurred for all of the. equipment over a number of years as relates to their repair, maintenance, and replacement. Further, a list of this nature can be used as a document to show the potential costs associated with lack of maintenance, over -utilization, etc. In developing a life expectancy and replacement cost list, the section will have the ability to further justify increased budget resources (i.e. for increased staffing) amidst increasing service demands (i.e. "wear and tear" of equipment). Furthermore, the section will be able to analyze the costibenefits of either replacing equipment sooner than expected because of a lack of preventive maintenance vs. hiring an additional mechanic to keep a regular maintenance schedule, thus increasing the life expectancy of the section's equipment. VI-8 VII. PARKING/CAMPING SECTION SECTION OVERALL This section of the Community Services Department is responsible for the management and operations of the Downtown Parking Structure (Main Promenade), the Pier Plaza parking, and the beach parking lots, as well as overseeing the Municipal Parking Pass Program. This section is also responsible for managing the Sunset Vista RV Camping Facility. This year-round operation manages the over 2,400 parking spaces in the City, which includes maintenance, as well as the collection and accounting of revenues generated from visitor parking. A. MISSION STATEMENT AND GOALS Mission Statement There is no published Mission Statement or Goals for this. section. B. ORGANIZATION AND FUNCTIONS This section is comprised of 4 full time employees, which includes 2 crew leaders (1 being the designated `Supervisor', the other acting as the supervisor during his/her respective shift) and 2 lead workers. Overall, the full time employees are responsible for the accounting and recording of revenues, overseeing shift changes by recurrent employees, addressing citizen/customer complaints, and other unexpected events. This section utilizes over 60 seasonal, or recurrent, employees for parking attending duties and functions. The following table summarizes the section's revenues (in dollars) for the fiscal year 1997/1998 — 2000/2001: 1997/1998 1998/1999 1999/2000 2000/2001 4-yr % Increase 2001/2002 Parking Lots Beach 1,423,491 1,317,788 1,404,487 892,492* -37% 344,282 Pier Plaza - 504,347 673,916 746,557 1 48% (3-yr) 184,762 Structure 500,781 514,232 647,367 866,938 73% 369,340 Sunset Vista Camping 76,170 F1,391 56,625 49,284 -35% 67,717 This represents an average percentage increase of over 12 percent from FY 97/98 00/01. The data for the current fiscal year 2001/2002 is for the first 6 months. The section staff estimates that this year will see an increase in revenues from last year. * This reduction in parking revenues at the Beach lots was due to the closure for construction and repair of all parking spaces (approximately 1,400 spaces) and public facilities from Huntington Street to Beach Blvd. This closure lasted from June 1, 2000 until June 8, 2002. VII-1 G W I Wo. I[S. 4: Supervisor (crew -leaders) This position assigns and leads staff in customer service, parking revenue collection and reporting, maintenance and repair of parking meters, parking machines and related equipment. This position also supervises the recurrent parking attendants. The supervising crew leader runs the daily operations of the section for 4 days during the week, the other crew leader for 3 days. Lead -worker This position includes assisting the supervisor with the overall operations of the camping and parking facilities. Break Person (recurrent) This position incorporates two main objectives — to assist supervising recurrent employees and to keep the section supervisor informed of all situations during each shift change of recurrent employees. Another responsibility is to cover break times for the parking attendants' 15-minute breaks and 30-minute lunch during each eight -hour shift. Parking Attendants (recurrent) This position staffs the parking booths and collects monies from visitors at the parking operations. The attendants keep records of the number of autos entering the City's parking operations and answer questions from the public. C. FINDINGS AND OBSERVATIONS Staffing Currently, 1 supervising crew leader oversees the overall operations for 4 (four) days of the week (Tuesday thru Friday), while the other crew leader acts as on -site supervisor for 3 (three) days of the week (Saturday thru Monday). Along with the two crew leaders, the two lead -workers oversee the recurrent employees who perform mainly parking attendant duties. The 4 full time employees are on a 4-10 schedule, working 4 days per week at 10 hours per day. Up until May 2002, the section was performing with 1 supervisor and 3 lead -workers when the Department approved a reclassification of 1 lead -lead worker to a crew leader. This allowed a designated supervisor to be on -site when the overall supervisor was not on shift. Structure The 1,000-hour limit policy for recurrent employees has caused some problems for the section, which utilizes up to 60 of these types of employees. Scheduling of the recurrents poses challenges because of the shifting availability of when recurrents are available to work (most of the recurrent employees are students). Moreover, the 1,000-hour limit causes the release of trained employees when the limit is reached, thus straining the full time employees to train new recurrents. VII-2 cr=1 fl4:� 5, uc Workload The busiest times for this section are the weekends and when special/specific events occur. According to a 4/11/01 Memorandum to the Department's Directorate from the section supervisor, one more full-time employee will bring the section up to the `minimal' standards for auditing, training, traffic control, enforcement of parking infractions and other supervisory duties. Currently, the training and auditing of recurrent employees is not occurring on a regular and consistent basis. Communications Currently, there is no regular time in which section staff meetings take place. This staff meeting should occur every Friday, given the nature of the staffing structure and employee scheduling. These meetings could be used as training sessions, to communicate any changes, to keep up with City and Departmental -wide policy issues, and to overall improve the communications within the section. Operational Efficiency and Effectiveness For the camping operation, reservations and scheduling is done manually with a `reservation book' located at the camping booth. Currently, there does not exist a centralized computerized scheduling system, lending itself to human errors with reservations because of double booking, due to recurrent employees failing to `write in' the dates, etc. This computerized system will also hold the data of regular campers, so their information will already be in the system. With the current manual system, recurrent staff must fill out paperwork to include the camper's address, phone number, etc. Since many campers are annual visitors, a computer system will already hold their information. Customer Service The customers of this section are all the visitors who utilize any public parking lot or structure. One way the section can measure its effectiveness at meeting customer needs are the number and types of complaints. Currently, any complaints made by the public are not being documented to include the nature of the complaint and time it was made, although complaint forms are available and processed up to the Director of the Department. Documenting public complaints in a formal log book type arrangement, whether they are oral or written complaints, would give the section a better idea of what issues need improving so as to improve future services rendered by this section and its employees. For the camping operation, there have been problems with the inconsistency of information given to the public (i.e. hours of operation, etc.) This arises when different recurrent employees give different answers to public inquiries. When the policies are set (i.e. hours and days of operation, etc.), they must be clearly communicated to all employees in order to bring consistency to the addressing of public inquiries. Typically, the camping operation is operational from November to April. VII-3 LE[TGlfif Qi3°C9TiS. L{ Effectiveness and Appropriateness of Procedures and Processes The `breaking -down' of money from the parking booth cash registers (collecting money from the booth to limit the cash on hand) occurs when the register is `getting full.' During the day, the recurrent Break Person will keep `close tabs' on the amount of money that is accumulating at each gate and inform the section supervisor of any gates that needs to be `broken down.' As a result, the section supervisor will break down the cash on hand at the gates periodically throughout the day. The section's collection procedures indicate that the parking booths begin the shift with a $200 bank, but there is no formal dollar amount that specifies when cash needs to be broken down from the booth. The section supervisor estimates that the collection of monies from the parking booths occurs approximately 3-4 times/day on `busy days', and 1/day during weekdays. The supervisor also estimates that each `break -down' (the time when the full time employee collects the money from the booth) has roughly $1,000. Impending Issues This section has evolved from a seasonal (i.e., high demand peak times) to a year-round, 7-day per week, operation. The increasing demand on their services, coupled with the relatively stagnant full time employee staffing, has caused a lessening of ongoing `auditory control' of recurrent employees, meaning the parking attendants' booth receipts and cash handling is not being audited on a regular and consistent basis. The section's staff would like to increase their auditory control. (i.e., auditing of parking booth receipts, etc.) over the recurrent staff if they had the time to do so. The parking structure has experienced problems with graffiti, vandalism, and elevator repairs due to a lack of ongoing security. According to the section supervisor, the budget for security has been reduced, therefore virtually eliminating the implementation of security measures (i.e., contracting with private security firms). The costs for the `clean-up' and repair of damaged equipment may be high, therefore warranting further examination of the. costs -benefits of security expenditures. The section's full time employees would like to spend more time training recurrent employees on how to provide better customer service. If more customer service training occurred, the possibility of customer complaints could be reduced. Already, the section. has seen an increase in service demand and delivery due to the City evolving into a `destination' and a year-round, 7 days per week operation. The opening of the Conference Center is a growing concern for the section in that it will increase workload even further. The Hotel will result in an even higher increase in service demand due to visitors utilizing the City's parking structures.and Beach parking lots. D. RECOMMENDATIONS Recommendation No. VII-1: Define the section's minimal standards for the auditing and training of recurrent parking attendants. VII-4 (SMS 94S°CtflL1, Uc Citygate observed. through staff interviews that the common theme among the full-time staff was their inability to properly audit and train the recurrent parking attendant employees on a regular and consistent basis. According to a staff memorandum sent to the Department's Director dated April 11, 2001: "An additional lead -worker position is urgently needed to bring us up to minimal standards with regards to audits, training, traffic control, enforcement of parking infractions and supervisions. The staff argues that because of the stagnant staffing of 4 full-time employees, coupled with the City's increase in service demand, regular and ongoing auditing and training of recurrent parking attendants is suffering. However, without the minimal standards to give the section an idea of what auditing and training must take place, it will be difficult for the section to document, and justify, the need for more staffing, even though they have seen an increase in service demands since the April 2001 memorandum. Over the past few years, the City has evolved into a destination spot, in which operations are open 7 days/week, all year round. Add to this the pending arrival of the Conference Center; the even higher increase in service demand is imminent. The definition and documentation of minimal standards for auditing and training recurrent parking attendants will assist in maintaining the section's operations as they experience increasing service demands. Moreover, a regular and ongoing auditing system and the establishment of minimum training requirements for recurrent parking attendants will help ensure accurate parking revenue collections and reporting. Recommendation No. VII-2: Implement security measures at the parking structure and parking booths for the parking attendants and the cash collection. The overall safety and security of the -parking attendants and of the cash collected during parking operations is a key issue for the section. Citygate observed concern among the staff that the typically young parking attendants are vulnerable to crime and therefore a potential victim of robbery or assault. Already, the Main Promenade Parking Structure has experienced problems with graffiti and vandalism, and as a result, the City spends resources for clean up and repair. Fortunately, with the exception of a few verbal incidents, parking attendant staff and the cash collection operations has not been victimized by crime. According to the section supervisor, the budget for security was significantly reduced and the section is unable to contract out security services with a private firm. Instead, the supervisor has had conversations with the Police Department to increase their patrols near and around the parking structure to establish a security presence. We could not document whether this increased presence by the Police Department is taking place. The Main Promenade Parking Structure has security cameras and attendant booths have a panic button that goes to the Police Department, but this is not an adequate security arrangement, given the exposure of the parking attendants. The security of the all the parking operations poses many issues, with the most significant being the safety and security of the parking attendants. Another issue is the potential loss to the City due to both theft and the expending of resources for clean up and repair of City property and equipment due to graffiti and vandalism. VII-5 01NM a%:�r� U-11 The implementation of proper security measures for the parking operations, which includes the parking structure, all the parking booths, the cash collection and storage, etc. will help act as a deterrent to would be deviants who may commit a crime against City employees and/or property. Recommendation No. VII-3: Identify the appropriate dollar amount that dictates when money is broken down from parking booths and include that in the section's collection procedures. The section's collection procedures indicate that parking booths begin the shift with a $200 bank, but there is no dollar amount specified in the collection procedures that indicate exactly when the recurrent Break Person must inform the section supervisor that monies need to be collected. Currently, it is documented that the Break Person is supposed to keep `close tabs' and inform the section supervisor of money that is accumulating at each gate and when money needs to be broken down. Identifying the appropriate dollar amount for breakdown will further standardize the process for cash collection, thus reducing the subjectivity (i.e. keeping `close tabs') on the part of the recurrent Break Person of when the cash register is "full." The further standardization will also lend itself to a more accurate and proper audit system by reducing the control that the recurrent Break Person has over when money is collected. Recommendation No. VII-4: Conduct formal weekly or bi-weekly section staff meetings. Citygate observed through staff interviews that section staff meetings were seldom and not regularly taking place. For instance, the recurrent staff member interviewed for this project expressed that `inconsistency of information' is given to the public due to different employees giving conflicting information (i.e. hours of operation for camping and/or beach parking lots, etc.) due to a lack of regular communication between the full-time staff and the recurrent employees. Given the nature of the section operations, staffing structure and employee scheduling, regular staff meetings should occur the day when both crew leaders are on site (which currently is on Fridays). Staff meetings can enhance the sections operations in regards to overall communicating of new and changing section and Departmental policies, overall consistency of information given to the public, and regular staff meetings can also be. used for ongoing training. Recommendation No. VII-5: Implement computerized scheduling and tracking system for camping operations for reservations and data keeping. Currently there does not exist a central computerized scheduling and tracking system that stores camper data and keeps accurate scheduling. The section staff has indicated that `human errors' for reservations and scheduling occur due to the way the camping operation is handled, with the recurrent employees manually inputting camper data, including dates and times of reservations. The implementation of a computerized scheduling and tracking system will both streamline the way in which the camping section operates and increase the data accuracy of camper reservation VII-6 trr t s:r^^s. uc information. A consistent system that stores camper data from year to year and accurately schedules camping times will increase customer service and enhance the efficiency and effectiveness of the operation. Recommendation No. VII-6: Document public complaints to include the nature of the complaint and time of occurrence. Currently,. any public complaints that relate to the parking and camping functions are not being documented to .include the nature of the complaint and the time it was made. Documenting public complaints is one way that will enable the section to not only measure its effectiveness at meeting customer needs, but more importantly give the section a better idea of what issues exist that need improving. This will identify problems areas for which the section can improve future services through either enhanced training of recurrent parking attendants and/or the improvement of the section's policies. Recommendation No. VII-7: Analyze the costs/benefits of contracting out the parking and camping functions to the private sector. As discussed in this chapter, the main issues of the Parking/Camping Section revolve around the use of recurrent workers, and their subsequent financial auditing, security and training. While it might not be less expensive to contract out these functions to the private sector, the restraints on training, auditing, and security might be more easily dealt with by a private contractor unencumbered by some of the public employment restrictions. Discussions should be had with potential private operators to determine if there are significant operational advantages to contracting out all or a portion of the parking and camping functions. VII-7 � • • . CEE01t ISO". as. LV. VIII. PARK SURVEILLANCE / NATURE CENTER SECTION OVERALL The City of Huntington Beach Park Surveillance/Nature Center section provides enforcement and emergency services for the 350-acre Huntington Central Park. In addition, it operates the Nature Center programs, and supervises the numerous programs and facilities in Central Park to provide assistance to the park users and conformance to park rules and regulations. A "Friends" group is being developed for the Nature Center to provide volunteers. There are an estimated 650,000 visitors annually at the park. A. MISSION STATEMENT AND GOALS Mission Statement There is no published mission statement for this section, although the "Friends" group has developed a mission statement that reads: "The mission of the Shipley Nature Center is to provide a location for people to gain a greater appreciation and knowledge of nature within an urban environment. A small natural history museum and nature trails offer interpretive programs providing environmental education for schools, community groups, and the general public. " Goals There are no published goals for this section. The 2001 Huntington Beach Strategic Plan has established eight Strategic Issues. The Nature Center is guided most specifically by the following goals and priorities: The Public Safety goal to "Maintain a healthy and safe community" and its priority to: "Provide quality police services with the highest professional standards. " The Fiscal Integrity goal to "Establish a sound financial foundation based on expenditure controls that ensure the economic provision of services and reliable revenues sufficient to pay for city services" and its priorities to: "Manage overall finances with the philosophy that ongoing revenues pay for ongoing costs. " "Create means for programs as self supporting as feasible. " The Enrichment, Communication, & Involvement goal to "Ensure that Huntington Beach's local government is open, accessible, responsive, nurturing, and respectful to all the citizens it serves" and its priority to: "Continue to provide diverse educational, cultural, and recreational opportunities for all citizens. " VIII-1 (flm-tM11M s. R The Environment & Natural Resources goal to "Enhance the community's environmental quality and maintain its unique natural resources" and its priority to: "Support the preservation and restoration of wetlands and operation of nature interpretive centers. " There are no published goals and specific objectives for the section. Such goals and specific objectives need to be identified and adopted in order for the section to develop work plans to guide their daily operations. The work plan can then be scheduled and staffed in a time frame that can be monitored for effective completion. B. ORGANIZATION AND FUNCTIONS This section organizationally falls under the Marine Safety Division of the Community Services Department and is staffed with one Permanent Park Ranger and three seasonal Recurrent Park Rangers. Park Surveillance The Park Rangers provide enforcement and emergency services for the Huntington Central Park. They maintain public safety with frequent patrols throughout the park to assure that all park ordinances are obeyed and any special permits are honored and regulated. There are about 6,000 enforcement actions/citations and about 130 reservations/special events per year. The Rangers also provide between 50 and 60 medical aids in the same time. Programs and Facilities Central Park provides a number of programs and facilities for a wide variety of uses. They include the following: Huntington Central Park (HCP) is the City's largest park. It provides many areas for a quiet retreat from the usual city turmoil. A sense of serenity is felt as one strolls amidst the trees, expansive lawns, placid lakes, and observes a variety of bird life. Additionally, the park has picnic tables, barbecues, restrooms, four playgrounds, and six miles of paved trails with several miles of additional dirt paths. An 18-acre nature center is located in the park. It consists of a variety of habitats frequented by many birds and other native wildlife. A great variety of plant life can be found there, including many edible varieties. A 1/2-mile self -guided nature trail (booklet provided) meanders among forests, grasslands, and a freshwater wetland. Group tours are provided by appointment and about 8,000 persons participate in these tours annually. Center hours are 9-5 daily. A visitor's center is also located in the nature center. There are no set hours for the visitor's center, although it is open several hours every day. The Department plans to begin the development of a Master plan for this facility in cooperation with a new "Friends" group. A small, rustic amphitheater is available for group reservations. It seats approximately 200 people and includes wooden benches, a stage, and electricity. Popular activities are weddings and youth group activities. No bands or amplification are permitted. Fees are charged for the use of this facility. top, 11 VIII-2 Lti a" 184, i1C An exercise trail, made by Playworld Systems, provides 18 exercise stations spaced over a 1.2- mile loop. The course begins and ends at the parking lot on the east side of Golden West St. at the Park Bench Cafe. Organized youth groups are permitted to camp in a portion of the park. A $2 per person per night fee is charged and a security officer is required to be with the group through the night. Only tent camping is permitted. A written permit must . be obtained at least two weeks in advance. No individual camping is permitted. A 45-acre sports complex is being built in the park. The $18 million project will include eight softball fields overlaid with seven soccer fields, two 1,700-square-foot concession and restroom buildings, a 900-square-foot maintenance building, two playgrounds and 858 parking spaces. An 18-hole disc golf course is available in the park. You play it just like golf except a Frisbee must be tossed into a basket. This is an activity for the whole family. A $1 fee is charged to play if 15 or older. There is a small clubhouse, which sells disks, drinks, snacks, and other items. Adventure playground provides a wonderful playing experience for children ages 6 to 12 years. Children can raft on a small pond, navigate a rope bridge, use a cable slide, go down a mudslide, and build forts. It is only open in the summer. Adult supervision. is provided and a small fee is charged. Science Adventures brings four weeklong summer camps to Huntington Central Park for children in grades K - 6. Themes include Space and Rocketry; X-trme Science; Wings & Flying Things; and Fabulous Physics. Children are grouped according to age and instructors tailor the lessons accordingly. Children are introduced to thematic science concepts in natural surroundings as they build projects, conduct experiments, and play science -oriented games. The program runs for 11 weeks during the summer One group picnic shelter is available for reservations. It seats 200 people and includes 11 tables (16 ft. long), 8 barbecues, 4 sinks, and electricity in a covered area. A $400 fee is charged including a $200 cleaning deposit, which is refunded if left clean. Nearby are restrooms, playgrounds, horseshoe pits, and volleyball standards Destination Science Summer Day Camps are exciting, hands-on, learning programs taught by mature, educated, professional teachers. The camps revolve around central science themes such as Technology, Physics and Space, the whole time building on all the science disciplines as determined by the National Science Education Standards. The unique approach to learning emphasizes critical thinking through creative problem solving. Destination Science has three weeklong summer camps in Huntington Central Park. Themes include: Raging wet reaction lab, rocket science mania, and techno fun 2001. A 25-acre facility offers boarding for 400+ horses and operates a full time riding school. All phases of riding are taught, from beginning through advanced. Group rates and rentals are available The main city library has a variety of materials and resources. The library includes a wide selection of books, magazines, pamphlets, videotapes, compact disks, books on cassette, and computer rental time. A special children's section offers story hours and other programs. Reference has computerized indexes to assist in resumes, careers, and business opportunities as well as the Orange. County Register on CD. Meeting rooms are available for rental to groups for IN VIII-3 (IMM IBM.15. uc meetings, receptions, and luncheons. A 320 seat theater, currently used by the Huntington Beach Playhouse, features plays, musical events and children's programs Other events, such as dog shows, cross country runs, walk-a-thons, weddings, car shows, day camps, etc. can be held in the park. C. FINDINGS AND OBSERVATIONS Staffing The Permanent Park Ranger has been an employee of -the City for over 25 years and the City benefits greatly from his experience and expertise. Three of the Park Rangers are Recurrent Employees, which means that they are limited to 1,000 hours of work per year. This results in difficulty in retaining employees as discussed in the front of this report. Additional staff will need to be considered as new facilities are developed in Central Park and the number of users increases. This is especially important with the sports complex where there will be a need to enforce the City rules (such as those related to drinking alcoholic beverages). Structure The organizational structure is simple and effective. Since the Park Ranger reports to the Marine Safety Division, and since the Marine Safety management have higher priority issues to deal with than Central Park, there is minimal supervision or managerial involvement with the Central Park operations. It may be beneficial