HomeMy WebLinkAboutAgenda - 09-10-2009 - 2ORANGE COUNTY
BOARD OF COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: September 10, 2009
Action Agend~-
Item No.
SUBJECT• Follow-up with Interim Manager
DEPARTMENT: PUBLIC HEARING: (Y/N) No
ATTACHMENT(S):
Cover Memo with Assignment
Summaries
INFORMATION CONTACT:
Frank Clifton, 245-2300
PURPOSE: To provide the Board with an opportunity to discuss and follow-up on the August
24, 2009 report from the Interim County Manager regarding County departments, staff,
organization, and activities.
BACFCGROUND: With the departure. of former County Manager Laura Blackmon on June 30,
2009, the Board of Commissioners contracted with Mr. Frank Clifton to serve as Interim County
Manager while the Board pursued hiring a permanent County Manager. In addition to Mr.
Clifton's responsibilities for managing County operations, the Board requested that the Interim
Manager review and assess County departments, staff, organization, and activities and provide
a report back to the Board. The Interim Manager conducted this review and assessment and
shared his conclusions with the Board on August 24, 2009..
Due to time constraints, Board members had limited opportunity on August 24th to discuss the
assessment report with Mr. Clifton and with other Board members. This work session allows
Board members to converse with Mr. Clifton and other members regarding the assessment
report and provide any feedback and/or direction.
FINANCIAL IMPACT: There is no financial impact associated with discussion of the report
from the Interim Manager.
RECOMMENDATION(S): The Interim Manager recommends that the Board discuss the report
and provide any feedback and/or direction to the Interim Manager.
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September 10, 2009 -Work Session Presentation
Frank W. Clifton, Jr -Interim County Manager
To: Orange County Board of County Commissioners
Ms. Foushee, Chair Mr. Nelson, Vice Chair
Mr. Jacobs, Commissioner Ms. Gordon, Commissioner
Ms. Pelissier, Commissioner Ms. Hemminger, Commissioner
Mr. Yuhasz, Commissioner
This presentation follows the guidance provided and established by the
County Commission upon my initial employment as assignments. Briefly
sum~.narized below in respective order are the items addressed:
I. Observe county government operations and develop a detailed
summary of `potential' items to be addressed in a more
comprehensive manner.
H. Pursue a review and propose revisions to the County's current
66Agenda Development Process".
IQ. Look closely at organizational efficiencies and effectiveness.
IV. Identify where opportunities exist to expand upon and improve
the County's communication efforts at all levels.
V. Take a close look at the staffing levels in the manager's office
with regards to existing and future challenges.
VI. Look closely at reorganization options created by the potential
retirements resulting from the County's incentive program.
V.Q. Other duties as assigned (or as recognized by myself) needing
management oversight, input or direction.
Overview
Several of these items have some overlap and impact other functions within
the County's operating structures. When reviewing the information as
presented you will see references between issues and functions highlighting
expected outcomes or impacts. Where impacts are obvious, they may not
have been addressed. All of this input is based on my professional
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experience, direct exposure as manager of two other NC Counties and
regular interaction with numerous county managers and staff in other
counties over a ten year plus period in NC.
I also call upon past experience as a city manager in other jurisdictions along
with some experience in private sector areas including manufacturing and
land development activities.
One tenet to keep in mind is there is "NO" one-size fits all perfect
method to do anything or everything. Any effort applied in delivering
services must be customized to local conditions BUT valuable lessons are to
be learned from other applications elsewhere. There is seldom an issue
faced by local government "anywhere" that has not been dealt with
"elsewhere".
Approach and Methodology
It would have been easy for me to make a list of items for you and the next
manager to address and walk away saying the task is done. I approached
these tasks with two objectives. First, I felt it important to give the BOCC
my best effort responding to your directives. Second, regardless of who the
next manager is, you have some personalized perspective of what that
person will face and can use this input to best judge what type of individual
will be best suited and capable of addressing these issues with some degree
of success. Finally, "timing", "resources", "organizational response"
and "persistence" will be the elements most impacting upon successful
change AND improvements will be incremental. (Slay one dragon at a
time!)
My approach beyond addressing those challenges and opportunities that
were readily available and obvious, was to attempt to reach out to every
department in an effort to gain a better understanding of why "things are the
way they are". In most cases, department heads and staff were fairly open
about their operations. Many are proud of what they do and very guarded
about how they do it. Ms. Blackmon began a process of transitioning the
organization from that developed by Mr. Link over his 18 years as manager
to more closely align with today's challenges and "resource limitations".
I spent time talking with Ms. Blackmon and Mr. Link to gain a personalized
perspective of their analysis of how the organization functions and could
function better. Both provided valuable insight and similar perspectives on
factors that critically impact upon county operations, and the ability of the
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organization to plan for and respond to change. I have known both of these
individuals for a number of years and value their opinions and experience.
However, every manager approaches similar situations from varying
perspective seeking similar measures of success. Again, no one-size fits all.
Summary:
Each of the items assigned has been addressed to some extent. Certainly,
there are items that are not listed that could have been presented. Local
government like any organization should have a goal to pursue "continuous
improvement". Whether resources permit or not, it is prudent to know
there are opportunities to be more efficient, but more importantly more
effective. In the end, effectiveness maybe somewhat subjective depending
upon measurements employed, except that those paying for the services will
always expect quality at a reasonable cost.