to reassign the Park Ranger to the Recreation Division where it will have more in common on an operational level. Managerial Planning, Direction and Reporting There are no work plans that can be used to measure the productivity of the staff. There is minimal direction and reporting except for enforcement issues. Workload The Park Rangers are responsible for all of the supervision of the park and all of its users in addition to developing all of the programs, displays and the web site. The staff hours was reduced in recent years, which resulted in fewer hours for the Nature Center. A determination on the minimal staff needed to adequately protect the park resources should be done so they can be preserved. This will become critical when the sports complex opens. Communications, Operational Efficiency and Effectiveness, and Customer Service Major projects are scheduled by Public Works, and there sometimes is a conflict with the programs and facility uses. Greater coordination between the departments could reduce these conflicts. In addition, the involvement of the Park Rangers in facility planning would be beneficial. VIII-4 Facilities The facilities are maintained by Public Works, which does a good job. They are also responsive to the requests from the Park Rangers. Policies and Procedures Permits for some facilities are issued at the Marine Safety Headquarters at the beach. This is not the most convenient for the users and also places this additional task on the Marine Safety staff. A more desirable location could be the Community Services office in City Hall. Policies often change back and forth without any involvement of the Park Rangers. Policies need to be formalized to create greater consistency in their implementation. Impending Issues The continued development of facilities in Central Park will increase the number of users and their impact on the park resources. Some of these resources are fragile and could be damaged and/or destroyed without proper supervision and control of the users. This translates into additional supervision when the user numbers increase. There are several alternatives to how this supervision can be implemented, so consideration should be given to planning for the time when the new facilities open. D. RECOMMENDATIONS Recommendation No. VIII-1: Develop a Mission Statement for the Park Surveillance and the Nature Center operations, along with a list of Goals and Specific Objectives to accomplish the Mission Statement, and a Work Plan to accomplish the Goals and Specific Objectives. The Mission Statement, Goals and Specific Objectives, and Work Plan are necessary to assist the staff in accomplishing what the citizens, the City Council and the Community Services Department want to have accomplished. Performance measures should also be established so all will know what is expected and the work efforts will be efficient and effective. Recommendation No. VIII-2: Evaluate the staffing needs for the changing requirements of the park facilities, and develop a staffing plan to accomplish those needs. With the development of the sports complex and other facilities in Central Park, the number of park users will significantly increase. This user increase will create new demands for services from staff, such as providing information and support services to users, monitoring facility use and increased park surveillance, and conducting Department programs like the Nature Center and Adventure Park. All of these duties are currently being performed by a Park Ranger, and some of them could be staffed by other classifications. Identification of the new staff needs should be anticipated and a staffing plan should be developed to provide the increased services with appropriate personnel. The 1,000-hour limit for recurrent positions (discussed in detail VIII-5 . . elsewhere in this report) has been a problem in the past and should be included in the new staffing plan. Recommendation No. VIII-3: Consider moving the Park Surveillance/Nature Center section from Marine Safety to the Recreation Division in the Department. The Park Rangers currently report to the Marine Safety Division, who also processes the permits for the use of Central Park facilities. The park operations and priorities are different from the Marine Safety operations, and the result is that the management involvement and support for the park operations is not as effective as it needs to be. Processing permits for the use of Central Park facilities at the Marine Safety Headquarters is less convenient for the applicants and takes a block of time that is needed by office staff to support Marine Safety. VIII-6 cr�;t a��rs, uc IX. RECREATION DIVISION DIVISION OVERALL The purpose of the Community Centers is to provide a focal point for citywide recreation programs and community gatherings for the residents of Huntington Beach. The Community Centers contain several meeting rooms of various capacities, and a game room for drop -in usage. The Center grounds include surrounding park area, tennis courts, racquetball courts (Edison only), basketball courts, sports fields, picnic shelters and tot play areas. Centers offer classes, sports, and seasonal programs. The City Gym and Pool, which was recently renovated, contains a gymnasium, pool, locker rooms, game room, meeting rooms and a kitchen. Each day about 100-300 people visit each center and about 350 classes are offered through the centers each session. Annually, about 318,000 people use Murdy and Edison Centers for activities and about 62,000 people use the centers for meetings or classes. A. MISSION STATEMENT AND GOALS There are no explicitly defined mission goal statements for the Recreation Division. The purpose of the program was described above and the various recreation services that the City provides to fulfill its purpose can be found under Organization and Functions. B. ORGANIZATION AND FUNCTIONS Staffing Recreation Community Centers and Youth Sports fall under the purview of the Deputy Director and are administered by the Senior Recreation Supervisor. Underneath the Senior are permanent staff at each of the community centers/gym including one Community Services Center Supervisor and one part-time Office Specialist. In addition, about 200 non -permanent, part-time staff also work on recreational activities for this unit as follows: Non -permanent Staff Number per Current Year Contract Instructors 80-90 Aquatics Instructors 40-50 Youth Sports 30 Community Centers 24 Adventure Playground 6 Day Camps 6 Total 186-206 IX-1 e (lion W7101 fill R.I. Part-time or recurrent employees that staff the centers and are involved with the aquatic program and youth camps are typically late high school to college -aged students. These students are in - charge of the center when the supervisor and assistant are off duty. Programs and Workload Instructional Classes: Instructional classes are offered at the centers. The mission is to provide a variety of classes to meet the needs of a diverse community and follow trends in popular activities. The program is aimed at providing opportunities for physical, mental, creative, and social experiences that enhance the quality of life for residents. Classes are geared towards preschoolers through senior citizens. .Youth Sports Program: The youth sports program is aimed at giving children aged 3-13 the opportunity to play flag football, volleyball, basketball, summer basketball and baseball/softball. The purpose of the leagues is to promote skill and physical development in an alternative environment to the more competitive orientated private youth sports programs. Activities are conducted at Murdy Park, Edison Park, .the City Gym, and local High Schools. There were 1,300 youths participating in the program last fiscal year. The program utilizes adult volunteers to coach the teams and City staff are involved with coaching the clinics for the very young children. Other Programs: Other programs that are administered by staff in this section include the following: ♦ Adventure Playground provides opportunity for youth to learn communication and teamwork by building forts and rafts. It is estimated that about 4,400 day camp attendees and 1,600 individual attendees visited the facility this year. ♦ Aquatics Program includes swimming instruction at the City Pool and High School year-round. Certified courses are offered for preschoolers through senior citizens. In 2000-01, there were 6,500 swim lesson participants and 15,000 recreational swim participants. ♦ Tennis program provides comprehensive instructional tennis classes for children and adults to develop skills. There were a total of 350 classes offered in 2000-01 and 1,432 students participating in this program. ♦ Day Camp program provides activities for children ages 6-12 during summer vacation. The program provides day care for children and activities include visits to parks, crafts, and sports. Seven one -week camps are offered during the summer. Camp participants equaled 440 for 2000-01. ♦ Special Events are available to the community to provide seasonal events for sharing common interests, developing a sense of community, and contributing to overall quality of life. - • IX-2 corgi n;cm uc Event 2000-01 Participation* Pier Swim Participants 138 Surf Contest 165 Distance Derby 975 Golf Tournament 100 Rose Parade Excursion 100 Gold Event 100+ Easter Egg Hunt About 4,000+ *Does not include participant accompaniments. C. FINDINGS AND OBSERVATIONS Staffing With the use of permanent and recurrent staff, all shifts are covered. However, the re -current 1000-hour rule does inhibit effective scheduling and therefore effective services. The City may need to try 30-hour weeks with partial retirement benefits in those areas that are in the most need. Another problem is the Community Services Center Supervisors' very expansive role that does not allow for effective, quality planning and managing of all programs. Each Supervisor performs the following duties: ♦ Supervises, coordinates, and oversees operations at a recreation center. ♦ Supervises special use facilities outside of the centers such as pool, ball fields, and tennis courts. ♦ Primary responsibility for coordinating, overseeing and evaluating recreation program classes. As a team, the supervisors develop a majority of the registration brochures each quarter for 175 classes. Each administers the registration process, including the collection of fees, for their center from about 1,500 students. Oversees other professional and support staff members, contractors and volunteers. Provides or supervises staff training and evaluation. Provides supervision to others assigned to assist in program or event production. ♦ Coordinates use of facilities for after-hours rentals. ♦ Oversees maintenance of recreation center facilities, amenities, custodial staff and equipment including swimming pools, ball fields, tennis, basketball and racquetball courts, and parking. Arranges for necessary repairs of facility. ♦ Some perform regular maintenance tasks .such as carpet cleaning in order to improve customer service. Others perform these kinds of tasks when the custodian is absent. IX-3 (ON tit arr cars. U ♦ Plans, organizes and implements citywide programs or specialty area programs. Each Supervisor runs two youth sports programs and one youth sport clinic except one leader that manages the entire aquatics program instead. Some supervisors conduct special events. All administer after school and other summer programs. ♦ Conducts specialty area programming for adult sports at about .5 to 1 hour per day. ♦ Manages security for regular programming and for rentals. ♦ Orders supplies and materials. ♦ Conducts program development, marketing, and implementation. ♦ Stays current with developments in the field and attends professional development programs. ♦ Attends multi -disciplinary and task force meetings to develop collaborative efforts and to identify needs, strategies and solutions to promote recreational activities. ♦ Performs related duties including report preparation, grant writing, and administration. ♦ Conducts emergency action planning. ♦ Identifies community recreation needs and plans programs and activities for target residents. ♦ Develops operational handbooks. Above are those responsibilities that are invested in the Center Supervisor position. Staff in this position attempt to meet all expectations, often taking calls at home and working overtime. The key tasks that are not being performed satisfactorily to meet expectations as defined by supervisors and job descriptions include youth sports, program marketing, program development, and coach development. Some of these responsibilities appear to be more suited for the Senior Recreation Supervisor. Citygate believes that of all the programs, youth sports should be better managed. The youth sports program is a full sports program and requires Center Supervisors to administer registration, manage coaches, and supervise facilities/events. Supervisors hire officials, conduct coach background checks, hold coaches meeting, and prepare game rulebooks. The program involves visiting several sites and managing large numbers of children; for example, the youth basketball program is located at five sites and involves 600 youth. The Department has been losing participants in the program, and was found to lack focus and direction. Staff throughout the Department shared our concern and a complete discussion of Youth Sports can be found under Customer- Service. The City Gym supervisor runs the aquatic program that.includes 4 facilities, but does have a part-time coordinator. Staffing in this Division has suffered decreasing budgets as other cities have throughout the state from the effects of Proposition 13 and other State initiatives. Below is a table that shows just two indicators of workload, the number of classes and population, as compared to staffing trends. While classes and population have increased by 55 percent and 10 percent respectively, staffing has decreased by 12.5 percent. Staff in this Division rated the adequacy of staffing least WAS W. IX-4 COXV 0-umrs, K positively in the Employee Survey. The organizational structure of this operation is currently delivering services in an appropriate manner, but there are opportunities for improvement. Year 1979 1991 1995 2002 Change Number of Classes 168 193 288 370 +55% Population 170,500 182,000 185,500 190,000 +10.5% Permanent Staff at Center 10 9 8.75 8.75 -12.5% The current structure is based on personalities and therefore does not take advantage of combining like programs for maximized efficiencies. For example, youth and adult sports are currently in separate Divisions. Grouped together, managers could develop policies, procedures, and computer systems that are similar for registration, field allocation, customer service, web services, officiating, coaching and scheduling. Given the staffing workload above related to the Community Services Recreation Supervisors, we would encourage the Department to change the permanent, part-time Office Specialist position to a full-time higher level position to share more of the Supervisor's responsibilities. The current office staff have remained in the same position for the last 25 years with minimal change and as a result recurrent staff typically have more responsibilities. The Office Specialist currently staffs the front office, provides customer service, assists in running routine operations, and processes registrations. Their role could be expanded to include the set up of classes and leagues, the execution of The Sands brochure, and assistance with management of the facility during peak and weekend times. Additional oversight of the facility would reduce the time that young adults are in -charge. Young adult assistants are often responsible for problems such as fights on the basketball court, plumbing back-ups, or unhappy customers. The Senior Center and Oak View Center each have full-time position assistants to perform this role and we see a similar need at Murdy and Edison. Managerial Planning, Direction, and Reporting Recreation programming appears to be balanced, and the City offers a wide variety of programs and activities. The City offers various class types at various times and gears programs towards a variety of age groups. The number of contract classes has increased substantially over the past decade as the principal means of expanding the variety of recreational opportunities and the Department has the cooperation of the Kiwanis Club in sponsoring the Handicapped Dance, Disabled Fishing Derby and the Easter Hunt contest. However, there was minimal awareness of staff in this unit for what the City is trying to accomplish with their recreation program and where they want to go in the future. There is also minimal clarity on how supervisors can measure their own success. This was verified by the lack of established and well-defined mission -oriented goals, objectives, and performance measures. We found minimal evaluation of the program as a whole in terms of whether or not the program is meeting the needs of the community, staff, or City. Classes for example are not evaluated regularly for their success. Youth Sports is seeing declining numbers, but staff does not understand the reasons why. IX-5 (grimaMMS G: The Unit just recently prepared mission and goal type statements or future project statements for the upcoming budget. These were included in our discussion above in our Overview, but they are informal in that they have not been discussed, communicated and approved through the City. These statements are typical for a Recreation Division though it appears that minimal discussion has transpired related to higher goals that may include the following:. ♦ Developing community ♦ Increasing racial diversity and acceptance ♦ Emphasizing character qualities ♦ Fostering confidence ♦ Reaching percentage of total cost recovery. The Senior Supervisor holds a staff meeting with the Center Supervisors of the various centers once per month and has verbal discussions regularly. The supervisor emphasizes uniformity in procedures and well -organized office spaces and staff carries out these objectives. Though staff, as seen from Staffing section above, is overwhelmed with their responsibilities and in order to prioritize their work, desires more direction and support. Each Center Supervisor is running a mini -business and dealing with all issues related to. staffing, scheduling, training, mentoring, sexual harassment, personnel, emergencies, etc. All training of recurrent workers is "on-the-job" and staff development is minimal. Employees in our Employee Survey agreed that training is a key area for improvement, particularly for recurrent employees who are often students in their first job. Given the staffing levels, limited supervision of recurrent employees, and the current organizational structure, it appears that the division is not working towards the City's Quality Service Vision Statement that sanctions "recognition as a model organization, respected for valuing the community it serves." The division, while once seen as a model program in the past, is now lacking modernization. This is most likely due to the large population increases in recent years and the taking on of more projects than possible to manage effectively. Here are some examples of how the Division is falling behind: ♦ Website is not as up-to-date as similarly sized cities in that it does not provide a convenient summary list of classes, class availability, and numbers on waiting list. Website does have downloadable brochure. ♦ Registration process does not have convenient way to inform students about full classes. ♦ There are no customer evaluation forms distributed to instructors or participants at the end of a session, although forms are available for participants who take the initiative to obtain one. ♦ Management acts on changes only when there is a complaint. This is not proactive and means that the Department is not receiving information from those who are not vocal. ♦ The latest Employee Policy and Procedure handbook for this division is from 1979. Center supervisors are currently updating the handbook. IX-6 or MOON LK ♦ Center Supervisor roles have changed to include report writing, marketing, and reporting, yet there is limited office space for some supervisors and limited computer accessibility or reliability. ♦ Major issues are not addressed and improved quickly. Staff ideas are often not evaluated. ♦ There is minimal training or support for new tasks or staffing changes. ♦ There is a lack of management direction and reporting. ♦ There are physical areas of the center that are not used and are sitting dormant. ♦ There are limited examples of program change reflective of a changing community. Service Delivery Systems In 2000-01, about 350 classes were offered at the centers. The main service delivery system for this division involves registering participants guiding participation in activity, class, or sport, and creating a feedback loop. For classes,.the Center Supervisors, along with assistance from the Senior Supervisor, create The Sands brochure to advertise classes, sport programs, and park area. It is mailed out four times per year. The publication also provides information regarding other City programs, services, and facilities. In 2000-01, 83,000 copies were distributed to the community. The Sands brochure includes a registration form, which is accepted first by mail and then after a certain date, in person registration forms are accepted. This process is the same for all classes, except summer swim classes. All registration forms are sorted by facility and inputted into the RecWare computer system. Enrollees are asked to supply a stamped, self- addressed envelope to receive confirmation regarding a class. In addition to The Sands procedure, the Division also uses flyers at the schools, press releases, and Cable TV to advertise programs, classes, and special events. While the registration system is overall successful in effectively registering students, the system should be improved to provide better customer service. For example an on-line registration process, or at least an on-line database of class information and class availability, would be extremely helpful for customers and staff and should be implemented. This would be especially true for the summer swim class registration that is currently a walk-in registration process (see below for more details on swim classes) where parents work hard to get classes that fit into summer vacation schedules. The Division is expecting a new computer based system called "Safari" to come on-line June of this year. This newsystem system will substantially increase the efficiency of program registration, as it will allow on-line registration. The enrollee will then have immediate confirmation of a class. Other cities at this time are listing class availability and class schedules on the Web. Summer swim class registration is a walk-in process during the summer since there are no computers at the additional pool sites. Parents are described as lining up in long lines to register. In a recent Division survey, sixty percent of the parents would prefer a mail -in system and thus the Division has recently been looking at a mail -in system, but believe it is two years off. IX-7 OUR SK "1J. LC Funding Staff, researching other city fee schedules, sets fees for programs, though quantifiable data does not exist in terms of methodology or cost/benefit analysis to determine how much of a program/activity cost is covered by revenue. RecWare tracks revenue but only relative to a specific class for which the Department does not capture all of the costs. With current operational systems, it is difficult to assess the actual percentage of cost recovery for the various programs and whether or not costs include overhead costs. One year ago, the supervisor estimated an operating budget at $1,370,000 and believed the Division collected $1,200,000. However, reliable information is not available. According to the Administrative Services Department, the JD Edwards system is capable of tracking revenue and costs down to nine layers and therefore has the capability to provide data related to class and program profitability and costs. This information is -important because it shows the amount of subsidy, if any, for a particular program or class. This information is very powerful and would allow the Department to embark on conscious decision -making. For example, the Division may see that some classes while successful are much more expensive to run than others. The same is true of facility rentals. Currently there is a push to rent out facilities to bring in revenue, but it is possible that the revenue increase would be small relative to the cost/effort. Evaluating actual costs may also alter the City's policy for non-residents. There is currently no additional fee for non-residents to take classes. Another way to enhance financial reporting is to make the recreations programs into one or more enterprise funds. Enterprise funds help to simplify complex accounting systems and also -allow profits to go back to the program that achieved the success. Moreover, it would allow deposits from facility rentals to pay for the damage caused instead of deposit going into the general fund. Facilities and Equipment Community Center facilities experience very high use and staff remarked of constant facility building problems. About 100-200 people come through each recreation center (Murdy, Edison, and Gym) daily, and roughly 100 classes are offered at each center each session. The Murdy and Edison Centers are about 30 years old and the City Gym, while even older, recently was completely renovated. All facilities on the inside were clean and orderly and therefore present a positive image for the City. Outside areas were for the most part good to excellent with some areas in fair condition including one court, one picnic area, and some.park grass areas. Planters, grass area, and major facility improvements are maintained by Public Works. Community Services Staff manage routine facility maintenance, trash removal, picnic area clean up, and facility cleaning and sanitation. Edison and Murdy each have one full-time maintenance worker from (5-1:30) Monday through Friday, though Center Supervisors at various times become responsible for routine maintenance such as carpet and/or restroom cleaning. This occurs when the maintenance staff member's schedule is not appropriate for the center's needs or when the maintenance staff has vacation or is pulled off on another project. There is no backup support besides the Center Supervisors for the maintenance staff and recurrent staff conduct routine maintenance tasks on the weekends. IX-8 There is currently no operational or long-term budget plan for more major improvements/renovations and so these kinds of improvements are not being accomplished on a regular basis. Minor projects are. being funded by Community Services. They obtain the money and then submit a work order to Public Works. Citygate is aware that many recent facility improvements were a long time in coming and that very little rehabilitation or renovation is completed in a timely manner. One example is that carpet was not replaced in one center for 30 years. In our Employee Survey, staff in this Division rated the quality of facilities as a key area for improvement. Equipment is adequate and of good quality. Customer Service The City offers a variety of workshops and classes for all age groups. One can find a variety of classes in dance, cooking, health and safety, music, physical fitness, arts and crafts, games, dog obedience, and martial arts. There are classes specifically geared towards youth, preschoolers, and seniors. The Centers are open from Monday through Friday from 9:00 a.m. to 9:30 p.m. and Saturday from 9:00 a.m. to 5:00. Classes are added based on what is successful in terms of attendance, asking Recreation Leaders for their opinion, from customer or instructor requests, and from meetings with other peers in other cities. While this system is not based on mission and goal statements, it has been effective for providing a wide variety of classes. The Division likewise continues to add more classes as can be seen by the large increase in classes (55 percent) over the last twenty-five years. We are concerned that without adequate financial data, the Division may be retaining classes that are not cost effective. The spring 2002 "Activity Totals Report" from .RecWare shows all classes and their enrollment status. We calculated from a random sample of ten percent of the data, that classes on average have four participants over the minimum class size (minimum class size averaged about seven participants). Moreover, considering the approximate 370 classes, only 18 or 5 percent have a waiting list. These facts may lead one to believe that a more optimum class structure is possible. Based on workload data, program development is not a common task of staff. Staff remarked that creating new, innovative programs for classes and sports is a luxury. The Department could discover a more favorable constellation of classes by systematically evaluating the needs of the community through a customer survey or feedback survey. The Division currently does not have an effective customer feedback loop for their programs: class participants are not evaluating classes and evaluation/complaint forms are not readily available and accessible to center visitors. Therefore, we would recommend feedback surveys after the end of a class and community surveys every two years. The Division formerly used surveys in the brochures, but received minimal response and stopped the process. The Division's only feedback process entails following -up complaints by phone. Complaints are taken very seriously. Youth sports is one of the programs that is not meeting the needs of the community. Numbers are known to have declined in youth sports in the last five years, but actual data was difficult to readily obtain. Staff estimates that numbers have dropped by about 30-40 percent. This is believed to be a result of the National Junior Basketball League that began its operations six years ago, but they cannot be positive of this. IX-9 (1101 ISSOGI S. Gi The program also lacks management and supervision. Staff, as mentioned above, have minimal youth sports time to manage and evaluate the program, hence our recommendation to add a youth sports coordinator position based on the workload of the Center Supervisors. Staff claim that the program has not changed over the years and lacks good ideas and creativity. Coaches are not being trained in the modern sports philosophies of sportsmanship and teamwork. The program is not evaluated and neither are the coaches after a season. Fingerprinting of the volunteer coaches is taking place, but there was no evidence given that the results are communicated to the managing staff. With the current workload, staff do not know the practice schedules of the various teams and fear that the City may be placing themselves in an unsafe position. There was also no evidence that the program is being marketed to target or populations in need. The Division may want to adopt guidelines listed from the National Youth Alliance on Youth Sports that are provided below in our recommendations. Other options to reorganize this program include contracting out or adopting more clinic based programs. There is a staff member in the Department that currently contracts out with another city to provide youth sports coordination. Policies and Procedures The current Procedural Manual is from 1979. Staff are updating it now and the draft includes important and up-to-date information. After a review of the draft manual, we believe it could be expanded to include possible emergency situations and their appropriate response protocols and a more directive approach to describing procedures in an emergency situation. This would also minimize the Center Supervisors' on -call role. Policies for class instructors are located in Contractor Class Instructor Handbook; however, instructors do not have to sign a contract for services. This again may open the City up to unnecessary problems given that if problems do arise, they would be more difficult to resolve. The Youth Sports Program needs written policies and procedures for all Center Supervisors to follow, including clearly defined lines of responsibility for all professional staff and volunteers.' Impending Issues There will be minimal impact to this Division because of the new Conference Center. There may be more use of the outside facilities such as picnic areas or courts, but these activities are not staff intensive. D. RECOMMENDATIONS Recommendation No. IX-1: Establish a mission statement, goals, objectives, and performance measures. The Division is in need of a clear Mission Statement and related Goals and Objectives to guide development of programs, procedures, and evaluation. In developing this goal -oriented ' National Alliance for Youth Sports: www.nays.org/administrators/index.cfm IX-10 carp I%Xnt ac approach, the Division can hold workshops, meetings, and customer focus groups along with extensive employee participation. Additionally the Division should develop performance measures for program evaluation. Current performance measures are primarily descriptive of the volume of work and do not provide important information such as: 1) have we reached our objectives; and 2) how do we know we have reached our objectives. Youth sports is most in need of guiding principles. The National Alliance for Youth Sports lists essential components of a successful youth sports program, which can be used by the City.' A sample list of these components is below: ♦ A player philosophy that promotes and protects the interests and welfare of children. ♦ Clearly stated goals. The goals must be realistic and reflect the values held by the community. ♦ A well-defined organizational structure. The organization must be guided by written by-laws and clearly defined lines of responsibility for all professional staff and volunteers. ♦ A clearly defined program. Program must be directly linked to the development of the participants is ensued. ♦ Effective procedures for implementing the program. ♦ Well-defined expectations of success. Recommendation No. IX-2: Reorganize recreation services in the department to increase efficiencies, management supervision, and balance between workload and staffing (see also Overall Department Section). The "Overall Department Section" of this report discusses that Recreation activities are divided into several Divisions, with some activities reporting to the Deputy Director while others report to the Department Director. This separation of recreation functions along with the overly broad span of control for the Deputy Director (he also supervises all Beach and Development activities) has led to insufficient supervision, program evaluation and long term planning in the Department and particularly in the Recreation functions. In the "Overall Department Section" of this report, it is recommended that all recreation functions be consolidated under one Superintendent who will report to the Deputy Director. We are also recommending the following: ♦ A Senior Recreation Supervisor should be given responsibility for Adult Sports and all three Community Centers, including youth sports. ♦ A Senior Coordinator position would be placed underneath the Senior Recreation Supervisor to manage adult and youth sports programs. Combining sports would be beneficial to the Department to take advantage of economies of scale and process efficiencies. '- www.nays.org/administrators/index.cfm IX-11 c 11M EMU K ♦ A Center Manager would be placed underneath the Senior Recreation Supervisor at each center, including human service centers, to run daily center programs. ♦ Center Office Assistant would be changed to Assistant Center Director or equivalent. Recommendation No. IX-3: Establish customer satisfaction feedback loop. The Division should institute a process by which an instructor distributes class evaluation forms at the end of each class as is done in most retail institutions today. The class content and class instructor should be evaluated, and suggestions for current and future classes should be gathered. Recommendation No. IX-4: Modernize program and update policies and procedures. The Recreation Division has not changed much in last 20 years. The Division could benefit from improvements in several areas including website services, office space, coach training, programming, safety planning, and service delivery systems. Many Staff in this Division agree in our Employee Survey that the Division could improve in considering changing the way things have been done in the past. The Department using one or more of the following methods could enhance program quality: ♦ Hire youth and adult sports coordinator (as previously recommended) to increase the quality, safety, and direction of the current program. ♦ Evaluate City programs and services and invest in those areas that best meet Department's mission and goals. ♦ Eliminate classes that are minimally supported or offer these infrequently. ♦ Eliminate programs that require a general tax fund subsidy and have low participation. ♦ Evaluate community recreation needs through survey, focus groups AND formal meetings. ♦ Charge higher fees or increase fees to market rate for certain classes or programs and for nonresidents. ♦ Increase policies and procedures to provide more clear guidance to the Center Supervisor and to create a safer work place. ♦ Improve the registration process through use of the Internet, especially for summer swim classes. Recommendation No. IX-5: Develop a maintenance plan in coordination with the annual budget. Improve coordination and communi- cation with the Public Works Department in order to improve the recreation facilities on a routine basis. g IX-12 Recommendation No IX-6: Evaluate recurrent 1000-hour rule as it relates to the community centers in order to provide efficient, and cost- effective services (see also Overall Department Section). Recommendation No. IX-7: Revamp the youth sports program, including policies and procedures, to meet the community's youth sports needs, to increase youth participation, and to ensure a fun and safe program. IX-13 LfP.C�T1 SIS°tM":IIA W., X. ADULT SPORTS SECTION SECTION OVERALL The purpose of Adult Sports is to provide young adults through senior adults the opportunity for active and healthy organized league play for all skill levels. A. MISSION STATEMENT AND GOALS There is no explicitly defined Mission Statement or Goal Statements for Adult Sports. The purpose of the program was described above and the various services that the City provides to fulfill its purpose can be found under Organization and Functions. B. ORGANIZATION AND FUNCTIONS Staffing Operations of this program are conducted by one Senior Recreation Supervisor staff that spends about 75-80 percent of time administering the softball program. The supervisor is in charge of the entire league including registration, scheduling, hiring officials, daily field calls for standings, phone calls, and about six touma7-Pnts per year. The Department utilizes one full- time maintenance person, about 45 umpires, and :2 recurrent staff members. Programs The softball program is the largest program administered by this Division, representing about 75 to 80 percent of the Division's staff time. Huntington Beach's softball program is one of the largest City programs of its kind. Currently there are three seasons with about 250 teams participating per season or about 750 teams participating each year. The program consists of the following leagues: ♦ Men's Slo-Pitch Softball ♦ Women's Slo-Pitch Softball Co-ed Slo-Pitch Softball ♦ Seniors Slo-Pitch Softball ♦ Softball Tournaments (approximately 6 per year). In addition to Adult Sports, staff in this program is also responsible for the youth sports grant program, youth sports field allocations, youth fishing derby, and youth track and field meets. The purpose of the Youth Sports Grant Program is to provide improved youth sports facilities in Huntington Beach by providing supplemental assistance or matching funds to a nonprofit youth sports organization's existing resources for projects as proposed. Grants are for capital expenditures sub as permanent construction/repairs, and are not for ongoing operational costs or X-1 portable fixtures or equipment. The group must be willing to accept all maintenance and operating costs. Projects must also be located on public property. The City Council commissioned $150,000 for 2002. Most applications are geared towards improving school sites, which are not adequately maintained by the schools. Leagues invest in field improvements for the purpose of field availability. Staff in this Division administer the Youth Sports Field Allocation program in coordination with five school districts. Staff, through a systematic and defined process, determine the field usage needs of youth sports organizations in the community. The City's annual citywide Youth Track and Field Meet is for boys and girls between ages of 3 and 14. It is the only opportunity Huntington Beach youth have to learn and compete in Track and field events in Huntington Beach. The top finishers from this event qualify for the Southern California Municipal Athletic Federation countywide track meet. The event occurs one time per year and involves about 300 participants. Recurrent staff are hired for the events. The annual Huck Finn Fishing Derby is a themed fishing contest for children on the Huntington Beach pier. Volunteers run the event day. Sponsors provide awards and full direct costs. There are about 300 participants at this special event each year. Programs administered by the staff in this Division run smoothly and are well managed. C. FINDINGS AND OBSERVATIONS Workload The largest program in adult sports, the softball league, is declining in size. From the Table below we see that since 1993, the program has decreased by about 23 percent. Most of the decrease has occurred in the Men's league. Staff believes that team numbers are decreasing in Orange County because of the other opportunities to play in other leagues outside the immediate area. Men's Co-ed Women's Senior Total 1993 644 293 32 87 1,056 1994 619 319 36 81 1,055 1995 523 297 46 83 949 1996 523 312 42 77 954 1997 523 274 44 75 916 1998 497 262 39 73 871 1999 486 269 30 66 851 2000 423 291 29 64 807 2001 396 268 28 61 753 2002* 426 291 34 63 814 *Only winter season numbers, so annual estimated and extrapolated. X-2 A chart depicting the softball trend is below. Softball Teams Per Year 700 600 Mens Co-ed 300 :.., :, ,,.. n Wome s r. ?; 200 <h.... ,..: ,: :.: � ;. , ,: ��<� Senior 100 Year While staff has concern for the decreasing softball team numbers, we believe that the data may really mean that the softball needs of the community have been satisfied. There are no other sports leagues such as soccer and basketball offered by the City. The City sponsored Track and Field events occur about three times per year. Staff stated that the numbers for each event have been going up each year. Organizational Structure and Reporting Relationships The Senior Recreation Supervisor position is under the jurisdiction of the Recreation and Human Services Superintendent. Citygate believes that once the current Recreation Supervisor retires that this position should be placed under a Recreation Supervisor (see Recreation) and that this position should be filled with a Recreation Coordinator. While the position requires organization skill and human relations, we believe that a coordinator could fulfill the job requirements since the program has operated well for so many years. Managerial Planning, Direction, and Reporting As similar to the other Divisions, this area lacks managerial planning, direction, and reporting. Staff operate very independently given that management receives few complaints. Staff reports to the Superintendent are minimal and often only include participation numbers. It appears that minimal managerial planning is taking place to evaluate programs, declining numbers, types of events, and trends from year to year. Staff agrees that while no tracking of data is required, the information would be very beneficial to improving programs. While supervision is minimal, staff is very. committed and passionate in performing tasks. Many weekend hours are demanded of the position and there is very little complaint. X-3 ift. G =I Wolf°.S. K Service Delivery Systems and Processes For the softball program, there is a complete registration form for each league that documents tentative schedules, fees, instructions, roster form, timetable, field locations, player eligibility, and rules. The document is clear and comprehensive. Staff maintains a list of 45 referees and holds two meetings per year with officials. Staff visits the fields each morning to pick up scorecards, standings, and any issues from games the night before. Fields are also observed at this time. The Youth Sports Grant Program is defined in the Policy of Assistance document that is distributed to youth sports organizations each year. The Policy of Assistance document provides eligibility and application criteria, grant distribution timeline, application, property owner approval form, and application checklist. Organizations submit their applications to the Youth Sports Grant Committee and the City. The process of fund distribution is very organized and systematic. The City staff hold a mandatory pre -submittal meeting to answer questions and to make sure the application criteria is clear. The application package is for the most part clear and concise. Our only minor suggestion is that the first two criteria should be moved to the eligibility section. Eighteen youth sports organizations received grant monies in 2000-01. Staff allocates youth sport fields in coordination with the school districts. This is accomplished by requesting organizations to complete a use participation survey that includes the number, age, and residency of participants. Staff reviews each survey and allocates fields to each organization based on the number of participants identified on the survey. Staff holds two meetings per year with organization representatives to review group needs and to allocate fields. For the most part, all groups are allocated fields, but according to staff, all would like more. Communications Communication between the supervisor and superintendent appear to be effective when issues arise. There appears, however, to be very little communication between Adult Sports staff and the rest of the Department or City. These situations have caused a decrease in morale. Staff also remarked that there is very little attendance from Department Administrators or City Council at the special events administered by this unit. Advertising of leagues and events occur in The Sands brochure, through flyers, Cable TV, and the newspaper. The City and Departmental website however have almost no information about Adult Sports or the various special events sponsored by this Division. Staff has good communication with team representatives and with officials through quarterly meetings. Operational Efficiency and Effectiveness Staff registers teams through a computer database; however, staff does not schedule games using a computer program. Staff in this Division may experience better efficiency through the use of technology. At least test samples should be researched. The Division could also benefit from using email as a means to communicate with participants and to exchange information. There were no email addresses provided on publications and forms. X-4 Customer Service The Division is serving Huntington Beach residents, as 85 percent of participants in this Division's activities are residents. While there is not a system to acquire customer service information, the softball program, according to the Superintendent receives few complaints. However, with Men's teams declining, it is not understood what these players are finding more attractive in other area leagues. This past year, ten organizations/applicants received grant funding as part of the Youth Sports Grant Program. The total request for funds totaled $380,000 and $150,000 was distributed. Customer Service could be increased by more use of technology. Registration forms could be downloaded and submitted through email if there was an electronic registration form. Facilities Adult sports are currently conducted at Murdy, Edison, Worthy, and Greer Parks, as well as Goldenwest College. In June 2003, Adult sports will be moved to the new sports complex at Huntington Central Park. The Community Parks will then be reconfigured for use in youth sports. This should enable the City to meet its sports field demands for at least the next 20 years. Youth sports participants are currently using fields at school sites. Fields in the City are decent, clean and well manicured, but the quality of the fields (i.e. grass quality and vegetation in the surrounding open areas) could be improved. Effectiveness and Appropriateness of Policies and Procedures The timing on applications and surveys could be increased to allow ample time for community representatives to respond to the City. For example, the youth sports groups' field allocation application has about a two -week turnaround time from the mail out date to the due date. Impending Issues Given that this Division is involved mostly with organized sport teams or organized events, we believe that the incoming conference center will not affect staffing or workload of this Division. Workload may actually continue to decrease if softball trends continue downward. . The new Sports Complex should be complete by 2003. It will include 8 ball fields, 7-8 soccer fields, a roller hockey arena, restrooms, concession stands, and batting cages. Once in place, the complex will provide facilities for adult sports, and will free up valuable field space for youth sports. Depending upon usage patterns, the Sports Complex may also provide added facilities for youth sports. D. RECOMMENDATIONS Recommendation No. X-1: Establish a Mission Statement, goals and objectives and performance measures for programs. X-5 (0011 OWN. Fs. U., A Mission Statement for this section should be developed to include goals and objectives and performance measures. This should be accomplished through an assessment process that includes an evaluation of priorities and expectations of the program. Staff should take action on this item immediately, given the declining softball numbers. Recommendation No. X-2: Evaluate customer satisfaction of division programs and unmet needs through customer and citizen surveys. The section should evaluate the satisfaction of its customers. This could be done through a yearly survey of program participants, randomly selected teams, or team managers at their quarterly meetings. Brief surveys after an event would be useful for comparing satisfaction from year to year. We also recommend surveying the public -at -large at a minimum of every five years to assess adult sport needs in the community. Surveys can either be administered through the mail or by phone. Recommendation No. X-3: Benefit from use of technology when appropriate for registration and to track, organize, and communicate information. The Division could possibly benefit from using technology with scheduling, data tracking and information distribution. Recommendation No. X-4: Organization structure changes: re-classify senior recreation supervisor as recreation coordinator and place under the recreation division (see Recreation Section). X-6 ar..F:f MUM, uc XI. HUMAN SERVICES DIVISION This section of the Report will address findings and recommendations related to the following Sections of the Human Services Division: Divisions of the Senior Center, Senior Outreach, Oak View Community Center, and Project Self -Sufficiency. Adult Sports, which is also in the Human Services Division, will be presented as a separate section, since it provides very different services. SENIOR CENTER SECTION SECTION OVERALL The purpose of the Michael E. Rodgers Seniors' Center is to serve as a focal point for an array of programs and activities important to the quality of life of older adults. The center is a multi- service facility that promotes later life enrichment in a variety of ways. It offers opportunities for community. involvement and companionship with a wide range of social, recreational and educational programs promoting wellness. A. MISSION STATEMENT AND GOALS There is no explicitly defined Mission Statement or Goal Statements for the Senior Center. The purpose of the center was described above and the various services that the Center provides to fulfill its purpose can be found under Organization and Functions. B. ORGANIZATION AND FUNCTIONS Services and programs that are offered by the Senior Center are listed below: Information and Referral Information and referral is available from 8:30 a.m. to 4:30 p.m. from staff and volunteers. Staff and volunteers work closely with a variety of off -site service providers to assure that seniors are linked to the services and programs they need. Staff schedules appointments and processes registrations for on -site programs. Classes The center provides a variety of classes and clubs to promote lifelong learning and social interaction. The center works closely with agencies such as Coastline Community College, Huntington Beach Adult School, Adult Day Services of Orange County, the Braille Institute, and American Association of Retired People, to provide these kinds of classes. The center also offers contract classes with independent contractors at the facility. Clubs The center is also host to an array of clubs and meetings each month such as the Huntington Beach Fish and Recreation Club and the Post 133 of the American Legion. XI-1 Services The Center works with the County Healthcare Agency to provide preventative healthcare such as health screenings. The Episcopal Service Alliance provides monthly produce giveaways and the Community Development Council distributes government surplus food items to low-income seniors. The Feedback Foundation provides daily lunch and socialization to older adults. Other direct services include legal services, dog license refund, city tax utility bill adjustment, and tax assistance through AARP. Rentals The Senior Center is available for rentals during closed hours to non-profit agencies in the community. Staffing The Center's office is staffed with one Community Services Center Supervisor who runs the center and provides all management to the center under the direction of the Superintendent. The center is also staffed by one Community Services Center Coordinator who provides coordination activities to the center, as well as graphic work, communications, event planning, music and entertainment, and event facilitation. This position also provides some assistance to Specific Events Programs. Five recurrent staff members work a total of sixty-five hours each week. One full-time maintenance worker staffs the center to open the center and do class set-ups and closedowns. Recurrent positions assist in filling in for maintenance duties when needed. At night, when contract classes are held, recurrents staff and operate the center. Council on Aging The staff at the Senior Center work together with the Huntington Beach Council on Aging (COA), which is a citizen's group where members are not appointed by the City Council but are recognized as the group that speaks to seniors' issues in the community. COA does include the City in that it has two City Council liaisons and a Community Services staff member (Superintendent) on the board. Issues surrounding the relationship between the Senior Center and the COA are similar to those between Senior Outreach and the COA that are described further in this chapter under the heading Senior Outreach Section. C. FINDINGS AND OBSERVATIONS Workload and Staffing The Center in 2000-01 received an attendance level of 77,000. About 10,000 of these used the Center for information and referrals/requests, while classes and clubs received about 33,000 attendants. The remainder participated in a variety of programs and activities. The Center does a good job in keeping detailed attendance records. While there are numerous classes and services that make up the Center's complete attendance, Citygate chose to focus on a variety of areas that describe 80 percent of the Center's attendance. Our areas of focus are described in the table below. •. Y( XI-2 According to Table XI-1 below, activities are for the most part increasing. Contract classes provided at the facility have increased by 3 fold since 1996, though these classes are not just tailored to seniors in some cases. Coastline, Adult School, and other classes such as jazzercise and western line dancing have increased 30 percent. Likewise, other services, which include driving class, flu shots, tax assistance, and counseling, have increased 30 percent. Card clubs and the daily lunch program attendance figures have remained fairly steady. Table XI-1: Classes as Indicator of Workload 1996 1997 1998 1999 2000 2001 Contract 2,372 3,471 3,953 4,615 5,349 8,025 Classes Coastline/ 7,544 9,708 9,508 10,202 9,503 10,727 HBAS/ Other Drop Ins 159 148 143 212 352 432 Telephone N/A N/A N/A 2,788 9,578 8,786 Calls Senior 6,429 9,082 8,855 8,788 7,390 6,601 Club Bridge 2,996 3,519 2,843 2,339 2,305 2,730 Club/Card Club TLC Lunch 18,471 21,720 20,935 24,072 20,380 19,898 Pro am Other 4,497 6,256 5,828 5,578 5,729 6,746 Services Staffing has increased by .25 FTEs during the same time period as in the table above. It is difficult to determine whether staffing is sufficient without some measurable goals or expectations. This will be discussed more below. It appears that the 3.25 FTEs are adequate though, especially when compared to the Community Centers. One staffing problem is the recurrent staffs lack of up-to-date skills and therefore the supervisor fills -in inappropriately. We suggest a solution to.this problem under Operational Efficiency and Effectiveness. Organizational Structure The Center, unlike the Recreational Community Centers, is fortunate to have a Community Services Recreation Coordinator position. However, the coordinator position went from a part- time to a full-time position without specific role definition. It is unclear at this point what is the responsibility of the Supervisor versus that of the Coordinator. This may stem from the lack of clear goals and objectives for the Center. Roles and responsibilities should be defined in the proposed Procedural Handbook. See Operational Efficiency and Effectiveness. XI-3 L11M..11 MWC10114:. Facility and Equipment Equipment in the center is adequate. There are not too many needs unfulfilled. While the current Center is well maintained and clean, the Center is estimated to be about 60 years old. The building was originally built for Army barracks with rooms being added on over the years. The current building is adequate in that it provides workable space, but it is physically old. One staff member described the facility as looking like a convalescent hospital. Citygate agrees that the facility in the next ten years will attract fewer of the younger, vibrant older adults if the building is not updated or replaced. According to the Orange County Interagency Committee (OCIC) on Aging, 15 percent of Huntington Beach's population is over sixty years of age; seniors represent 13 percent of the total county population. Those aged 75+ in Huntington Beach represent 35 percent of all those 60 years of age and older. According to this same study, the population of older adults, aged 60+ in Orange County, is estimated to increase significantly in the next twenty years. The below chart is taken from the California Department of Finance, 1998. According to the chart, the number of older adults in Orange County has increased by 50 percent in the last twenty years. In the next twenty years, those aged 60+ are expected to increase by another fifty percent and represent 690,000 county residents. Given that Huntington Beach's seniors currently represent 7 percent of the total county senior population, we can suppose that the City..'s senior population will increase by 75 percent, from 27,623 (2000 estimate) to 48,300, by 2020 (OCIC). Growth of Orange County Older Adult Population, 1980-2020 800,000 >,....M. 700,000 000 r:6u: y: S. a>itu 600,000 500,000 V, r 400,000 :: 60 Adults 300,000 <., r.<.. 200,000 00 ..,t� 28 t:. 1 00 000 k3•. r:^ :. no 0 \{,. 1980 1990 2000 2010 2020 The Senior Center is currently being used to its full capacity as could be seen from the Center's daily calendar and schedule. The increased classes and programs, as ' depicted on Table XI-1, have resulted in a lack of adequate space to meet the physical fitness needs of the current population. Staff remarked that a new Center is about 7-10 years out. Citygate believes that with good planning now and a good funding scheme, this timeframe could be sooner. ,Vq XI-4 Managerial Planning, Direction, and Reporting The Senior Center lacks a clear mission statement that is consistent with the mission of the Community Services Department and the City Council. The Division also lacks clear goals and objectives for each program to accomplish the mission. Goals need to be identified, recorded, and communicated for staff to implement through the administration and planning of programs and activities. Staff is currently unclear with what the City is specifically trying to accomplish, although they understand that their objective is to provide excellent service to senior citizens. Goals and objectives should have measurable standards. Goals for program participants should also be formulated. Examples of these outcomes include wellness, socialization, safety, and education. With specific planning, direction, and reporting, staff will more fully understand the City's priorities and will have a base to measure their programs' success. Service Delivery -Systems Staff schedules classes, free workshops, and sponsored programs through the same registration process used in Recreation. The Division advertises its classes and programs through the Sands brochure and enters participants into the Recware computer system. The Division also advertises classes and provides seniors with information, programs, and events within the City that are geared towards seniors in a brochure called Bright Outlook. .There are opportunities to market some "typically" senior classes to all adults/teens. The delivery of classes and services appears to be effective and efficient. All instructors take attendance and staff takes an end of month tally. Staff are particularly proficient at tracking numbers of participants for all Center activities, which provides valuable information for decision -making. Staff tracks, for example, all visitors, phone callers, club attendees, students, and patients. Communications It appears that there is good communication between the =staff in this Division and the Superintendent and staff next door at the Senior Outreach. While communication exists between staff -and customers, it could be improved. Currently there are no feedback forms or surveys conducted after a class. There should also be feedback forms available and sent in the Bright Outlook brochure to ask for class suggestions or general complaints. Communication could be improved with the Council on Aging. There appears to be a lack of defined roles and responsibilities between City staff and the Council. Staff is often working for the Council without set guidelines or with misguided rules in regards to staff time, decision - making, and funding. This issue is explored more in Senior Outreach. Operational Efficiency and Effectiveness Consistency in following procedures is an issue, given the current skill level of customer service staff as a result of the extensive use of recurrent employees. As a result, training is on -going and time consuming, and ultimately customer service is impaired. For example, customers are sometimes given the wrong information. Tasks are not completed accurately or efficiently. XI-5 GMA fliMm, f1s. l . Therefore, there is a need for a uniform set of policies and procedures for all routine tasks such as answering the phones, providing information, and logging data. All procedural information should be prepared and documented in a Procedural Handbook that can easily be placed at each workstation. A handbook would increase efficiency in work processes and minimize management time devoted to supervision. This handbook should also define roles and responsibilities of all the staff members to communicate management expectations of each position. Customer Service According to the Council on Aging President, the Senior Center provides outstanding service to the senior community. The President finds staff to be very supportive and helpful of the Council on Aging's programs and events. He would recommend a needs assessment to establish programs and services. New classes are started based on an instructor request; staff learning of a popular class at another center or through a direct link with a customer. To understand whether a class is considered appropriate or successful, staff currently uses attendance figures. While this is a good indicator, it should not be the only indicator. There should be a systematic process that evaluates classes and programs each year based on current mission and goal statements. For example, a jazzercise class may be very popular and even have a waiting list, but adding more jazzercise classes will not provide any service to a senior who is seeking a basic cooking class after losing a spouse. Without a systematic process to add and delete classes, there is no evaluation of what the City is offering. Staff believes, for example, that there is a need for more support group types of activities (i.e. grief), daily living classes (i.e. Braille), Tai Chi, computer and Internet classes. With any subsidized program, choices must be made. Impending Issues The senior population is changing with the first "baby boomers" to appear in 2010. These older adults are more active and it is unknown at this time what programs and activities they will need. This is why it is important to have systematic evaluation of programs and an effective feedback loop. D. RECOMMENDATIONS Recommendation No. XI-1: Establish mission statements, goals and objectives, and performance measures for programs. The Center has a statement of purpose, but lacks specific goals and objectives that provide guidance to the section on what services should be provided to the community based on demographic and community preference changes and anticipated changes. Recommendation No. XI-2: Develop a Procedural Manual for staff to use as a resource. Include a section on roles and responsibilities. XI-6 {r UIL WME ac Recommendation No. XI-3: Perform long-term planning to accommodate future needs of seniors. The Division should conduct long-term planning for development of a new Senior Center. Early planning will result in a faster change. Long-term planning should also take place to address the upcoming increase in the senior population and the changing "face" of up-and-coming seniors. Funding of larger expenditures should be addressed. The Division should accomplish this recommendation through established committees. Recommendation No. XI4: Re -define roles and responsibilities of the Senior Center and the Council on Aging (see Senior Outreach Section of this Chapter for information). Recommendation No. XI-5: Evaluate programs and class offerings on a routine and systematic basis to meet the needs of the senior population. Feedback forms, surveys and focus groups are just a few of the mechanisms that can be used to evaluate current and potential program and class offerings. SENIOR OUTREACH SECTION SECTION OVERALL The purpose of the Senior Outreach program is to assist aging residents, sixty years and older with physical, emotional and nutritional needs in order to help maintain the frail elderly at home. The program is designed to promote self-sufficiency and independence while maintaining the dignity and rights of the frail elderly. Professionally trained staff and volunteers work with seniors, families, caregivers and senior service providers to help in developing a plan for facing late life transitions. A. MISSION STATEMENT AND GOALS The mission of the Senior Outreach Program is to promote independence, self-sufficiency, and safety for the older adults in the community so that they can live with dignity and a sense of well being in their own homes without being subjected to early placement outside of the home. It is the belief of some staff members that enabling seniors to stay at home betters their quality of life by providing common comforts of home, family and social support. Goals of the Center are to enable seniors to realize their potential for independent living, to provide assistance and support through information and services, and to respect and maintain each client's personal choices. Another goal of the program is to respond to the growing needs of the senior community and to advocate on their behalf as the senior population continues to grow. XI-7 (film rf,�ac The mission and goals of the program are accomplished with in -home care provided through partnerships with county and local services and preventative care in the areas of health, nutrition and transportation to older adults. The mission and goals are accomplished through the agency's services, which are listed below under Organization and Functions. B. ORGANIZATION AND FUNCTIONS The Senior Outreach services include the following: Information and Referral: Phone lines available for families and seniors to call and talk with a social worker regarding resources and referrals available. Meals to the Home: Meals are delivered each weekday to frail and elderly seniors in Huntington Beach who are unable to shop and cook. Each client receives three meals a day, which are delivered by Council on Aging Senior Team (COAST) volunteers in their own cars. Holiday meals are also coordinated. Care Management: This service provides an in -home assessment, which offers linkage for seniors to community resources and other personal support systems. The social workers individualize and customize the service to meet the senior's needs. Examples of services include assistance in applying for SSI or Medicare, locating emergency financial assistance, and referrals for medical needs. Approximately 300 seniors living in Huntington Beach are on the Social Worker caseload. Door -to -Door Transportation for seniors in Huntington Beach has been provided since 1977. This service has expanded to transporting 60-75 seniors daily to the Senior Center for classes and lunch, medical appointments and grocery shopping. COAST volunteers and paid bus drivers provide this service with City buses and vans. CHERISH — Community Helpers Engaged In Restoring and Improving Seniors Homes provides free monthly home maintenance to Huntington Beach seniors who are physically unable to do the work themselves and unable to pay to have it done. The Kiwanis sponsor this program in cooperation with the high school key clubs, the Council on Aging, and the Senior Outreach staff. City staff is the liaison. Program provides services to approximately 15 seniors' homes. The City was the recipient of the 1994 "Spirit of Volunteerism" Award sponsored by the Volunteer Center of Greater Orange County and JC Penney. In 1985, it was first -place winner of the National Project Independence Award for an exemplary community project. Friendly Visitor Program — COAST volunteers offer visits to the elderly senior who is homebound. The Telecare program provides telephone visits to seniors. Other programs include Project Ship for free home safety checks, emergency plans to provide•a system to check on and assist pre -identified seniors in case of a disaster, and distribution of Bright Outlook monthly newsletter that provides information and resources. Staffing The Recreation and Human Services Superintendent in City Hall oversees the Senior Outreach Center and the on -site manager is the Human Services Program Supervisor. Other staff includes: ♦ Nutrition Transit Coordinator 1.75 ♦ Office Assistant II (3/4) 1 ♦ Volunteer Services Coordinator 1 ♦ Social Worker 1 ♦ Recurrent Nutrition Transit Coordinator 5 ♦ Recurrent Social Worker. Assistant 1 ♦ Recurrent Social Worker 2 Staff uses a large database of 250 COAST volunteers to provide services. The coordinator recruits and manages the volunteers who provide meals to the home, transportation, telecare, home visitations, TLC congregate meals, Bright Outlook collation, office support, as well as activities for other programs. There are currently about 40 very "active" volunteers that primarily do visitations and meals and act as the gatekeepers of service needs. Volunteers, through staff directed volunteer committees, also help conduct special events such as the senior golf tournament, Step Out for Seniors Day, Transportation Committee celebration, and Senior Saturday. They also help publish the Bright Outlook newsletter for 3,500 seniors. A list of all activities involving volunteers is presented below. It shows that volunteer hours for 2001 exceeded 34,000 hours. At 34,666 hours of service per year, using the national average wage of $15.39, this time amounts to $554,000 in service! Table: XI-2 2001 Coast Volunteer Hours Activity Hours Handy Crafters 6,804 Meals to the Home 5,875 TLC Kitchen 4,057 Transportation/Medical/ Shopping 3,996 Office Support 3,714 Signing Goodtimers 2,112 Project SHARE 1,856 Project CHERISH 1,499 Bright Outlook 713 COA Board 535 Special Events 524 Food Distribution 522 Dance 461 SHIP 436 Friendly Visitor 427 AARP/Tax Assistance 399 Professional 303 Ado t-a-Beach 213 XI-9 01114911 owl". 1 U. Activity Hours Tele-Care Caller 110 Holiday Meals 110 Total Hours 34,666 Management also uses a successful internship program to supplement staff resources and to recruit full time employees. Council on Aging The City Council of Huntington Beach officially recognizes the Council on Aging (COA) as representing its local senior citizens. Its mission is to work with city staff and COAST volunteers to enhance the dignity and quality of life of city seniors through comprehensive services, education, and advocacy aimed to empower and meet the needs of a diverse population. The COA works with Senior Outreach and COAST Volunteers to enhance the dignity and quality of life of City seniors through comprehensive services, education and advocacy aimed to empower and meet the needs of a diverse population. C. FINDINGS AND OBSERVATIONS Staffing While most cities are struggling with staff shortages, Huntington Beach is successfully using non -permanent or recurrent staff that can only work 20 hours per week. Staffing levels in this unit are adequate except when recurrent staff have exceeded their hours and are required to stop working, yet do not have another staff member to maintain their duties (i.e. dispatch services, volunteer scheduling, and social work case management). This situation affects about two months out of the year and results in diminished senior transportation and social work in -home care services. The availability of senior trips is reduced, for example, notwithstanding that seniors already need to request a trip 4-5 business days in advance. Recurrent staff here are not being used for seasonal posts, but to fulfill ongoing, permanent duties. Workload The outreach program provides about 74,000 meals annually to the homes of seniors through the Feedback Foundation. There is a possible need to expand the Home Delivery Meals program, but this will be difficult given the working and storage space currently available to the program. Annual senior transportation trips total 9,900 and home visits total 2,500 each year. In 2001, there were 10,345 clients served by Outreach. Currently, the full time social worker has a caseload of 100-120 cases and each of the three re- current social workers has about 55-75 cases. While there is no waiting list, this caseload is considered to be high by the staff, who feel they do not have the time to be as thorough they would like with each case. According to service logs, staff make about 200 phone calls per month and 50 home visits. XI-10 Organizational Structure Although the Council on Aging (COA) is officially recognized by resolution of the City Council of Huntington Beach as representing its local senior citizens, according to staff, roles and responsibilities are unclear. The COA's President states that the role of the COA is to be the primary advocate for Huntington Beach seniors, to raise funds, to advise and provide council to the City's senior programs and staff, to conduct outreach, and to provide volunteers. While staff in the Senior Center and in Outreach believe that the COA does good things for the community and raises needed funds, they also believe that their role could be better understood and communicated to the Council on Aging Board to be consistent with the President's list. Staff is often placed in a position where they are working for two organizations, the City and the COA, that have separate goals, objectives, and managers. The COA at times operates in the position of a program manager or staff supervisor rather than an advisor. According to the COA's by-laws the purpose for which the corporation was formed are as follows: The specific and primary purposes are charitable to provide, as an appointive agency of the City of Huntington Beach, a central facility and programs such as nutrition, transportation, housing... 2. The general purposes and powers are to provide social service needs of outreach, information and referral, counseling, consumer protection, legal help and income support. Managerial Planning, Direction, and Reporting This unit is one of the only units within the Department that has a clear set of mission and goal statements to guide staff and the City's services. Staff throughout the entire unit, unlike other programs, understood the mission of Senior Outreach and showed ways that it is manifested into the organization. For example, staff remarked that the leadership conveys that staff is there to assist their clients and therefore the client always comes first. As a result, staff exhibit great teamwork when there is a staffing shortage or when work in one area significantly increases. Staff have been cross -trained in areas outside their domain given their flexibility to assist other units. Other management mentalities are also adopted throughout the organization and staff are genuinely interested in providing their clients with high quality services. An example of this is the policy that assigns one social worker to be available each day for a drop -in client or a phone call from a client. Employees find this unit to be a good place to work. Employees credit the organization's operational success to the leadership of the Center Supervisor who is very supportive, open to new ideas, and is well educated in the field. Given the staffing levels throughout the Department, Center management has been given great latitude in providing services and managing full operations, as is also the case with other divisions. Staff feel empowered to create programs and manage staff. While this has resulted in a high functioning organization, there is one drawback. Staff in this unit are isolated from the direct politics and decision -making within the Department and therefore are less likely to be seen as key players and to be promoted according to our interviews and Employee Survey. In addition, performance evaluations should be routinely conducted as they can provide needed support and communicate achievement. XI-11 (JIMM, &%90711S. GC The Superintendent that heads Human Services and Adults Sports is involved in the politics and committees for the Senior Center and Senior Outreach. This position is limited in supervision time, given other responsibilities for discrete and unrelated tasks. This position provides the other following duties: ♦ Coordinates the Fourth of July Parade (part-time); ♦ Represents the City for United Way annual campaign; ♦ Represents City on Oak View Task Force; ♦ Represents the City on Youth Shelter Board; and ♦ Acts as liaison to Management Committee for Emerald Cove Senior Community. Many issues related to human services, as communicated in this section of the report, could be improved with more management oversight from department management. Goals and objectives, program evaluation, and long-term budgeting are just a few of the issue areas that need to be addressed in this division by an oversight position. The different sections of the Human Services Division need oversight in dissimilar ways. For example, Senior Outreach and Project Self -Sufficiency have goals and objectives, yet the Senior Center does not. Project Self - Sufficiency staff do perform program evaluation, but the highly customer -driven Senior Center does not. Service Delivery System Volunteers: The Center is doing a good job in recruiting volunteers as can be seen from Table XI-2. The process to enlist a volunteer includes having them fill out an application that includes the City's policy statement for volunteer drivers. Those who drive City vehicles must have their driving record verified by the Police Department. Bus drivers are not volunteers because they need to be licensed drivers. They also attend a six -week, six -hour volunteer training program, which is offered by the staff twice a year. Staff also just started a new, accelerated two-hour training program for those who just want to be senior visitors or to drive senior meals. Volunteers and volunteer hours are tracked through an Access database. There are 400 volunteers in the database and 225 that work more than 40 hours or more per year. Volunteers appear to be abundant. Seventy-five percent of volunteers are seniors who are helping other seniors. Transportation Program: This program serves Huntington Beach residents only. Transportation is provided for bi- monthly shopping, medical visits, and lunch transportation services. The City does not provide services for other trips at this time, but there are County programs that do. The program uses a master computer database to organize its work processes. There are currently 1,800 clients in the database. The program provides trips for about 60 people per day. One full-time employee and one recurrent (20 hours per week) staff member perform dispatch services. Each day, requests are printed and drivers and vehicles are documented on a dispatch sheet. The process is well organized with staff scheduling trips using map codes. Staff is using new phones to communicate with drivers. Service is provided Monday through Friday between 8-4:30 with clients providing 4-5 business days notice. .. .. 011 XI-12 The fleet consists of one sedan, three vans, and two 15-passenger buses with wheel chair accessibility. The Fleet is new, purchased with federal funds, and is therefore in good condition. There is no cost to seniors for this service. Costs are covered through grants, the Council on Aging, Hoag Memorial Presbyterian Hospital, private donations and City funds. Funding is overall solid. Meals: The City, in coordination with other community groups, provides meals each day to homebound seniors. Staff have clear and up-to-date forms, pamphlets, and systems that help to run the . program effectively. There is a driver schedule and a substitute driver list of over 35 volunteers. Social Work: Social workers perform in -take services over the phone, visits in home, care plans, and re- evaluations every three months. Level of effort is tracked by turning in uniform workload sheets each month to the supervisor. Each client is accounted for on a "personal form." The Division recently established a "social worker of the day" program to take phone calls and to perform in -person intakes. Communication Communication is good between Department management and the clients and between the Division manager and the program manager. Through the use of volunteers and their direct client contact, staff is able to maintain good communication with clients. For example, a meal provider that sees a senior each day can inform the social worker of changes in a senior's condition. The Department Director appears to have good communication with the elderly in the community. Facilities and Equipment Staff involved in transportation and social work services operate in a very small working space. The problem is exacerbated when we consider that these services involve talking with people on the phone or radio. The problem could be fixed with a new Senior Center or with a building expansion or temporary facility. The "meal room" has a capacity to provide 150 meals and therefore will not meet the 25 percent expected increase in demand in the next few years. As seen in the Senior Center section of this report, the senior population in Huntington Beach is expected to nearly double in the next twenty years. Employees, responding most negatively in the Employee Survey, stated that their office space should be more comfortable and that facilities should be improved. The current building is well. maintained, well organized, and has an inviting atmosphere. Customer Service According to the President of the Council on Aging, the quality of service provided by the Senior Outreach staff is outstanding. He bases this on the caliber of staff and volunteers and Center's management. He claims that the transportation program is the best in the County. There are no XI-13 (limit COME K customer surveys conducted, but positive affirmations of the Center's services were easy to find from customers during our site visits. Efficiency and Effectiveness Programs are well organized and run fairly efficiently. The transportation program could be enhanced with the use of Geographic Information Systems (GIS). Computer systems are customized and geared towards services making them efficient and effective, though, general computer program support is lacking. A previous City employee set-up customized systems for the Division, but with his departure, there now exists a lack of reliable and timely support for daily and more complex problems. Policies and Procedures Given that the unit uses many volunteers and re -current staff and because staff frequently share in the responsibility for tasks, it would behoove the unit to develop a Procedural Manual to train staff and volunteers. This will also ensure that tasks are done according to the proper systems since these programs involve sensitive community members. The manual can instruct, for instance, on how to close a file, cancel someone from meals, and print out a transportation report. Impending. Issues While the Conference Center will not pose a problem to this unit, the increase in the senior population will. The unit should devise a long-range plan within the next five years to begin to address future challenges. D. RECOMMENDATIONS Recommendation No. XI-6: Develop plan to address short and long-term office space issues. Recommendation No. XI-7: Solve computer systems issues and provide on -going support. The City needs to provide computer systems support to Divisions within Community Services in order for the program administrators to provide continuous and effective services. Recommendation No. XI-8: Develop a procedural manual for permanent, re -current, and volunteer staff. This Division would benefit from a Procedural Manual that provides a "how to" guide to new employees or volunteers. Recommendation No. XI-9: Change superintendent responsibilities to focus on management oversight and planning (See Overall Department Section). XI-14 UMB. MODU uc The current superintendent is limited in performing management duties for Human Services, given other responsibilities that include coordinating the 4t' of July parade. This position should be responsible for the visioning, budgeting, evaluating and leadership of the Division. Other extraneous responsibilities should be given to a coordinator position in the appropriate Division such as Special Events. Recommendation No. XI-10: Re -define the role of the Council on Aging. The City and the Department should re -visit the role, responsibilities, and vision of the Council on Aging. This could be accomplished by conducting a retreat or workshop with the Council to commend them for their efforts and to also re -define how each player within the private and non - private community should work to achieve optimum success for seniors. OAK VIEW COMMUNITY CENTER SECTION SECTION OVERALL The Oak View Community Center provides recreation and human services for at -risk youth, adult and families. Located in a Community Development Block Grant enhancement area, the Center services a high Hispanic, low-income population. The Center's goal is to meet the special needs of the surrounding neighborhood, and provide programming that empowers individuals into becoming successful, well rounded, contributing members of the community. A. MISSION STATEMENT AND GOALS Mission The Oak View Community Center's mission is to create community through people, parks, and programs. This is accomplished by: ♦ Providing Recreational Experiences — Through a variety of programs, activities and classes that allow opportunities to develop new skills and interests. ♦ Fostering Human Development — Through workshops, informational meeting and community forums, as well as providing family and community activities that give a sense of pride in one's self and one's community. ♦ Building Community Partnerships — Through our collaborative members, community groups, and residents. Providing any program that directly benefits the community of which we are a part. Goals The project is intended to offer recreation, education and human services to individuals and families of the Oak View community. By providing recreational opportunities for at risk youth, it gives them alternatives to criminal activities such as gangs, drug abuse and theft. By providing space to other social service agencies, it gives them a secure location to administer programs and XI-15 (IiMtn tW.".I U n: enhance Oak View. The desired results are individuals who make positive lifestyle choice, resilient youth, and a safe community. B. ORGANIZATION AND FUNCTIONS The Center is a safe haven that allows residents opportunities to participate in a variety of recreational experiences, which develop new skills and interests. Focus of the program is on after school programming, but there is some adult and family programming. Recreation programs consist of drop -in activities, equipment checkout, sports leagues, cultural and wellness classes, excursions, and family events. The Center builds community partnerships with social service agencies and also works in collaboration with the Salvation Army, the Community Development Council, and the Southern California Children's Bureau to help provide Huntington Beach's extremely low-income residents with human services at no cost to the City. The Salvation Army provides food, clothing and utility assistance. The Community Development Council provides monthly USDA surplus food items, and the Children's Bureau coordinates and staffs a four -week summer day camp program for 60 elementary school at -risk youth. The Community Partnership Advisory Board distributes CDBG funds, which are used for operating and programming and constitute one quarter of the center's total funding. The General Fund apportions the rest of the funding for personnel. Staffing The Center is staffed with a Community Services Recreation Supervisor and a Community Services Recreation Coordinator. Permanent staff have been at the center for 12 years. Recurrent staff include 6 recreation leaders, 4 recreation assistants, and 1 maintenance worker. The Center's part-time recreation staff all began as youth participants in the Center's programs, worked as Center volunteers, and then were hired on as staff. The Center has successfully recruited staff though this unique process. Sports programming is run by the Coordinator position. C. FINDINGS AND OBSERVATIONS Organizational Structure and Service Delivery Systems One disadvantage with "other" youth sports activities being located in the Recreation Division is that the Oak View's program has not been able to utilize the other Departmental sports programming offered by the City. Oak View participants, for example, are not included in youth championship matches or other on -going programs, which creates further isolation for Oak View residents and also for the Oak View Center staff. While Oak View is considered an enhancement area, it is still a part of the community and it is unclear why programs are not connected more to enhance the overall community and to increase the efficiency of operations that are very similar. XI-16 Managerial Planning, Direction, and Reporting The Oak View Center is somewhat isolated and lacks supervision as a result of the current workload of the Superintendent. For example, the Superintendent reported monthly visits to Oak View versus one visit per day to the Senior Center. There is minimal directsupervision by City Hall and minimal attendance by administrators at activities and events. 'Without involvement in very human -centered programs such as this, staff can feel a lack of recognition and support for a very demanding job. Supervisors need to stay connected to all of their programs for good checks and balances. Workload The center is open for drop -in activities, equipment checkout, and supervision from 2-8 p.m. Monday through Thursday, 2-5 p.m. on Fridays, and 10-4 p.m. on Saturdays. There were 5,943 participants in recreation activities for at -risk youth and adults and 2,067 participants in family oriented/community programs during the fiscal year 2000-01. Staffing, when at the approved level, is adequate to maintain the program and activities described in this section. Activities provided by staff of the center include the following: ♦ Family events such as Dances (family), Pride Day (neighborhood improvement day), and Awards Night (youth center participants). ♦ Youth and Teen Excursions (at cost) to places such as the beach, pool, aquarium, and amusement parks. Serves about 425 youth per year. ♦ Youth and Teen classes serving about 150-200 youth per year. ♦ Sports — Basketball, Indoor Soccer, Roller Hockey, Flag Football and RBI Baseball (Anaheim Angels program). Serves about 325 youth per year. ♦ Outdoor Adventure — Yosemite Trip serves 15 youth and is organized in conjunction with another organization. ♦ Center provides meeting space for several adult classes. ♦ Center hosts adult sports including volleyball and basketball. Women's aerobics is offered at the Center through an agreement with the Children's Bureau. Serves 225 participants each year. Communications, Efficiency, and Customer Service The Center staff provides monthly management reports as required by the CDBG program. This report reflects the number of residents served by a particular program. Recently, the Center has begun measuring the success of its programs through a Customer Satisfaction Survey. The survey asks participants questions that address whether or not the participant had fun, learned a new skill, thought the activity was offered at a good time, felt that the program helped keep him or her out of trouble, and felt that they would participate again. The center's expectation is that they would receive 80 percent of participants rating the questions with a five out six points. The Center received a score of 87 percent and therefore met its performance expectations. XI-17 OT119n aM5. u: Facilities The Oak View Center facility is as well maintained as is possible, given its age and high usage. The facility is clean though there is a great need for minor rehabilitation and remodeling for it to look more aesthetically pleasing and inviting. The Center is used not only for recreation activities, but also for the following: 1) distribution of USDA commodities; 2) Salvation Army emergency services; 3) elementary school awards and presentations; 4) Oak View Family Center programs and summer camp; 5) adult literacy programs and puppet shows out of the library; and 6) monthly Oak View High School student parent meetings. The center, through the use of CDBG funds, is going to construct a skateboard park on site to provide at -risk. youth a safe and legal facility to skateboard. Construction should commence in 2002. Policies and Procedures Managers of the Center, like other units, are having difficulties with the 1000-hour part-time staffing rule. Managers claim that many experienced, good, and well -trained leaders must leave when they reach their 1000-hour mark. Impending Issues Funding for the Center is currently satisfactory with the additional CDBG funds. D. RECOMMENDATIONS Recommendation No. XI-11: Evaluate Opportunities to Combine Oak View Youth Sports with other City Programs to Benefit from Economies of Scale and to Foster Community Growth. Recommendation No. XI-12: Evaluate Opportunities to Improve Facility. The City should work towards bettering the look and feel of the Oak View Community Center through minor improvements. The current Center looks old, well used, and in decline. Minor improvement would include new carpet, fixtures, and equipment. An attractive Center will encourage more participation and therefore help the City, to further its goals to offer recreation, education and human services to individuals and families of the Oak View community. Recommendation No. XI-13: Increase Supervision and Support to Staff in this Division. XI-18 PROJECT SELF-SUFFICIENCY SECTION SECTION OVERALL Project Self -Sufficiency started out as a U.S. Department of Housing and Urban Development (HUD) welfare to work pilot program. The program continues today due to the City's commitment and due to the cooperation between private and public sectors of the community. A. MISSION STATEMENT AND GOALS The program has well defined mission and goal statements, as well as an up-to-date Action Plan (see Policies and Procedures below) to guide the program. Mission The program's mission is to identify, qualify, and assist motivated, low-income, single parent families with minor children in achieving economic independence from public assistance through personal development, education, and job training. Goals and Objectives The agency lists twelve goals and objectives in their 2002 Action Plan. The first three are as follows: 1. To create an awareness in the community of the unique problems encountered by very low-income, single parent families and to secure community support through an effective marketing and public relations program. 2. To reach families in need in the Huntington Beach area and welcome families from shelters by a referral system and community relations. 3. To coordinate existing public and private agencies and resources in providing comprehensive services to these very low-income families through an establishment of an agency network. This program is a well -organized, highly effective organization. The program staff have effectively defined the mission and goals, policies and procedures, and an evaluation process to measure program success. The result is a successful program that greatly benefits the community. See Customer Service below. B. ORGANIZATION AND FUNCTIONS Staffing One full-time Human Services Coordinator and one part-time Assistant Coordinator administer the program. The Human Services Coordinator provides program oversight and development and is seen as an effective leader in the Department and the community. The Assistant provides case management. by establishing achievable goals and objectives, identifying barriers to XI-19 A Grrfn OBE S. u employment, identifying and utilizing community resources, monitoring participants' progress, and conducting participant follow-ups after job placement. The program used to be staffed by two full-time staff members for 25 families, but it is now staffed with 1.5 FTE's for 88-100 families. Staff cuts impact the number of participants that can participate in the program. From 1998 to 2001, participants decreased from 96 to 88. Fortunately, prior program clients also provide volunteer hours to the program, though the program may also benefit if it were to use interns from the local colleges as well. Services Services offered by the organization to clients in the community include the following: ♦ Crisis counseling ♦ Information and Referral ♦ Public Presentations Holiday Programs ♦ Food Pantry ♦ Monthly Newsletter ♦ Clothing and Furniture Donations ♦ Loan Program ♦ Mentor Program ♦ Grant Program ♦ Monthly Meetings ♦ Action Planning ♦ Participant Progress Evaluations ♦ Fundraising (Project Self -Sufficiency Foundation) and... ...the program also assists with housing and, as of September 2001, the program has awarded 157 housing vouchers/certificates. In 1994, in an effort to meet the housing needs of participants, a nine -unit .apartment complex was purchased. Since that time, the program has helped nine families with subsidized rents. Project Self -Sufficiency Foundation The Project Self -Sufficiency Foundation is a non-profit that assists in furthering the goals of the program by raising funds for client support services. During the first six years of their operation, the foundation raised over $140,000. The City started a private foundation to receive money for assistance (i.e. car repair, medical); none of the money goes towards City personnel salaries. The foundation publishes a monthly newsletter, provides scholarship program, and funds the Adopt a Family Program and food pantry. V XI-20 L M-R MINE U( C. FINDINGS AND OBSERVATIONS Workload Division staff case -manage 100 low-income families. Basic tasks of staff are to: 1) open a case file and track client progress; 2) assist with housing, transportation, education, finances, day- care, jobs, and personal items; 3) case manage through a set of goals; and 4) sit on advisory boards to further the program. Every January, the staff survey their clients' accomplishments, which includes their success in education, work, and character. In June, staff holds an annual recognition program. Managerial Planning, Direction, and Reporting The City budgets Community Development Block Grant (CDBG) funds to administer the self- sufficiency program. For fiscal year 2001-02, the program was funded by a majority of CDBG funds with general funds making the difference. Financial contributions from the private sector are placed in a donation account for program needs. CDBG Funds are administered by the Community Block Grant Committee, which is a committee that is City Council appointed. Each year the Division program must compete for CDBG funds with other City community groups. The Division requests funds and regularly communicates the goals and benefits of the program. CDBG fund distributions total $240,000-260,000 with project self-sufficiency receiving from $40,000-70,000 each year. Communications between staff and Department management is effective, even though the program is located at City Hall. The Division staff effectively communicate with the community and with their clients through numerous meetings with boards, organizations and clients, newsletters, brochures, and media venues. Operational Efficiency and Service Delivery Systems The Division is in need of a case management system as the current system is manual. The Foundation is working on this issue, but the City needs to also play a role in developing an efficient system because the City has responsibility for the effective performance of the staff. Policies and Procedures The Project Self -Sufficiency 2002 Action Plan includes a variety of key information on all program guidelines and program components. Guidelines include eligibility requirements, qualifying participants, expenditure policies, case management processes, program participation, program benefits, evaluations, terminations, and recognition policies. Components of the Action Plan include childcare, housing, transportation, education, career counseling, job training and . placement, personal development, and support services. The guidelines and program components are very complete, providing useful information for potential and current clients. XI-21 (OM M, ATS°Cx9Ta Ili Customer Service Citygate had the benefit of reading various newspaper articles on Project Self Sufficiency's success. Customer Service for this program needs to be defined also in terms of community benefit rather than only client benefit. The Division does a skillful job in surveying its clients each year to obtain participant achievements. The Division for example documents the sample list of 2001 success factors below: ♦ 29 clients enrolled in full-time training program ♦ 23 enrolled in part-time training program ♦ 59 enrolled in college classes ♦ 43 are currently working ♦ 50 are working towards an AA, RN, BA, BS, or MA and ♦ 22 are doing some type of community service. According to the survey, 98 percent of clients felt that the staff has always been responsive to their needs. D. RECOMMENDATIONS Recommendation No. XI-14: Assist foundation in resolving case management system issues to increase program efficiency and effectiveness. Recommendation No. XI-15: Incorporate marketing and fundraising tasks in divisional goals and objectives to prepare for potentially difficult funding times. Whether or not the City, or any city for that matter, should provide human services is a policy decision. The human services provided by the Huntington Beach Community Services Department are efficient and highly successful, providing a high level of social benefit to the City and the community. Successes of these programs are well documented and communicated. Given the City's skill in administering such programs, it is our opinion that the City should continue these services, as long as it continues to be supported by foundations, councils, boards, and private partnerships and the City is able to continue using general funds to supplement other revenue sources as needed. The Department though should continue to place efforts in marketing and fundraising given potential cuts in City funding beyond the already experienced five percent cut. Project Self -Sufficiency staff do a superb job in this area and can serve as role models for the other programs. Marketing and fundraising should also be worked into long-term planning efforts such as mission and goal statement development, budgeting, and annual reporting. rill XI-22 OVIL SCUM uc XII. CULTURAL AND EVENT SERVICES SECTION OVERALL The Cultural and Event Services Division provides citywide cultural and historic programs, projects, and special events by serving as part of the Community Services Department. Division Administration provides management, organization, staffing, planning and financial oversight for division activities including the Huntington Beach Art Center, Film Office, Public Art Program, Newland House Museum, special projects and events. The staff also serves as liaison to a variety of Boards, committees and special interest community groups. A 15-year Cultural Master Plan was adopted by the City Council in 1994. It provides the framework for much of the present and future management, programming, operations and planning aspects of the Cultural and Event Services Division. A. MISSION STATEMENT AND GOALS Mission Statement The Division will provide cultural opportunities for the residents of Huntington Beach and to the visiting public. The Division will work with other departments to build a stronger sense of community and broader identity for Huntington Beach through the public arts program and the City's beautification efforts. Goals The 2001 Huntington Beach Strategic Plan has established eight Strategic Issues. The Cultural and Event Services Division is guided most specifically by the following: The Fiscal Integrity goal to "Establish a sound financial foundation based on expenditure controls that ensure the economic provision of services and reliable revenues sufficient to pay for city services" and its priorities to: "Manage. overall finances with the philosophy that ongoing revenues pay for ongoing costs. " "Create means for programs as self supporting as feasible. " "Enhance and grow public/private partnerships to generate revenues for public service. " The Community Livability & Sustainability goal to "Build and maintain livability, a sense of place and an exceptional quality of life within a sustainable urban environment" and its priority to: "Conduct special events that connect residents to their community and link them to their city government. " XII-1 0011 F6. L: The Enrichment, Communication & Involvement goal to "Ensure that Huntington Beach's local government is open, accessible, responsive, nurturing, and respectful to all the citizens it serves" and its priorities to: "Continue to provide diverse educational, cultural, and recreational opportunities for all citizens. " "Foster and encourage community service by citizens. " "Provide communication vehicles by which our citizens can learn about the city's services and programs. " To accomplish the goals and priorities of the Huntington Beach Strategic Plan, the Cultural and Event Services Division has established the following Goals. Coordinate with City Council and the Allied Arts Board to manage/develop cultural programs and facilities. ♦ Provide oversight for division/Art Center budgets and personnel resources. ♦ Review Cultural Master Plan for possible update. ♦ Expand funding for all programs. ♦ Continue stabilization of Art Center operations by mentoring newly hired staff. ♦ Expand community involvement with Art Center Foundation and Allied Arts Board. ♦ Provide public art "How To" guide for developers. ♦ Develop concept for outdoor historic panel program for downtown. ♦ Coordinate arts awards event 2002. ♦ Assist with coordination of major fundraising activities. In addition to the above Goals, the Cultural and Event Services Division has identified the following Challenges and Opportunities. ♦ Maintain Funding for Division and expand funding for Art Center. ♦ Expand educational programs at the Art Center. ♦ Broaden park concerts, after -school art programs. ♦ Continue to develop the outdoor public art program. ♦ Establish framework for outdoor pictorial historic program for downtown. ♦ Increase public awareness and involvement with the arts. B. ORGANIZATION AND FUNCTIONS The Cultural and Event Services Division provides many programs and services to the residents and visitors of Huntington Beach. XII-2 (Or,K 05SIX 5. ac Administration The staff of the Cultural and Event Services Division are responsible to plan and conduct the division programs, plan and maintain the division facilities, develop and manage the budget and grants, develop private funding, schedule and manage personnel, complete special projects, implement the Cultural Master Plan, develop and manage the Public Art program, manage the city film permitting program, and manage the City's historic preservation efforts and programs. Staff also, acts as liaison to the Arts Board, the Historic Resources Board, the Art Center Foundation Board of Directors, the Historical Society, the Huntington Beach Concert Band and miscellaneous community special event planning groups. The Community Services Manager also serves as Executive Director of the Huntington Beach Art Center Foundation. Huntington Beach Art Center The Art Center is a public/private partnership between the City of Huntington Beach, and the Huntington Beach Art Center Foundation, a private non-profit corporation. The Huntington Beach Art Center is a membership and fundraising organization, providing a full range of multidisciplinary arts programs for children and adults. The Art Center offers a variety of programs including contemporary art exhibitions, artist talks, workshops, a music series, a lecture and literature series, video/film programs, multidisciplinary art classes for children and adults, children's art camp and after school programs, family festivals and special events. The Art Center develops funds through special events, grants, membership drives and revenues from classes and programs. The Art Center coordinates fundraising and program activities with the Art Center Foundation, volunteer groups and community partnerships. The Huntington Beach Art Center plays a unique role in the community as one of the only resources for exposure to contemporary fine art. The Art Center offers an opportunity for children to receive an arts education at a level not available in most public schools. As a partner to the school district, the Art Center has played an important role in serving at risk and under- performing students with after school mentoring and instructional programs. Through a jazz and blues series, lectures and exhibitions, the Art Center also engages the community in cultural activities that offer an exceptional quality of life in the heart of Huntington Beach and enhances the appeal of Huntington Beach as a destination for tourism. The Art Center's recent growth, as demonstrated in attendance figures, capacity enrollment in classes and art camps, and increasing attendance a music events and exhibition opening, reflects the dynamic role the Art Center plays in the local community. The Art Center was open 360 days this past year, with attendance of 3,500 in special events, 3,400 in classes, 1,400 in family programs, 600 in community uses of the facility, 500 in art camp, and 400 in after -school programs. There were also 8 art exhibition programs at the Art Center. Film Office About 50 film permits will be processed this year. Promotional materials are needed to enhance this program. XII-3 Performing Arts Program -Concert in the Park Huntington Beach Concert Band is a volunteer organization of approximately 70 musicians. The band is celebrating 28 years of providing music to the community and presents performances throughout the year, funded by the City. Public Art Program Public art is different from other art in that it is accessible to the public, it typically reflects an awareness of its site, both physically and socially, and, most importantly, public art involves community process in its creation. Art revitalizes public spaces and makes them seem more welcoming. It enhances private and public developments and contributes to a more livable and beautiful city. A deeper interaction occurs when one is visiting, working or living near a place with art. For these reasons, the City of Huntington Beach encourages the inclusion of art within public and private developments. The City has developed art program guidelines, which are supported and monitored by the Cultural Services Manager. The City of Huntington Beach has been gathering outdoor public art since the early 1970's and has incorporated it into many projects in the city. A Bike or Driving Tour has been established by the Cultural and Event Services Division to guide visitors to 11 pieces of art near the downtown area. Promotional materials are needed to enhance this program. Special Projects Many special projects have been completed by the Division and the projects for the current year include: ♦ Launching a Cultural Program Newsletter sponsored by grant funds. ♦ Developing a Photographic Display for Downtown. ♦ Expansion of the Summer Concert Series. ♦ Co -coordinate a dedication of the oil field in Huntington Beach with a special panel discussion on the industry with early industry leaders. ♦ Developing a web site for the Division and the Art Center. ♦ Completion of the ."Guidelines for Developers -Public Art Elements How -To Manual." ♦ Review.of the Cultural Master Plan adopted by the City Council in 1994. Special Events Some of the recent events offered by the Huntington Beach Art Center are "Val Popp", "Jazz at the Center", "Friday Night Blues", `Benefit Art Auction", "Photography and Multi -Media Exhibit", and "Sculptural Engineering". The Huntington Beach Art League schedules regular meetings featuring guest artists and art displays. The League projects include outdoor and mall shows, scholarships, and two art galleries. XII-4 Grf �;mmrrs uc Historic Program — Newland House Museum The Newland House Museum, built in 1898, is the City's best -preserved and most historically significant example of early homes. It is the home of the Huntington Beach Historical Society and is open to the public 4 days per week for tours and classes. Fund Development $200,000 was raised from private donations last year. Allied Arts Board — Huntington Beach Art Center The Allied Arts Board coordinates programs related to the arts within the City providing recommendations to the City Council on development of the arts and other cultural activities for the city. It is a nine -member board appointed by the City Council. Goals: ♦ Advise City Council on cultural art issues. ♦ Encourage the formation of a Community Cultural Arts Fund re -granting program (cultural trust fund) supporting a re -granting program to benefit all community arts organizations. ♦ Support findings of the City Council's adopted Cultural Master Plan. ♦ Recognize quality work and outstanding service to the arts. Obiectives: ♦ Encourage continued city financial support for the Cultural & Event Services Division. ♦ Support remaining recommendations of the Cultural Master Plan. ➢ Expand the summer concert program in Central Park ➢ Complete Phase II of concert bandstand/bandstand shell in Central Park ➢ Complete outdoor Public Art program/policy guidelines for development ➢ Establish relationships with dance and music organizers ➢ Initiate anArts in Education program ➢ Study the need for an alternative location for Huntington Beach Playhouse ♦ Host an annual arts award recognition event. ♦ Support communication between organizations, artists, and community. ♦ Encourage outreach programs. ONO XII-5 cIMM VM1 111 s. €1% Historic Resources Board The Historic Resources Board provides. information to the City Council pertinent to the conservation and preservation of the city's historic resources. The board is made up of eleven members appointed by the City Council. Art Center Foundation The Huntington Beach Art Center Foundation was created to raise $1,500,000 for the development of the Huntington Beach Art Center and its programs. It is very active in supporting the Art Center and it programs. C. FINDINGS AND OBSERVATIONS Staffing The Cultural and Event Services Division of the Community Services Department is staffed with 5 Permanent Positions (1 vacant) and 10 Recurrent Positions (2 vacant). The Permanent Positions include a Community Services Manager, an Administrative Secretary, an Exhibition/Performance Coordinator -Curator, a Cultural Services Supervisor and a Cultural Services Aide (vacant). The Recurrent Positions include an Account Tech, 4 Gallery Aides, 3 Museum Aides, 2 Maintenance Workers, an Exhibition Preparator, and a Volunteer Coordinator (vacant). There are also 4 Contracted positions, which are a Public Art Consultant, an Education Coordinator, an AV/Special Project Coordinator, and a Development Coordinator. The city is currently not filling staff vacancies so the remaining employees have to fill in for the vacant positions, which results in reductions in programming. One of the jobs that is reduced is fund raising and membership development, so the time is not available to obtain the funds to support the operation. Managerial Planning, Direction and Reporting Sometimes planning is difficult to do because accurate information is not available in a timely manner. Planning is also impacted by the lack of regular meetings with other staff in the Community Services Department. Service Delivery Systems The city uses RecWare to register its class participants and manage the finances for the classes. The Art Center is not able to use RecWare because it is not installed in their computers and they are not trained on how to use it. This requires a much slower manual system, which is sometimes inaccurate and not customer friendly. Workload There are five vacant positions in this division, Education Coordinator, Development Coordinator, Volunteer Coordinator, AV/Special Project Coordinator, and Cultural Services Aide. Some of their work has been contracted, and some is being done by the other staff members, but the majority is not being done. The expansion of programs and program funding have been the areas most affected by the vacancies, including building the membership program, XII-6 (PrIARt W.KME K, developing private support and securing outside funding and grants. The present staff spends its time maintaining the current programs and additional programs and projects are needed to create additional support. Other items needing attention are a review and update of the Cultural Master Plan, staff training and development, expanded educational programs, and the establishment of a web site. Communications There is a lack of information exchange between the Division and the Community Services Department and other city departments. Frequently information is either late or absent so members of the Division are not able to participate effectively in meetings or events that are important to them and their programs. In addition, directions are given to subordinates instead of through the chain of command. This leads to confusion and ineffective operations. Regularly scheduled meetings between the Division and others in the Community Services Department need to be held to allow the accurate exchange of information and while it is desirable for information to be exchanged between all individuals at all levels, directions should be passed through the chain of command so that the affected managers are included. Operational Efficiency and Effectiveness The Division is experiencing errors in the financial information it is receiving from the City. They are unable to effectively operate the new city financial software and have not been able to get the proper training on the new system. This produces difficulties in managing the budget and tracking grant funds. The Library also provides cultural programs and there is no coordination between them and the Cultural and Event Services Division. This leads to duplication of programs, which can conflict and make both programs less successful. Impending Issues Increase funding with grants and individual donations to expand activities. Study ways,to meet increasing demand for new development public art program requirements and film permitting by developing promotional materials and guidelines. D. RECOMMENDATIONS Recommendation No. XII-1: Develop systems to improve communication between the Cultural and .Event Services Division and the rest of the city staff. Needed information is frequently late or does not reach the Division from the Community Services Department and other departments of the City. Improved communication processes need to be established to keep the Division better informed in a timely way so they can be included in the City's business. Recommendation No. XII-2: The Department Director needs to keep the department managers informed of his decisions and directions. XII-7 Y Sometimes the Department Director gives decisions or directions to staff below the department managers without the knowledge of the managers. This creates confusion between the staff and the managers and breaks down the authority of the managers to do their jobs effectively. Recommendation No. XII-3: Define the roles of the Library Department and the Cultural and Event Services Division should play in providing cultural programs and services. There is a duplication of some programs offered by the Library Department and the Cultural and Events Division. This is not the most effective use of city resources. A decision should be made about who will offer which programs, and a system should be developed to coordinate the programs so that the programs that are offered by one department do not conflict with those offered by the other. Recommendation No. XII-4: Upgrade the Art Center computer systems and staff capability to be able to use the city program registration software and the city financial software. The City uses RecWare to register class participants into classes and to track the registration fees. This program is not available to the Art Center so they must do the process manually, which is not as efficient or customer friendly. The Art Center also cannot access the City financial software for their financial information. This requires that the information must be obtained through other means that is less timely and less accurate. Recommendation No. XII-5: Provide additional staff time to free the Community Services Director to be more active in fundraising to support the Cultural and Event Services Division. The Division is caught in a paradox between program development and fundraising. Without programs, it is more difficult to raise funds, either by memberships, program fees or donations. In addition, without the funds, it is more difficult to develop programs. Additional staff time is necessary to be able to provide the programs that will facilitate the increase in revenues. XII-8 Llit��'Tf fliS;�{IftIfS. L'C XIII. SPECIFIC EVENTS / PIER PLAZA SECTION OVERALL This program is responsible to coordinate the approval process and operational logistics for events at Pier Plaza and other public property. This includes allocating the use of Pier Plaza for events and activities, and recruiting talent and publicizing the free public concerts. . There are about 15 Plaza concerts annually. Approximately 70 permits are approved annually and they generate revenue of about $120,000. An additional $50,000 is received from corporate sponsorships and $30,000 in fees is waived for non-profit organizations requesting support from the city. The economic value of these events should be calculated with the most valid and accurate method possible in order to help the city determine the level of self-support or profit it wants to establish for the different events. A. MISSION STATEMENT AND GOALS Mission Statement There is no. published mission statement for this program, but there is a Statement of Purpose, which is: "The City of Huntington Beach recognizes the importance of events to the quality of community life and their positive influence on the local economy. The Specific Events Section of the Community Services Department works with individuals, civic/non-profit organizations, businesses and event organizers or promoters to plan, develop, monitor, coordinate, publicize and promote citywide events which take place on public property. Through a wide range of community events, celebrations, competitions, markets, music and performance, events provide diverse recreational and cultural opportunities, benefit the community and increase tourism. In public spaces such as beaches, parks, plazas, parking lots and streets, events provide a positive and unique experience that is shared by people of all ages, socio-economic groups and cultural backgrounds." Goals The goal of Specific Events is to ensure that promoters and organizers follow the specific event permit process, obtain City approvals, pay for City costs and implement their events according to the approved terms and conditions of the specific event permit. In addition, the City has established six goals for the Specific Events Section, which are: ♦ Review applications, set conditions, approve and evaluate Specific Events proposed to be located on public property. ♦ Review and update policies, procedures and practices of Specific Events and recommend changes. ♦ Support the growth and development of large annual events for Huntington Beach. ♦ Program and facilitate City events. 1 XIII-1 cr?Att flt9ol a uti ♦ Assist local non-profit organizations in producing charitable or community events by coordinating city permits, services, equipment and support staff. ♦ Through events, promote Huntington Beach as a Southern California destination for local, regional, national and international tourists. The 2001 Huntington Beach Strategic Plan has established eight Strategic Issues. The Specific Events/Pier Plaza section is guided most specifically by the following goals and priorities: The Fiscal Integrity goal to "Establish a sound financial foundation based on expenditure controls that ensure the economic provision of services and reliable revenues sufficient to pay for city services" and its priorities to: "Manage overall finances with the philosophy that ongoing revenues pay for ongoing costs. " "Create means for programs as self supporting as feasible. " "Create internal service funds to facilitate cost allocation, cost recovery, and performance measurement. " The Economic Development goal to "Achieve development that maintains or improves the city's fiscal viability and reflects economic demands while maintaining and improving the quality of life for current and future residents" and its priorities to: "Recognize tourism as a prominent activity and seek its promotion and development. " The Community Livability & Sustainability goal to "Build and maintain livability, a sense of place and an exceptional quality of life within a sustainable urban environment" and its priority to: "Conduct special events that connect residents to their community and link them to their city government." The Enrichment, Communication, & Involvement goal to "Ensure that Huntington Beach's local government is open, accessible, responsive, nurturing, and respectful to all the citizens it serves" and its priority to: "Continue to provide diverse educational, cultural, and recreational opportunities for all citizens." B. ORGANIZATION AND FUNCTIONS The Specific Event Coordinator position in the Community Services Department reports to the Department Director. The Coordinator receives all special and specific event permit applications, and after a review makes recommendations for the fees and conditions of approval to the Specific Events Committee. The Specific Events Committee meets on an as -needed basis to set conditions for the specific events conducted in Huntington Beach. It includes representatives from each department, including Fire, Police, Community Services, Public Works, Planning, and Building and Safety. It also includes a downtown community member and downtown business member. The Special Events Coordinator also provides the staff and r XIII-2 cnrle 500fl rs. K administrative support to the Specific Events Committee. After approval, the Coordinator manages the permit, collects the approved fees, and enforces the committees permit conditions. Another function of this section is allocating the use of Pier Plaza for events and activities, including presenting programs and recruiting talent and publicizing the free public concerts. Corporate sponsors pay for the Pier Plaza Presents Concert Series. Various city departments, primarily Community Services, Police and Public Works, charge their costs for labor and supplies related to the operation of specific and special events on public property. Fees collected from event organizers offset most of the direct expenditures. Some expenses are not recovered from non-profit organizations that apply to the city to have their fees and costs reduced through a policy adopted by the City Council. Support is also provided for the Fourth of July Executive Board and celebration activities. It coordinates relations between the city and its corporate partners to ensure their promotional events have the proper permits and are coordinated with all other events on public property. The Fourth of July celebration includes a concert at Pier Plaza, a fireworks show at Huntington Beach High School stadium, a pre -parade breakfast at Lake Park, and a Surf City 5K run. C. FINDINGS AND OBSERVATIONS Staffing The Specific Events/Pier Plaza program_is staffed by one Permanent position that reports to the Director of the Community Services Department. Service Delivery Systems All payments received from event organizers to cover the costs for City services provided to the event are deposited in a Specific Events account. All City expenses related to the events are charged to this account. By centralizing all fees and costs for specific events in one account, the individual City department budgets are not impacted, and the City is better able to track the revenue and direct expense for the events. Workload About 70 permits are approved annually from 90 specific event applications submitted. There are about 15 Plaza concerts annually. The Special Events Coordinator makes a preliminary review of all applications and submits those that meet the city standards to the Special Events Committee along with recommendations for conditions and fees. After approval by the Special Events Committee, the Special Events Coordinator collects the assigned fees and implements the permit with the applicant. Communications The Special Events Committee provides the means for all involved City departments to become informed about the events and have an opportunity to identify their needs and recommendations. XIII-3 G!? 11t 0VXMI T& L•C Customer Service The Coordinator also helps community organizations, event promoters, outside agencies and event sponsors to develop events that meet the City event goals. These goals include providing the community with Surf City Lifestyle Sporting and Cultural Events that have a positive marketing image for the City, provide a positive economic impact, and pay for all direct City costs. Effectiveness and Appropriateness of Procedures and Processes Monitoring the conformance of . the permit conditions can be very time consuming because numerous visits to the site may be required. When there are several events scheduled close together, it is difficult for one person to monitor all of them. The city needs a system to track personnel, equipment and supplies provided for the events so it can be analyzed to better determine the best process for providing support to events and for determining accurate financial records. The city needs a policy to establish the waiver of fees for non -profits to create greater equity. It also needs a system to track the fee waivers. Impending Issues With the development of properties adjacent to the beach and the Pier Plaza, a greater number of permits are expected and additional staff time to process and manage the permits will be needed. With changing economic conditions, the city may have to adjust its policies for fee waivers. D. RECOMMENDArton Recommendation No. XIII-1: Develop a Permit Policy and Procedures Manual for Specific Event Permits and a tracking system to monitor compliance to permit requirements. A Permit Policy and Procedures Manual would identify the requirements and processes for permits.. A tracking system would help insure that applications submitted for events are in compliance with city policies and the conditions of approval assigned by the Specific Events Committee. The processes have been satisfactory to date because they have been handled primarily by the Specific Events Coordinator. However, as the number of permit applications increase and additional staff become more involved in the processes, the Policy and Procedures Manual and tracking system will help provide uniformity and consistency in managing the events. Recommendation No. XIII-2: Budget an amount of money for fee waivers to support selected non-profit organizations. If the City budget included an amount of money to be used for fee waivers, it could control its contribution to support selected non-profit organizations. A committee could be established to receive applications from the organizations seeking city support for their events, and to allocate XIII-4 tQt��f R�;'LIflftS. LC portions of the budgeted amount to the organizations according to the city criteria. The amounts would be transferred into the Specific Events Fund and used toward the fees charged. Recommendation No. XIII-3: Charge a fee for Specific Event Permits. Fees charged for Specific Event permits would cover the expenses for City staff time in processing and monitoring the permits. This would make the permit process self -funding so that an increase in permits would not impact the City budget. Staff time could be provided according to the needs of the permits. Recommendation No. XIII-4: Develop a Reporting system for Specific Event Permits. A Reporting System for Specific Event Permits would compile all of the data for the permits into a database, which could be analyzed for conformance to City standards. It could also be used to determine trends and identify potential problem areas in the program. XIII-5 VA W (11M91 OV7,01 s. U. XIV. HARBOR AREA SECTION OVERALL The Huntington Harbor is one of those municipal functions and issues that frequently remain at a relatively low priority because there is not an immediate seeming crisis or demand for action, and yet the need for action builds persistently. There are at least four major issues: dredging, water quality, live aboards, and pier head line violations. There are also several minor ones, mini park renovation and provision of lifeguards, that need to be resolved in the next few years. At the top of the list is dredging, with the Department reporting that the Harbor will be closed at low tide within the next several years as a result of silt build up. These issues combine to fall under two basic headings: regulatory and financial. A. MISSION STATEMENT AND GOALS There are no adopted mission statement or goals for the Harbor function. It has no full time assigned staff, being dealt with part time by the head of Beach Maintenance and the Department Director. The only goals are to deal with the pending critical regulatory and financial issues. B. ORGANIZATION AND FUNCTIONS Responsibility for the Harbor nominally rests with fhe Community Services Department, but much of the work and regulatory activity is undertaken by Public Works. A review of several of the major Harbor issues will illustrate the role of Public Works and raises the question of where responsibility for Harbor issues should reside. The Harbor was last dredged in 1989, and while the intent had been to dredge again in 1995-96 in cooperation with Orange County, the bankruptcy of the County shelved the project. Now the draft in many areas at mean high tide is only 4 feet and some areas of the Harbor are expected to be impassable within the next year or two. When the dredging is finally done, it will be by contract handled through the Public Works Department. Related to this is the engineering problem of how you prevent further silt buildup that is at least partially related to the flood control channels and the silt they carry and deposit in the Harbor. While the Community Services Department Director has taken the lead in discussing this latter issue, he has to rely on Public Works for their engineering expertise. Water Quality is a multifaceted issue in the Harbor area that again is largely the concern of Public Works staff. The water quality engineer in that department deals with issues of leaking tanks, illegal dumping in the Harbor, holding tanks, and bacterial related closures. There is some concern that bacterial problems are related to the flood control channel flow patterns and silt deposit. Additionally there are close to 200 outlets that allow surface runoff to enter the Harbor carrying organic matter that can contribute to bacterial .build up. Storm water outlets and administration of the NPDES storm water permit is typically the responsibility of the Public Works Department. XIV-1 Live Aboards is a regulatory issue that so far has been handled informally by the Community Services Director. The Department does not have enforcement personnel to deal with the noise and trash that sometimes accompanies the use of boats tied up to docks as a patio extension or even for an extended weekend visit. When there are complaints, the Director usually seeks voluntary compliance, because it is usually difficult to deal with problems associated with parties other than noise. Pier Head Line violations is an issue related to live aboards. The Pier Head Line is an "imaginary" line at the back of the docks. Boats tied up at a dock are not supposed to extend beyond a designated distance so they do not impede passage. Additionally the larger boats may exceed the capacity of the dock to properly restrain them and they deteriorate the dock and may break loose during a storm. The Public Works Department has assisted in identifying about 1,500 boats that violate the Pier Head Line rules, but there are presently no enforcement personnel and there is some lack of clarity in the ordinance that may make it currently difficult to enforce. These last three issues —Water Quality, Live Aboards, and Pier Head Line violations —are regulatory issues that can only be effectively handled if the City assigns enforcement personnel. Presently there are none. The Community Services Department presently is taking the lead in developing a regulatory ordinance and a boat docking permit fee that will generate the funds to hire enforcement personnel and generate the money to cover both dredging the Harbor and the frequent cleanup of trash in the water. This is an appropriate approach to finance the dredging and regulation of the Harbor area, since those paying the fee will largely be the beneficiaries of the services and their use of the Harbor creates the need for the regulation. C. FINDINGS AND OBSERVATIONS Organizational Structure and Reporting Relationships While the Harbor might be viewed as a recreational location and asset, in fact its use is largely restricted to a small group of boat owners and the issues surrounding the Harbor are not recreational but instead are engineering and regulatory problems. The few potential recreation issues such as renovation of the small parks in the area and the provision of lifeguards are wholly unrelated to the principle issues that the Harbor area creates at this time. The principle department in dealing with the issues is Public Works, with the Community Services Director only serving as an organizer and "responsible Department Director" for the problems. Since the Community Services Department really does not have a primary role in the resolution of the major Harbor issues, this takes important time away from the Director who is already heavily burdened by the current and pending capital projects in the Department and the need to pay more attention to the day-to-day operations and planning of recreation and beach activities/services. Impending Issues Dredging the Harbor is an urgent issue that needs to be resolved within the next 12 months before there are closures. Development of a permit fee or some similar funding mechanism is similarly urgent, since dredging will likely be done with the use of debt financing and a revenue source needs to be secured before the debt is incurred. The permit fee should be large enough to . also handle regulation, particularly of the Water Quality issues and violations and provide a crx�:, �r��rxat XIV-2 funding mechanism to potentially deal with the bacterial problems related to the Harbor and storm water discharge. These latter problems could quickly become a financial liability for the City if either the state or federal government takes regulatory action to require cleanup by the City as a result of Water Quality violations. D. RECOMMENDATIONS Recommendation No. XIV-1: Transfer organizational responsibility for the Harbor to the Public Works Department, except park and lifeguard issues that can remain with Community Services. All of the major Harbor issues fall within the current organizational purview and expertise of the Public Works Department. It creates an unnecessary organizational layer and distracts from the core work of the Community Services Department to leave the Harbor issues as the responsibility of the Community Services Director. Recommendation No XIV-2: Develop a fee program to fund dredging and the regulatory activities related to the Harbor. Given the limit number of beneficiaries of the Harbor facilities, this is a classic instance in which to consider a fee program as opposed to the use of general tax funds to deal with Harbor issues. This needs to be done within the next few months in order to undertake Harbor dredging during 2003, before more silt buildup makes portions or the Harbor impassable even during high tide. XIV-3 (JIM. alt IMI(M. U. XV. SUMMARY OF EMPLOYEE SURVEY RESULTS A. INTRODUCTION Citygate Associates administered an Employee Survey to those employees of the City of Huntington Beach Community Services Department from May 15 to May 31. 140 employees completed the survey. The distribution of employee responses by Division is shown in the following table. Department Division Number of Survey Respondents Administration 6 Beaches, Recreation and Development 63 Cultural Affairs 4 Recreation and Human Services 57 Special Events 1 Not Specified 9 Total 140 The following table indicates the number and type of the employee who responded. Type of Employee Number of Survey Respondents Full Time 41 Permanent Part Time 27 Recurrent 46 Volunteer 14 Other 2 Not Specified 10 Total 140 Employees were asked to indicate their degree of agreement with a variety of different statements on an answer scale ranging from "strongly agree" to "strongly disagree." The survey asked about employee perceptions of 70 different statements. For scoring and analysis, the answer scale was assigned scores as follows: XV-1 Answer Scale Score Strongly Agree 1 Agree 2 Neutral 3 Disagree 4 Strongly Disagree 5 For example, a statement receiving a score of 2.5 indicates that on average, employees had a slight tendency to agree. Whereas a score of 3.5 would indicate that employees had a slight tendency towards disagreeing with the particular statement The Survey is used to assess employee perceptions, and thus satisfaction, of their working environments and of Department operations. To assess this, the surveyasked questions regarding the following areas: 1. Mission, Goals and Objectives 2. Organization, Workload and Staffing 3. Morale/Positive Work Environment/Employee Commitment 4. Customers and Service 5. Pay and Fairness 6. Communications, Decision -making and Improvement 7. Financial Management and Controls 8. Facilities, Equipment and Technology 9. Leadership and Supervision This chapter provides a summary analysis of the survey results for all Department employees. The survey instrument can be found in Appendix B of this report. The detailed survey results can be found in a separate volume entitled "Huntington Beach Community Services Department Data Tables of Employee Survey Results." B. RESULTS FOR ALL DEPARTMENT EMPLOYEES The following table represents the average score for the various areas of.the survey, and ranks them from the most "positive" to the more "negative," indicating which areas employees were more satisfied with, and areas for which employees were less satisfied. XV-2 Rank Section Average Score 1 Mission, Goals, and Objectives 1.46 2 Leadership and Supervision 1.78 3 Customers and Service 1.86 4 Organization, Workload and Staffing 1.93 5 Morale/Positive Work Environment/Employee Commitment 1.99 6 Pay and Fairness 2.3 7 Facilities, Equipment and Technology 2.35 8 Communications, Decision -Making and Improvement 2.37 9 Financial Management and Controls 2.8 Survey Statements Most survey statements received a score of less than 3, meaning that the employees, overall, have a relatively "positive" perception of their working environment and Department operations. Of the 70 statements contained in the Employee Survey, 69 received an average score of less than 3. These were statements with which employees had at least a slight tendency to "agree." The following table shows the statements with which employees most strongly agreed. Statement Average Score I know my job responsibilities. 1.2 I understand my role in carrying out the mission and goals of my Department. 1.3 I understand the mission and goals of the Department. 1.4 I feel that I am personally responsible for the quality of service provided in my section. 1.4 Recurrent staff is important to meet my section's assigned workload. 1.5 I would describe thecity of Huntington Beach as a good place to work. 1.5 On average, there were no statements in which employees had strong disagreement. The lone statement for which employees had a slight tendency to disagree is: "We get accurate budget expenditure reports," indicated by a score of 3.1. The following table shows statements that scored a 2.5 or higher. Although Department employees had at least a slight tendency towards agreeing with the statements, these do point out areas for which the Department has room for improvement. XV-3 Statement Average Score We have an effective accounting system. 2.9 Necessary capital improvements are funded. 2.9 I am satisfied with the promotional opportunities available to me. 2.8 Our fees for service fully recover both direct costs and Department and Citywide indirect support costs. 2.8 The number of facilities to provide services to the community is adequate. 2.8 My Division regularly considers modifying rules or changing the way things have been done in the past. 2.7 The facilities we use to provide services to the community are of high quality. 2.7 My pay is equivalent to similar positions in surrounding public agencies. 2.6 I have adequate opportunity to provide my input into important departmental decisions. 2.6 I receive my annual performance evaluation in a timely manner. 2.5 My section has adequate staffing to complete our assigned tasks. 2.5 The benefits package (retirement/health) is fair. 2.5 Our office space is comfortable. 2.5 Important information generally arrives first through official communications, rather than through the "rumor mill." 2.5 Overall, the respondents of the survey agreed with the statements, indicating their satisfaction of their working environments and the Department's operations. There seemingly is no major area of concern that raises any "red flags" for the Department, thus identifying any areas for significant improvement. However, the survey did identify areas that employees are not as satisfied with as the rest. These areas are: ♦ Financial Management and Controls; ♦ Pay and Fairness; ♦ Communications, Decision -Making and Improvement; and ♦ Facilities, Equipment and Technology. .. , + XV-4 crr;IN 0:01a tic APPENDIX A COMMUNITY SERVICES DEPARTMENT CURRENT ORGANIZATION CHART OUR 9�, m, ffS. 4t Community Services Department Existing Organization Appendix A-1 rr r• arms mn ut APPENDIX B EMPLOYEE SURVEY INSTRUMENT CI[rIfflln UIC-015. U% W'1 go. (156fi f ASSK TfS. LAC CITY OF HUNTINGTON BEACH COMMUNITY SERVICES DEPARTMENT EMPLOYEE SURVEY PLEASE COMPLETE THIS SURVEY BY 5PM, FRIDA Y, MA Y 31. RETURN COMPLETED SURVEYS IN THE ATTACHED ENVELOPE TO: CITYGATE ASSOCIATES CARE OF PETE GRANT — CITY ADMINISTRATOR'S OFFICE City staff will NOT open surveys — they are only being collected for transmission to Citygate. Por favor llame a Matt Karl, al telefono (714) 536-5281 si usted necesita ayuda en llenar este cuestionario. Citygate's Employee Survey is a confidential document. None of your individual responses will be revealed to any individual, outside of Citygate's employees. The identity of all respondents will be protected. The tabulated results of this survey will be presented in our Final Report in summarized form only. We will use the information you provide to identify opportunities for improvements and areas of employee concern. If you require any special assistance completing this survey, including a large print survey or a reader to assist you, please call Randy Tan at 1-800-275-2764, extension 105. Employee Profile Select the Division in which you work: o Administration o Beaches, Recreation, and Development o Cultural Affairs o Recreation and Human Services o Special Events Select the Section/Operation in which you work: o Adult Sports o Beach Maintenance o Cultural and Event Services Huntington Beach Community Services Department Employee Survey, 1 o Development o Human Services 0 Parking/Camping o Marine Safety o Recreation o Specific Events Type of employee: 0 Full-time 0 Permanent Part-time 0 Recurrent o Volunteer 0 Other Number of years employed/volunteered with the City of Huntington Beach: o Less than 2 years 0 2-5 years 0 5-10 years 0 More than 10 years Number of years employed/volunteered with the Community Services Department: 0 Less than 2 years 0 2-5 years 0 5-10 years 0 More than 10 years A series of statements follows, broken down into sections. For each statement, please select the one choice that best characterizes your response to each statement. The response columns are labeled as follows: Strongly Agree Agree Neutral —neither agree nor disagree Disagree Strongly Disagree If you have an opinion on the stated question, please use one of these columns to record your response. The neutral column should be used if you have mixed opinion, and feel that neither "agree" nor "disagree" wholly apply. If you do not have an answer or if the statement is not applicable to you, select `Don't know or N/A.' Huntington Beach Community Services Department Employee Survey, 2 Section 1. Mission, Goals and Obiectives (Purpose): Strongly Strongly Don't Agree Agree Neutral Disagree Disagree know or N/A 1-1. 1 understand the mission and goals of my Department. 1-2. I understand my role in carrying out the mission and goals of my Department. 1-3. 1 understand what my Department's leadership's vision is and what I am supposed to do to achieve it. Section 2.Organization, Workload and Staffing Strongly Strongly Don't Agree Agree Neutral Disagree Disagree know or N/A 2-1. I understand my Department's organizational structure and my role in it. 2-2. 1 understand my Department's work processes and use them effectively. 2-3. 1 know my job responsibilities. 2-4. I am able to work across organizational lines to improve service to the community at large. 2-5. My section has adequate staffing to complete our assigned tasks. 2-6. The workload in my section is fairly divided among the available staff. 2-7. Clear, written policies and procedures provide me with guidance on how to do my job. 2-8. Our policies and procedures are consistently followed in day-to-day operations. 2-9. Recurrent staff is important to meet my section's assi ed workload. 2-10.In working across organizational lines, I get good cooperation from other City Departments. Huntington Beach Community Services Department Employee Survey, 3 Strongly Strongly Don't Agree Agree Neutral Disagree Disagree know or N/A 2-11.Divisions within the Department cooperate successfully (don't compete) to obtain external resources. 2-12.In working across organizational lines, I get good cooperation from other Divisions within our Department. 2-13.Emphasis is placed on obtaining revenue before program/project implementation. 2-14.The quality of our services is dependant on critical tasks being accomplished on time. 2-15.The City/Department's relationship with Boards and Commissions are effective. Section 3. Morale/ Positive Work Environment/Employee Commitment Strongly Strongly Don't Agree . Agree Neutral Disagree Disagree know or N/A 3-1. I have a sense of accomplishment in mv iob. 3-2. I would describe the City of Huntington Beach as a good place to work. 3-3. I feel that I am personally responsible for the quality of service provided in my section. 3-4. I get recognition for doing good work. 3-5. I receive my annual performance evaluation in a timely manner. 3-6. I am given enough authority to do my job well. 3-7. I am satisfied with the promotional opportunities available to me. 3-8. The Department provides employees with sufficient training opportunities. Huntington Beach Community Services Department Employee Survey, 4 Strongly Strongly Don't Agree Agree Neutral Disagree Disagree know or N/A 3-9. My co-workers are present and working as required, during regular business hours. (i.e. they arrive on - time, do not leave early, or take excessive breaks. Section 4. Customers and Service Strongly Strongly Don't Agree Agree Neutral Disagree Disagree know or N/A 4-1. The citizens of Huntington Beach think our Department does a good 'ob. 4-2. Our Department is responsive to the needs of the City. 4-3. Our Department is not highly conflicted between its responsibilities to enforce laws and regulations and its responsibility to provide good customer service. 4-4. Regardless of the issue, our work team has customer satisfaction as a number one goal. 4-5. We have the resources to adequately address public complaints. 4-6. We have a good record of timely response to public inquiries. 4-7. When we make commitments to customers, we are usually able to keep those commitments. 4-8. Our Department is highly responsive to the needs of other City Departments. Huntington Beach Community Services Department Employee Survey, 5 Section 5. Pay and Fairness Strongly Strongly Don't Agree Agree Neutral Disagree Disagree know or N/A 5-1. My pay is equivalent to similar positions in surrounding public agencies. 5-2. The benefits package retirement/health is fair. 5-3. Workplace rules regarding breaks and on -time arrival at work are fairly administered. 5-4.Our offices ace is comfortable. 5-5.Our work place is safe; there is little risk of workplace in' 5-6. Leaders are willing to take action to resolve interpersonal conflict in the workplace, when necessary. 5-7. My supervisor treats all employees in an equitable and fair manner. Section 6. Communications. Decision -making and Improvement Strongly Strongly Don't Agree Agree Neutral Disagree Disagree know or N/A 6-1. Senior management communicates the information I need to know. 6-2. Overall, the Department makes quality decisions. 6-3. I have adequate opportunity to provide my input into important departmental decisions. 6-4. When good ideas to simplify or improve work processes are brought forward, they are generally implemented. 6-5. My Division regularly considers modifying rules or changing the way things have been done in the past. 6-6. Important information generally arrives first through official communications, rather than through the "rumor mill." Huntington Beach Community Services Department Employee Survey, 6 Strongly Strongly Don't Agree Agree Neutral Disagree Disagree know or N/A .6-7. There is sufficient opportunity to meet and coordinate activities with other employees within the Department. Section 7. Financial Management and Controls Strongly Strongly Don't Agree Agree Neutral Disagree Disagree know or N/A 7-1. Our fees for service fully recover both direct costs and Department and Citywide indirect support costs. 7-2. Necessary capital improvements are funded. 7-3. We get accurate budget expenditure reports. 7-4. We have an effective accounting system. 7-5. I have a high level of confidence in our Department's use of public funds. Section 8. Facilities. Equipment and Technolou Strongly Strongly Don't Agree Agree Neutral Disagree Disagree know or N/A 8-1. The number of facilities to provide services to the community is adequate. 8-2. The facilities we use to provide services to the community are of high quality, 8-3. The facilities we use to provide services are properly maintained. 8-4. The equipment and vehicles we use in our Division are up-to-date. 8-5. The equipment and vehicles we use are repaired in a timely manner. Huntington Beach Community Services Department Employee Survey, 7 Strongly Strongly Don't Agree Agree Neutral Disagree Disagree know or N/A . 8-6. Our computers (information technology) perform most of the functions we need. 8-7. Our computer system reliability is good. 8-8. I usually have access to the tools/ supplies I need to do my job properly. Section 9. Leadership and Supervision Strongly Strongly Don't Agree Agree Neutral Disagree Disagree know or N/A 9-1. I respect my manager/supervisor. 9-2. My manager/supervisor accepts the role of leader. 9-3. My manager/supervisor trusts employees to get the job done. 9-4. My manager/supervisor is a decisive person. 9-5. My manager/supervisor works as hard as he/she expects us to work. 9-6. My manager/supervisor keeps commitments he/she makes to me. 9-7. My manager/supervisor is always ready to help. 9-8. When orders come down from above, my manager/supervisor will tell us if why we need to do this." Huntington Beach Community Services Department Employee Survey, 8 THANK YOU FOR TAKING THE SURVEY. THE TIME YOU SPENT WILL BE A VALUABLE CONTRIBUTION TO A SUCCESSFUL MANAGEMENT AND OPERATIONS REVIEW OF THE COMMUNITY SERVICES DEPARTMENT FOR THE CITY OF HUNTINGTON BEACH. RETURN COMPLETED SURVEYS IN THE ATTACHED ENVELOPE TO: CITYGATE ASSOCIATES CARE OF PETE GRANT — CITY ADMINISTRATOR'S OFFICE City staff will NOT open surveys - they are only being collected for transmission to Citygate. Huntington Beach Community Services Department Employee Survey, 9 Attachment 3 Presentation of the Final Report rt on the Management and Operations Review of the Community Services Department Conducted by: Citygate Associates, LLC for The City of August26,; 2002 Review of Community Services Department The project was established to: 1) Evaluate the management and supervision, 2) Staffing and workload, 3) Organization structure, 4) Operational policies and practices, 5) Workflow processes, and 6) General efficiency and effectiveness. Citygate was to recommend change to better serve the community. 2 ,n t 1 Review of Community Services Department Scope of Work The scope of work included the functional divisions of: Overall Administration Capital Project Development Marine Safety Beach Maintenance Parking and Camping ✓ Park Surveillance/NatureCenter ✓ Recreation and Youth Sports Adult Sports Human Serviced ✓ Cultural and Event Services Specific Evens, and Harbour Area. Review of Community Services Department Assessment Areas Our organizational review included an assessment of the following areas: Staffing and Workload Organizational Structure and Reporting f Managerial Planning and Direction ✓ Service Delivery Systems Communications Operational Efficiency and Effectiveness ✓ Customer Service Facilities and Equipment' ✓ Effectiveness and Appropriateness of Policies and Procedures ✓'Emerging Issues. a ON!, „, rl, U 2 Review of Community ServicesDepartment Process Review Our process review included an assessment of the following: A financial review, which focused on revenue, expenditures, and accounting systems. Quantitative data as available on all divisions, and an analysis of this data to evaluate performance. ✓ On -site observations of operations. ✓ Official records, including budget documents and job descriptions. An employee survey to understand staff perspectives on areas of operations and management. P Review of Community Services Department Interviews and City Staff Involvement with Study Our consultant team conducted in-depth interviews with key officials and employees including:' v The City Council The City Administrator Assistant City Administrator ✓ Department Director and Deputy Director ✓ Administrative Services Director and Staff ✓ Public Works Director and Staff' Economic Development Director ✓ Deputy City Attorney ✓ All Division heads, and ✓ Key supervisors and staff. 3 • Review of Community Services Department Themes Positive Aspects About the Department:' The Community Services Department provides a multitude of high quality services. The Department is focused on service delivery; the staff in all Divisions is dedicated, committed to customer services, and is doing a good job providing the day-to-day services that are budgeted. ✓ Overall_ we found few operational problems that create significant inefficiencies or ineffectiveness in current services. 4 Review of Community Services Department Themes, continued Improvements that are needed are based on the following. - Insufficient staffing and supervisory support at the higher levelsof the Department result in problems related to. �:• Organizational and reporting relationships, • .. . Staffing, �2• Financial reporting systems, and +o• The need for goals, objectives and work measures. ✓ Staffing overall in the Department is at a minimum due to financial constraints. Employees, including management staff, are therefore mostly focused on service delivery. Review of Community Services Department Themes, continued The shortage of staffing makes it difficult to. 1. Allocate time to assess work systems; 2. Determine whether goals and objectives are appropriate to the future of the community, and 3. Develop the type of analytical and financial reporting systems that adequately support the decisions of the Department and the City's policy makers. 110 cF xe i1 Review of Community Services Department Themes, continued f One reason for the limited focus is the extent of effort dedicated to capital projects, which has taken the vast ;majority of the time and attention of the Director and Deputy director. ✓ The limitedp oversight of operations erations leaves less 9 attention than is necessary to insure that programs are assessed and changed as needs of the community change'. Review of Community Services Department Summary of Findings and Recommendations: i ✓ Many programs have remained the same for over a decade and some program participation has declined. ✓ Day-to-day operating tasks are delegated to supervisory level staff who because of special assignments and workload are not able to provide oversight to programs. f Our key findings and recommendations are focused on areas that are neglected as a result of staff focused on capital projects and current service delivery as the highest priority: 12 31 RCA ROUTING SHEET INITIATING DEPARTMENT: Administration SUBJECT: City Administrator's Response to Citygate Associates' Review of the Community Services Department COUNCIL MEETING DATE: August 26, 2002 RCA ATTACHMENTS STATUS Ordinance (w/exhibits & legislative draft if applicable) Not Applicable Resolution (w/exhibits & legislative draft if applicable) Not Applicable Tract Map, Location Map and/or other Exhibits Not Applicable Contract/Agreement (w/exhibits if applicable) Signed in full by the City Attomeyj Not Applicable Subleases, Third Party Agreements, etc. (Approved as to form by City Attome Not Applicable Certificates of Insurance Approved by the City Attorney) Not Applicable Financial Impact Statement Unbudget, over $5,000 Not Applicable Bonds If applicable) Not Applicable Staff Report If applicable) Not Applicable Commission, Board or Committee Report (If applicable) Not Applicable Findings/Conditions for Approval and/or Denial Not Applicable EXPLANATION FOR MISSING ATTACHMENTS REVIEWED RETURNED FOR RDED Administrative Staff Assistant City Administrator Initial City Administrator Initial City Clerk EXPLANATION FOR RETURN OF ITEM RCA Author: 3 r I PROPOSED COMMUNITY SERVICES DEPARTMENT REORGANIZATION The purpose of the reorganization is to align the department with the City Council's priorities and community needs identified in the Strategic Plan as well as improve organizational effectiveness.mrrclxfcll COMA AND MADE A PART OF THE RECORD AT THE F� � %G COUNCIL MEETING OF / ` r•,' s : OFFICE OF THE CITY CLERK F CONNIE BROCKWAY, CITY CLERK Existing Positions New Pos itions to be filled Capital Projects/Development Clubhouse Rentals Park Fund Report Golf Course Equestrian Center Beach & Park Concessions Emerald Cove Sister City Park Grant Management Annual Needs Assessment Update HCP Reservations 12 al �hsupsrfrsiwrrdant wk'` ,y p 3 en # ale Reorsiuonr Fiiimart R �Uhurai � 8uperintandent Bean $eMceey,r 'fi-n oh Services-� / 10 Adminlstrative Secretary -- .._ fCorrie�Hwx,sl' d se3r` Cd14,i E9ves8upet..ire3r�� Beech Malntanenee� Pier & Harbor Supervisor 11 8 Perkin' d. Ca mpin. Perkin' Structure 15 9 —— sur pervlso Marine safety , Sports Complex AquaticsMEEM Chief Field Scheduling Fee Classes School Agreements Sands Youth Sports Grants Adv Playground 13514 Youth Sports Day Camps Adult Sports Tennis NOTES: 1. Community Services Director retiring & becoming Special Projects Director 2. Deputy Director will serve as acting Director 3. Department will report to Assistant City Administrator 4, New Senior Analyst 5. New Manager Facilities & Development 6, New Superintendent Recreation, Human & Cultural Services 7. New Superintendent of Beach Services (To be filled in FY 03/04) 8. Two new supervisors for Adult & Youth Sports & Fee Programs 9. Remove Manager Cultural Services 10. Remove Superintendent Recreation & Human Services 11. Remove two Senior Recreation Supervisors 12. Remove Senior Supervisor Development 13. Remove PT Office Assistant II from Edison Community Center 14. New Recreation Coordinator at Edison Community Center 15. Transfer Park Ranger to Parking & Camping Operations in Beach Services. This pro -posed reorganization would-: - Focus on City Council strategic priorities; - Align the department with the changing community needs; - Address the findings of the recent Citygate departmental study; - Adjust the organization to departmental budget reductions; - Combine like functions under each division of the department; - Reflect personnel changes due to retirements; - Provide more budget, finance and forecasting support; and - Provide improved oversight and management of operations. Recommended Action: Approve the reorganization plan for the Community Services Department and direct staff to proceed with implementation measures to complete reo71y ,�• � ems - the Ft fit; Aug-25-02 1O:38P Gerald & Pat Chapman 714 Gerald L. Chapman 6742 Shire Circle Huntington Beach, CA 92648 714-842-3345 August 26, 2002 Ray Silver City Administrator City of Huntington Beach 2000 Main Street Huntington Beach, CA 92648 843-9846 Re: Review of the Community Services Department by Citygate Associates Dear Ray: I would like to thank you for making a copy of the "Citygate" report available to me on Friday evening. I would also like to state that the following comments are mine alone and have nothing to do with any groups I am associated with. I find it very ironic that the name of the firm that did the audit is Citygate. I hope that the City Council has read the entire report because I am afraid the Executive Summary and Action Plan does not give enough detail for the Council to fully understand the deficiencies in the management of the department. From the report, it appears that the Community Services Department is very much like a ship without a captain and a rudder. It appears that the only reason it has functioned well is because of a very dedicated crew. I can not imagine how you feel it is appropriate for the retiring director of the department to plan the reorganization when he has always been too busy "making the deal" to give direction to his staff. 'The report makes it clear that the Cultural and Event Services Division comes very close to meeting its goals and objectives for the residents of Huntington Beach. For the first years of the Art Center's operation there were many problems. It was not until the division manager was given direct control, that the mission statement and goals were met. This was partially because the division manager has been able to make the public/private partnership between the City and the Art Center Foundation really function to it full potential. I believe that elimination of the position of Manager of Cultural Affairs is a big mistake and it is not one of the recommendations of the "Citygate" report. It seems that you want to do away with the one person who has performed his job in a highly professional manner and has met his job description. Your reorganization plan appears to be P.O2 Aug-25-02 1O:38P Gerald & Pat Chapman 714 843-9846 P.O3 punishing those who have done their job well and rewarding those who have created problems in the past. After reading this report, it is difficult to understand how you could propose that the retiring director of the department plan its reorganization when he has apparently had little input into the daily operations of the department. It also seems that it would be extremely difficult for a new director to take over the department and make the changes that are necessary with the previous director still working on projects that affect the department. I would think someone would be very reluctant to take on the job under those conditions. Rumor has it that several other key department personnel may be taking the city's early retirement offer. If that occurs, the department could really be in difficulty. I would propose an interim organizational chart until the director's position can be filled. That chart would leave the director's position vacant. It would add capital projects to the current duties of the deputy director. It would add the current duties of the superintendent of recreation and human services under the manager of cultural affairs and keep specific events as is. This would keep the disruption of the department to a minimum, perhaps raise morale, and save the funds so desperately in the budget.. When the new director is hired, the department would be reorganized taking into consideration the recommendations of "Citygate". Last Wednesday when I spoke with you, you asked me to "find the money." I would like to remind you that several years ago, I brought several people from the California Dental Association to City Hall to explain the concept of Direct Reimbursement as an alternative to the city's current dental insurance plans. It was explained that there would not have to be any change in benefits and that it would save approximately 30% on premiums. I believe that would be much more than the amount saved by eliminating the Cultural Affairs Manager position. If you are interested in exploring this option again, I would be glad to set up the meeting. I hope that you will not be offended by these suggestions. I make them as a concerned citizen who only wants to improve Huntington Beach. Thank you for you consideration. 5incerel Gerald L. Chap an cc: City Council City Clerk Aug-25-02 10:38P Gerald & Pat Chapman 714 843-9846 P.O1 CITY Ct-r"R; CITY 01 HUNTRIG 1 ON BEACH, CA GERALDL.CHAPMAN 1001 AUG 2 b A q: 0 1 PATRICIA M. CHAPMAN 6742 SHIRE CIRCLE HUNTINGTON BEACH, CA 92648 714.842.3345 FAX NUMBER: 714.643.9846 """PLEASE DELIVER THE FOLLOWING MATERIAL AS SOON AS POSSIBLE' DATE SENT: FAX NO: �77" i ;Ss7 TIME SENT: AMIPM OPERATOR'S NAME: OPERATOR'S PHONE NO; "PLEASE NOTIFY OPERATOR IMMEDIATELY IF NOT RECEIVED PROPERLY- COMMENTS:.�iF��d /� �� Su ity Contracts Checklist for Submittal to City Clerk's Office (Please transmit this form when your contract is ready to be filed in the City Clerk's office) To: Connie Brockway, City Clerk x5404 1. Name of Contractor: G-ek, ,e.- /65064 c. 5, 1 v c. 2. Purpose .of Contract: For Example: Audit Services or Water Quality Testing Huntington Lake — Huntington Central Park 3. Expiration Date: if no expiration date, please put a tentative expiration date so the City Clerk's office can inquire of your department if the file is ready to inactivate. a 4. Amount of Contract: $ 75 010'4 A. Is the attached contract RELATED to a PREVIOUSLY SUBMITTED contract (renewaYamendmenttetc)? O YES P(NO B. Did you attach the LIST OF CONSULTANTS from whom proposals were requested — pursuarrt to HBMC 3.03.100? AYES O NIA OR Is the attached contract a SOLE SOURCE? 0 YES O NIA C. Did you attach a COPY of the insurance certificatelwaiver and send the ORIGINAL to Risk Management? , 1 YES PLEASE INCLUDE: C6Ad—b—IA1 / Department �181bL Date CITY CLERK'S OFFICE USE ONLY: g:fforms/city clerk contract checklist.doc • • 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 FOR PROFESSIONAL SERVICES CONTRACT BETWEEN THE CITX OF HUNTINGTON BEACH AND 1 ► ► Table of Contents Scopeof Services.....................................................................................................1 CityStaff Assistance................................................................................................2 Term; Time of Performance....:.................................................................................2 Compensation...........................................................................................................2 ExtraWork......................................:........................................................................2 Methodof Payment..................................................................................................3 Disposition of Plans, Estimates and Other Documents...........................................3 HoldHarmless................................:........................................................................3 Professional Liability Insurance.............................................................................4 Certificate of Insurance............................................................................................5 Independent Contractor............................................................................................6 Termination of Agreement.......................................................................................6 Assignment and Delegation......................................................................................6 Copyrights/Patents...................................................................................................7 City Employees and Officials..................................................................................7 Notices.........................................................................................7 Consent....................................................................................................................8 Modification.............................................................................................................8 SectionHeadings.....................................................................................................8 Interpretation of this Agreement..............................................................................8 DuplicateOriginal....................................................................................................9 Immigration...............................................................................................................9 Legal Services Subcontracting Prohibited......................:.........................................9 Attorney's Fees...........................................................................:..............................10 Survival.....................................................................................................................10 GoverningLaw.........................................................................................................10 Entirety............................................................................................................:.........10 jmp/contracts group/intematl sampleA2/3/01 PROFESSIONAL SERVICES CONTRACT BETWEEN THE CITY OF HUNTINGTON BEACH AND FOR THIS AGREEMENT ("Agreement") is made and entered into this ion day of MArG�, , 200Z , by and between the City of Huntington Beach, a municipal corporation of the State of California, hereinafter referred to as "CITY, and lV 2 ak ASSoU &Ves a In I I L51 t ('j0� �r-k 6n hereinafter referred to as "CONSULTANT." ,WHEREAS, CITY desires to engage the services of a consultant to � ��. i~iform c�,��.-� (Gye�• cr� -�l.c. �'n,v�; 7 and Pursuant'to documentation on file in the office of the City Clerk, the provisions of the Huntington Beach Municipal Code, Chapter 3.03, relating to procurement of professional service contracts have been complied with; and CONSULTANT has been selected to perform these services, NOW, THEREFORE, it is agreed by CITY and CONSULTANT as follows: 1. SCOPE OF SERVICES CONSULTANT shall provide all services as described in Exhibit "A" which is attached hereto and incorporated into this Agreement by this reference. These services shall sometimes hereinafter be referred to as the "PROJECT." CONSULTANT hereby designates I�,(ZMS who shall represent it and be its sole contact and agent in all consultations with CITY during the performance of this Agreement. agree/forms/profsery 10/15/01 1 2. CITY STAFF ASSISTANCE CITY shall assign a staff coordinator to work directly with CONSULTANT in the performance of this Agreement. 3. TERM, TIME OF PERFORMANCE Time is of the essence of this Agreement. The services of CONSULTANT are to commence as soon as practicable after the execution of this Agreement by CITY (the "Commencement Date"). This Agreement shall expire on 9ZIG L0Z. unless sooner terminated as provided herein. All tasks specified in Exhibit "A" shall be completed no later than 2$ \tj".ks , from the Commencement Date of this Agreement. These times may be extended with the written permission of CITY. The time for performance of the tasks identified in Exhibit "A" are generally to be shown in Exhibit "A." This schedule may be amended to benefit the PROJECT if mutually agreed to in writing by CITY and CONSULTANT. 4. COMPENSATION In consideration of the performance of the services described herein, CITY agrees to pay CONSULTANT on a time and materials basis At the rates specified in Exhibit "B," a fee, including all costs and expenses, not to exceed se eoAv 4)--e. vsr,�� Dollars ($ 000. 00 ). 5. EXTRA WORK In the event CITY requires additional services not included in Exhibit "A" or changes in the scope of services described. in Exhibit "A," CONSULTANT will undertake such work only after receiving written authorization from CITY. Additional agree/fortes/profsery 10/15/01 2 compensation for such extra work shall be allowed only if the prior written approval of CITY is obtained. 6. METHOD OF PAYMENT CONSULTANT shall be paid pursuant to the terms of Exhibit "B," which is attached hereto and incorporated by reference into this Agreement. 7. DISPOSITION OF PLANS, ESTIMATES AND OTHER DOCUMENTS . CONSULTANT agrees that title to all materials prepared hereunder, including,, without limitation, all original drawings, designs, reports, both field and office notices, calculations, computer code, language, data or programs, maps, memoranda, letters and other documents, shall belong to CITY, and CONSULTANT shall turn these materials over to CITY upon expiration or termination of this Agreement or upon PROJECT completion, whichever shall occur first. These materials may be used by CITY as it sees fit. 8. HOLD HARMLESS CONSULTANT hereby agrees to protect, defend, indemnify and hold harmless CITY, its officers, elected or appointed officials, employees, agents and volunteers from and against any and all claims, damages,_ losses, expenses, judgments, demands and defense costs (including, without limitation, costs and . fees of litigation of every nature or liability of any kind or nature) arising out of or in connection with CONSULTANT's (or CONSULTANT's subcontractors, if any) negligent performance of this Agreement or its failure to comply with any of its obligations contained in this Agreement by CONSULTANT, its officers, agents or employees except such loss or damage which was caused by the sole negligence or willful misconduct of CITY. CITY agree/forms/profsery 10/ 15/01 3 • • shall be reimbursed by CONSULTANT for all costs and attorney's fees incurred by CITY in enforcing this obligation. CONSULTANT will conduct all defense at its sole cost and expense and CITY shall approve selection of CONSULTANT's counsel. This indemnity shall apply to all claims and liability regardless of whether any insurance policies are applicable. The policy limits do not act as limitation upon the amount of indemnification to be provided by CONSULTANT. 9. PROFESSIONAL LIABILITY INSURANCE CONSULTANT shall obtain and furnish to CITY a professional liability insurance policy covering the work performed by it hereunder. This policy shall provide coverage for CONSULTANT's professional liability in an amount not less than One Million Dollars ($1,000,000.00) per occurrence and in the aggregate. The above - .mentioned insurance shall not contain a self -insured retention, "deductible" or any other similar form of limitation on the required coverage except with the express written consent of CITY. A claims -made policy shall be acceptable if the policy further provides that: A. The policy retroactive date coincides with or precedes the initiation of the scope of work (including subsequent policies purchased as renewals or replacements). B. CONSULTANT shall notify CITY of circumstances or incidents that might give rise to future claims. CONSULTANT will make every effort to maintain similar insurance during the required extended period of coverage following PROJECT completion. If insurance is terminated for any reason, CONSULTANT agrees to purchase an extended reporting agree/forms/profsery 10/ 15/01 4 • • provision of at least two (2) years to report claims arising from work performed in connection with this Agreement. 10. CERTIFICATE OF INSURANCE Prior to commencing performance of the work hereunder, CONSULTANT shall furnish to CITY a certificate of insurance subject to approval of the City Attorney evidencing the foregoing insurance coverage as required by this Agreement; the certificate shall: A. provide the name and policy number of each carrier and policy; B. shall state that the policy is currently in force; and C. shall promise that such policy shall not be suspended, voided or canceled by either party, reduced in coverage or in limits except after thirty (30) days' prior written notice; however, ten (10) days' prior written notice in the event of cancellation for nonpayment of premium. CONSULTANT shall maintain the foregoing insurance coverage in force until the work under this Agreement is fully completed and accepted by CITY. The requirement for carrying the foregoing insurance coverage shall not derogate from CONSULTANT's defense, hold harmless and indemnification obligations as set forth in this Agreement. CITY or its representative shall at all times have the right to demand the original or a copy of the policy of insurance. CONSULTANT shall pay, in a prompt and timely manner, the premiums on the insurance hereinabove required. agree/forms/profsery 10/ 15/0 1 5 11. INDEPENDENT CONTRACTOR CONSULTANT is, and shall be, acting at all times in the performance of this Agreement as an independent contractor herein and not as an employee of CITY. CONSULTANT shall secure at its own cost and expense, and be responsible for any and all payment of all taxes, social security, state disability insurance compensation, unemployment compensation and other payroll deductions for CONSULTANT and its officers, agents and employees and all business licenses, if any, in connection with the PROJECT and/or the services to be performed hereunder. 12. TERMINATION OF AGREEMENT All work required hereunder shall be performed in a good and workmanlike manner. CITY may terminate CONSULTANT's services hereunder at any time with or without cause, and whether or not the PROJECT is fully complete. Any termination of this Agreement by CITY shall be made in writing, notice of which shall be delivered to CONSULTANT as provided herein. In the event of termination, all finished and unfinished documents, exhibits, report, and evidence shall, at the option of CITY, become its property and shall be promptly delivered to it by CONSULTANT. 13. ASSIGNMENT AND DELEGATION This Agreement is a personal service contract and the work hereunder shall not be assigned, delegated or subcontracted by CONSULTANT to any other person or entity without the prior express written consent of CITY. If an assignment, delegation or subcontract is approved, all approved assignees, delegates and subconsultants must satisfy the insurance requirements as set forth in Sections 9 and 10 hereinabove. agree/forms/profsery 10/15/01 6 0. 0 14. COPYRIGHTS/PATENTS CITY shall own all rights to any patent or copyright on any work, item 'or material produced as a result of this Agreement. 15. CITY EMPLOYEES AND OFFICIALS CONSULTANT shall employ no CITY official nor any regular CITY employee in the work performed pursuant to this Agreement. No officer or employee of CITY shall have any financial interest in this Agreement in violation of the applicable provisions of the California Government Code. 16. NOTICES Any notices, certificates, or other communications hereunder shall be given either by personal delivery to CONSULTANT's agent (as designated in Section 1 hereinabove) or to CITY as the situation shall warrant, or by enclosing the same in a sealed envelope, postage prepaid, and depositing the same in the United States Postal Service, to the addresses specified below. CITY and CONSULTANT may designate different addresses to which subsequent notices, certificates or other communications will be sent by notifying the other party via personal delivery, a reputable overnight carrier or U. S. certified mail -return receipt requested: TO CITY: City of Huntington Beach ATTN: *-ker (10,4 2000 Main Street - Huntington Beach, CA 92648 agree./forms/profsm 10/15/01 7 TO CONSULTANT: 17. CONSENT When CITY's consent/approval is required under this Agreement, its consent/approval for one transaction or event shall not be deemed to be a consent/approval to any subsequent occurrence of the same or any other transaction or event. 18. MODIFICATION No waiver or modification of any language in this Agreement shall be valid unless in writing and duly executed by both parties. 19. SECTION HEADINGS The titles, captions, section, paragraph and subject headings, and descriptive phrases at the beginning of the various sections in this Agreement are merely descriptive and . are included solely for convenience of reference only and are not representative of matters included or excluded from such provisions, and do not interpret, define, limit or describe, or construe the intent of the parties or affect the construction or interpretation of any provision of this Agreement. 20. INTERPRETATION OF THIS AGREEMENT The language of all parts of this Agreement shall in all cases be construed as a whole, according to its fair meaning, and not strictly for or against any of the parties. If any provision of this Agreement is held by an arbitrator or court of competent jurisdiction to be unenforceable, void, illegal or invalid, such holding shall not invalidate or affect the remaining covenants and provisions of this Agreement. No covenant or provision shall be deemed dependent upon any other unless so expressly provided here. As used in this Agreement, the masculine or neuter gender and singular or plural number shall be deemed to include the other whenever the context so indicates or requires. agree/forms/profserv10/15/01 8 Nothing contained herein shall be construed so as to require the commission of any act contrary to law, and wherever there is any conflict between any provision contained herein and any present or future statute, law, ordinance or regulation contrary to which the parties have no right to contract, then the latter shall prevail, and the provision of this Agreement which is hereby affected shall be curtailed and limited only to the extent necessary to bring it within the requirements of the law. 21. DUPLICATE ORIGINAL The original of this Agreement and one or more copies hereto have been prepared and signed in counterparts as duplicate originals, each of which so executed shall, irrespective of the date of its execution and delivery, be deemed an original. Each duplicate original shall be deemed an original instrument as against any party who has signed it. 22. IMMIGRATION CONSULTANT shall be responsible for full compliance with the immigration and naturalization laws of the United States and shall, in particular, comply with the provisions of the United States Code regarding employment verification. 23. LEGAL SERVICES SUBCONTRACTING PROHIBITED CONSULTANT and CITY agree that CITY is not liable for payment of any subcontractor work involving legal services, and that such legal services are expressly outside the scope of services contemplated hereunder. CONSULTANT understands that pursuant to Huntington Beach City Charter Section 309, the City Attorney is the exclusive legal counsel for CITY; and CITY shall not be liable for payment of any legal services expenses incurred by CONSULTANT. agree/forms/profsery 10/15/01 9 24. ATTORNEY' S FEES Except as expressly set forth in Section 8 of this Agreement, in the event suit is brought by either party to construe, interpret and/or enforce the terms and/or provisions of this Agreement or to secure the performance hereof, each party shall bear its own attorney's fees, such that the prevailing party shall not be entitled to recover its attorney's fees from the non -prevailing party. 25. SURVIVAL Terms and conditions of this Agreement, which by their sense and context survive the expiration or termination of this Agreement shall so survive. 26. GOVERNING LAW This Agreement shall be governed and construed in accordance with the laws of the State of California. 27. ENTIRETY The parties acknowledge and agree that they are entering into this Agreement freely and voluntarily following extensive arm's length negotiation, and that each has had the opportunity to consult with legal counsel prior to executing this Agreement. The parties also acknowledge and agree that no representations, inducements, promises, agreements or warranties, oral or otherwise, have been made by that party or anyone acting on that party's behalf, which are not embodied in this Agreement, and that that party has not executed this Agreement in reliance on any representation, inducement, promise, agreement, warranty, fact or circumstance not expressly set forth in this Agreement. This Agreement, and the attached exhibits, contain the entire agreement between the parties respecting the subject matter of this Agreement, and supercede all prior agree/fortes/profsery 10/15/01 10 understandings and agreements whether oral or in writing between the parties respecting the subject matter hereof. IN WITNESS WHEREOF, the parties hereto have caused this Agreement to be executed by and through their authorized offices the day, month and year first above written. CONSULTANT, By: e print name ITS: (circle one) Chai n/President/ ice President AND By: 640 (:3. 906697 F• 13A LTIAX0 e pnn me ITS: (circle o Secretary/ ief Financial Officer/Asst. Secretary — Treasurer agree/forms/profservl0/15/01 11 CITY OF HUNTINGTON BEACH, a municipal corporation of the State of California Direeter-e n� C;! 1y Aa ,i4,4r (Pursuant To HBMC ,¢ .03.100) APPROVED AS TO FORM: (''�•- City Attorney REVIEWED AND APPROVED: City Administrator (only for contracts over $50,000.00) City of Huntington Beach Management Audit of Community Services Department Task Sub -task Hours DeRoos Milnes Moger Clifton Tan Admin. 1. Initiate and Manage the Project 1.1 Meet with the City to initiate study 6 2 2 2 0 0 0 1.2 Initial interviews with Council; CM; and Dept. Head 24 8 8 8 0 0 0 1.3 Develop Draft Work Plan and Schedule/ Review with City 3 0 0 1 2 0 0 1 4 Prepare Employee Orientation Brochure 3 1 0 0 0 0 2 1.5 Conduct Employee Orientation Meeting 5 1 1 1 1 1 0 1.6 Finalize project schedule and work plan 2 1 0 0 1 0 0 1.7 Provide monthly written status reports 15 1 1 1 12 0 0 1.8 Monitor engagement progress and completion of tasks 22 6 4 0 12 0 0 1 9 Maintain engagement files including work papers 8 0 0 0 8 0 0 1.10 Obtain documentation 6 0 0 0 6 0 0 Task 1 Hours Subtotal 94 20 16 13 42 1 2 Task 1 Cost Subtotal $ 195 195 $ 160 $ 150 $ 125 55 S 15,635 $ 3,900 $ 3,120 $ 2,080 $ 6,300 $ 125 $ 110 2. Conduct Employee Survey 2.1 Design Survey Instrument 2.2 Review draft survey with city staff 2.3 Finalize survey 2.4 Administer Employee Survey 2.5 Tabulate and analyze results T Task 2 Hours Sr Task 2 Cost Subtotal S 3.1 Review documentation 3. Conduct Review of Departmental Operations 3.2 Review the Mission, Goals, and Philosophy of Department 3.3 Conduct interviews with key management staff 3.4 Conduct walk-throughs 19 1 2 2 5 5 4 1 0 0 0 1 0 0 4 1 0 1 1 1 0 13 1 0 0 4 4 4 24 0 0 1 5 14 4 61 3 2 4 16 24 12 $ 195 195 $ 160 $ 150 $ 125 55 $ 585 $ 390 $ 640 $ 2,400 $ 3,000 $ 660 19 1 2 5 1 10 0 3 0 0 1 1 1 0 20 0 6 6 0 8 0 31 0 1 1 0 1 0 Page 1 Tack Sub -task Hours DeRoos Wines Moger Clifton Tan Admin. 3.5 Interview key employees 28 0 0 12 0 16 0 3.6 Develop profiles of process/depts. 6 0 2 2 0 2 0 Task 3 flours Subtotal 79 1 11 27 2 38 0 Task 3 Cost Subtotal $ 195 195 S 160 $ 150 $ 125 55 S 11,71 $ 195 $ 2,145 $ 4,320 $ 300 $ 4,750 $ - 4. Perform In -Depth Operational Analysis 4.1 Identify study areas based on Tasks 1-3 14 2 5 2 2 3 0 4.2 Establish appropriate analytical methodologies 7 1 4 2 0 0 0 4.3 Perform analysis 33 0 8 7 2 10 6 4.4 Conduct survey of comparable Parks, Recreation, and Community Services Departments 12 1 1 2 4 4 0 4.5 Perform Literature Search 7 0 2 2 0 3 0 Task 4 flours Subtotal 73 4 20 15 8 20 6 Task 4 Cost Subtotal $ 195 195 $ 160 $ 150 $ 125 55 S 11,110 S 780 S 3,900 $ 2,400 S 1,200 S 2,500 S 330 5. Review Organizational 5.1 Review operational findings Structure 18 2 4 3 5 4 0 5.2 Identify Areas for Productivity Enhancements 14 1 4 3 2 4 0 5.3 Assess Opportunities for Computerization and Records Management 5 0 1 1 1 2 0 5.4 Examine existing organization structure 11 0 4 1 2 2 2 5.5 Explore alternative service delivery opportunities 8 1 4 1 1 1 0 Task 5 Hours Subtotal 56 4 17 9 11 13 2 Task 5 Cost Subtotal $ 195 195 $ 160 $ 150 $ 125 55 S 8,920 $ 780 $ 3,315 $ 1,440 $ 1,650 $ 1,625 $ 110 6. Prepare Final Report, Recommendations and Implementation Plan 6.1 Review Initial Findings with City 7 1 2 2 0 2 0 6.2 Prepare Draft Report 41 2 4 4 4 15 12 6.3 Review Draft with City 4 0 2 1 0 1 0 6.4 Make Revisions to Draft 14 0 1 0 1 6 6 6.5 Revise and Produce Final Report 21 1 1 1 0 6 10 6.6 Present Final Report to Joint Study Session - 8/19 5 1 1 1 1 1 0 6.7 Present Report to City Council - 9/3 11 1 3 3 3 1 0 Page 2 Task CTask 6 Cost Subtotal S C. Sub -task Total Consultant Hours Task 6Hours Hours DeRoos Milnes Moger Clifton Tan Admin. 103 6 14 12 9 32 28 $ 195 195 $ 160 $ 150 $ 125 55 $ 1,170 $ 2,730 $ 1,920 $ 1,350 $ 4,000 $ 1,540 466 s t 38 80 80 88 128 50 $ 195 195 $ 160 $ 150 $ 125 55 $ 67,760 $ 7,410 S 15,600 5 12,800 1 $ 13,200 $ 16,000 IS 2,750 Ilourly Ratc Subtotal Consultant Cos Expenses $ 5,207 Administration $ 2,033 Total Cost $ 75,000 Page 3 EXHIBIT "B" Payment Schedule (Alternative #1) 1. CONSULTANT shall be entitled to progress payments toward the fixed fee of $75,000.00 upon completion of each task identified in Exhibit "A". 2. Monthly reports shall be submitted to CITY to demonstrate progress toward completion of tasks identified in Exhibit "A". In the event CITY rejects or has comments on any such product, CITY shall identify specific requirements for satisfactory completion. 3. CONSULTANT shall submit to CITY an invoice for each progress payment due. Such invoice shall: 1) Reference this Agreement; 2) Describe the services performed; 3) Show the total amount of the payment due; 4) Include a certification by a principal member of CONSULTANT's firm that the work has been performed in accordance with the provisions of this Agreement; and 5) For all payments include an estimate of the percentage of work completed. Upon submission of any such invoice, if CITY is satisfied that CONSULTANT is making satisfactory progress toward completion of tasks in accordance with this Agreement, CITY shall approve the invoice, in which event payment shall be made within thirty (30) days of receipt of the invoice by CITY. Such approval shall not be unreasonably withheld. If CITY does not approve an invoice, CITY shall notify CONSULTANT in writing of the reasons for non -approval and the schedule of performance set forth in Exhibit "A" may at the option of CITY be suspended until the parties agree that past performance by CONSULTANT is in, or has been brought into compliance, or until this Agreement has expired or is terminated as provided herein. 5. Any billings for extra work or additional services authorized in advance and in writing by CITY shall be invoiced separately to CITY. Such invoice shall contain all of the information required above, and in addition shall list the hours expended and hourly rate charged for such time. Such invoices shall be approved by CITY if the work performed is in accordance with the extra work or additional services requested, and if CITY is satisfied that the statement of hours worked and costs incurred is accurate. Such approval shall not .be unreasonably withheld. Any dispute between the parties concerning payment of such an invoice shall be treated as separate and apart from the ongoing performance of the remainder of this Agreement. jmp/contracts group/exB-1 /3/6/02 l EXHIBIT B Alternative #1 A CORDS C E RT I F I C O F LIABILITY I N S U N C E ,� DATE (MM/DDNY) 03/06/2002 PRODUCER (916)443-0200 FAX (9 6)443-0251 Owen Dunn Insurance Services ONLY AND CONFERS NO RIGHTS UPON THE CERTIFICATE HOLDER. THIS CERTIFICATE DOES NOT AMEND, EXTEND OR License Number: 0670167 ALTER THE COVERAGE AFFORDED BY. THE POLICIES BELOW. 2831 G Street Suite 200 Sacramento, CA 95816-3721 INSURERS AFFORDING COVERAGE INSURED Citygate Associates, LLC INSURER A: American Manuf Mutual Ins Co/Kemper Group 705 Gold Lake Drive #100 INSURERB: Markel Insurance Co/Gray-Stone & Co Folsom, CA 95630 INSURER C: INSURER D: INSURER E: COVERAGES THE POLICIES OF INSURANCE LISTED BELOW HAVE BEEN ISSUED TO THE INSURED NAMED ABOVE FOR THE POLICY PERIOD INDICATED. NOTWITHSTANDING ANY REQUIREMENT, TERM OR CONDITION OF ANY CONTRACT OR OTHER DOCUMENT WITH RESPECT TO WHICH THIS CERTIFICATE MAY BE ISSUED OR MAY PERTAIN, THE INSURANCE AFFORDED BY THE POLICIES DESCRIBED HEREIN IS SUBJECT TO ALL THE TERMS, EXCLUSIONS AND CONDITIONS OF SUCH POLICIES. AGGREGATE LIMITS SHOWN MAY HAVE BEEN REDUCED BY PAID CLAIMS. LTR TYPE OF INSURANCE POLICY NUMBER DATE (MM/DD/YY) IUN DATE (MM/DD/YY) LIMITS GENERAL LIABILITY 7RE78963001 01/23/2002 01/23/2003 EACHOCCURRENCE $ 1,000,000 X COMMERCIAL GENERAL LIABILITY FIRE DAMAGE (Any one fire) $ 100,000 CLAIMS MADE M OCCUR MED EXP (Any one person) $ 10,000 A PERSONAL & ADV INJURY $ 1,000,000 GENERAL AGGREGATE $ 2,000,000 GEN'L AGGREGATE LIMIT APPLIES PER: PRODUCTS - COMP/OP AGG $ 2,000,000 POLICY PRO- JECT LOC AUTOMOBILE LIABILITY ANY AUTO 7RE78963001 01/23/2002 01/23/2003 COMBINED SINGLE LIMIT (Ea accident) $ 1,000,000 A ALL OWNED AUTOS SCHEDULED AUTOS HIRED AUTOS NON -OWNED AUTOS BODILY INJURY (Per person) $ )( BODILY INJURY (Per accident) $ X PROPERTY DAMAGE (Per accident) $ GARAGE LIABILITY AUTO ONLY - EA ACCIDENT $ OTHER THAN EA ACC AUTO ONLY: AGG $ ANY AUTO $ EXCESS LIABILITY EACH OCCURRENCE $ OCCUR El CLAIMS MADE `„ AGGREGATE $ $ - yi �QTYiE DEDUCTIBLE RETENTION $ _: A \`.'�:.. : .._ `s f_ R?S $ $ WORKERS COMPENSATION AND TORY LIMITS ER EMPLOYERS' LIABILITY �J�S' !!'L E.L. EACH ACCIDENT $ 111t (✓ E.L. DISEASE - EA EMPLOYEE $ E.L. DISEASE - POLICY LIMIT $ B OTHER rofessional Liability MG8092S9 01/06/2002 01/06/2003 $1,000,000 per claim $1,000,000 aggregate $5,000 deductible DESCRIPTION OF OPERATIONS/LOCATIONSNEHICLES/EXCLUSIONS ADDED BY ENDORSEMENT/SPECIAL PROVISIONS ertificate holder included as General Liability Additional Insured (by contract) per Kemper Liability Form #BP7108 (7/99), Section C.S. (page 12 of 20) attached. 10 day notice of cancellation applies in the event of non-payment of premium.* CERTIFICATE HOLDER I X I ADDITIONAL INSURED; INSURER LETTER A CANCELLATION SHOULD ANY OF THE ABOVE DESCRIBED POLICIES BE CANCELLED BEFORE THE City of Huntington Beach, its agents, officers and employees ATTN: Pete Grant EXPIRATION DATE THEREOF, THE ISSUING COMPANY WILL P=XqQM MAIL 30* DAYS WRITTEN NOTICE TO THE CERTIFICATE HOLDER NAMED TO THE LEFT, Xx9�fDCANIQ�(x9CD(9pXI�Q�(9t�DQXI(41�4�HXKXX 2000 Main Street P(9(M69(9N )MNK7QipA( l(MIXxkl3 @X 1(pmxmm CXXXXXXX AUTHORIZED REPRESENT Karen Robi T �.. d Huntington Beach, CA 92648 AUUKU L5-J (/IV/) - WA1_UKU l.Vr%rUKAIIUN IV00 WWI INSURANCE AND INDEMNIFICATION WAIVER MODIFICATION REQUEST 1. Requested by: Pete Grant, City Administrator's Office 2. Date: March 18, 2002 3. Name of contractor/permittee: Citygate Associates, Inc 4. Description of work to be performed: Management review - Community Services Dept 5. Value and length of contract: $75,000 - 26 weeks 6. Waiver/modification request: Consultant has a $5,000 deductible, would like to waive 7. Reason for request and why it should be granted: Contractor has requested B. Identify the risks to the City in approving this waiver/modification: None 3/18/02 Department Head Signature Date: APPROVALS Approvals must be obtained in the order listed on this form. Two approvals are required for a request to be granted. Approval from the City Administrator's Office is only required if Risk Management and the City Attorney's Office disagree. 1. isk Management Approved ❑ Denied Signature Date 2. City Attorney's Office P'Approved ❑ Denied Signature Date 3. City Administrator's Office ❑ Approved ❑ Denied Signature Date If approved, the completed waiver/modification request is to be submitted to the City Attorney's Office along with the contract for approval. Once the contract has been approved, this form is to be filed with the Risk Management Division of Administrative Services