Change that the BOCC does not support if pursued by staff will fail.
Support by the BOCC does not have to be unanunous but the BOCC
consensus must be consistent or implementation. of change will be deterred
accordingly. Organization staff has a history of attempting to give every
member of the BOCC what that individual wants. Sometimes that occurs
contrary to the BC~CC consensus or knowledge.
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Assigneut l~Tumber I
Observe county government operations and develop a detailed
summary of `potential' items to be addressed in a more
comprehensive manner.
Overview: I have personally visited most county departments,
their facility locations and met with department directors and
a limited number of staff. My observations and comments are
not to criticize directly anything that is in place at this time.
My input should be viewed as an external critique aimed at
stimulating a closer review of existing operations. In almost
every observation offered, there are `reasons' why current
situations are as they are. What should be asked is: (1) `can we
improve?' (2) `ire we effective?' and (3) `are there better
alternatives?' I believe that there are opportunities to respond
affirmatively to all three of those questions.
I~Tote: These items are not listed in any order of priority at this
time. Priorities could be based upon (I) cost impacts, (2) a
requirement for further analysis, (3) staffing impacts, (4)
external review and input [state agency, advisory boards or
other governmental inputs], (5) county manager's prerogative,
(6) County Commission direction or (7) other considerations.
EARLIER OBSERVATIONS (submitted 6/23/9 to Mercer)
1. Numbering of Ordinances/Resolutions and associated
retrieval issues -This item has been addressed with the
BOCC Clerk and County Attorney. Modifications are in
process.
2. Granicus Implementation -This issue is discussed in greater
detail in section Number 4 Communications.
3. Web site actions -This item is discussed in section Number
4 Communications. The county's new web site is set to go
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active in mid-September. A presentation is being scheduled
for a regular BOCC meeting.
4. Building Conditions and Up Keep -Observations indicate a
fresh approach needs to be considered on how the county
maintains its facilities and grounds. This item is discussed
later in this section based upon departmental observations.
5. An update and adoption of revised personnel ordinance -
This item is discussed under departmental reviews later
within this section.
6. Board meeting presentation issues -This item is discussed in
section Number 4 of this submittal.
7. Documentation of Ordinances/Resolutions for public
meetings -This item is addressed in section Number 4.
S. Development of strategic core values and the delivery of
public services -This item deferred to section Number 7 of
this submittal.
9. BOCC priorities -This item deferred to section Number 7.
10. Reorganization considerations -This item is addressed
in section Number 6 of this submittal.
11. Alignment of county capital improvements program
with expected revenues and financing options -This item is
addressed later in this section.
12. Review of economic development options -This item
is discussed later in this section.
13. Alignment of expectations with available resources -
This item is addressed in section Number 7 of this submittal.
14. Staffing needs versus demands -This item is addressed
later within this section and section Number 3.
15. Developing a level of trust between staff and the BOCC
-Addressed in section Number 7.
(The above items were general observations made during
the week that I supported Ms. Blackmon before assuming
full responsibilities as Interim County Manager. The
summary was requested by Mr. Robertson with Mercer and
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I believe he may have discussed some of the items with the
BOCC.)
The remaining information within this section is separated
based upon observations and notes accumulated during my
visits to the county's various departments as indicated.
PLEASE understand that many of these offerings deserve
further study and analysis `before' pursuing actions to
modify current operations. IleT EACH CASE there may be
information that I have yet to see that might influence my
recommendations. I have spent limited time with each
department so there is still much to understand.
HOWEVER, casual observations do lend themselves to a
need for further review and action where appropriate.
VOLUleTTEER ADVISORY BOARS AI~TD
COMMISSIOl~TS
Attached at the end of this section is a list of the county's
current advisory boards and commissions. The reason this item
is presented is that among these various groups there appears to
be considerable overlap and or `area sectionalizing' of county
interests. I recognize that some of these groups are of a limited
scope (task force) or represent a distribution of community
input. However, all. of these groups do have significant input
and influence on county government operations they are
associated with adding to `staff' work loads and `at times'
conflicting directives. (Staff respects the input and is guided by
the involvement of members of these various advisory boards in
serving public needs. Sometimes, the position of the advisory
groups may not be consistent with the consensus of the BOCC).
I have three recommendations for your consideration:
One:
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Be very selective and investigative of the persons appointed to
serve on specific advisory boards and commissions. Some of
these boards are statutory and the BOCC may or may not have
influence on the appointments. Take time to know the
individuals. Question their backgrounds, level of knowledge
and their commitment to the task. Good advisory board
members are difficult to fmd; bad advisory board members are
difficult to remove.
Two:
Review the number of advisory boards and committees in place.
It is far better to expand board membership than the number of
boards. As advisory boards to county governments, these
groups are all governed by NCGS as is county government with
regard to their meetings, records and actions. The county
assumes liability for their actions. Every advisory board
requires staff support and follow up.
Three:
Each time an advisory board or committee is created, set a
`sunset' provision requiring its re-establishment or automatic
demise. The purpose of this provision is to ensure that each and
every advisory group remains relevant; functions within goals
and objectives in place when it was established; and, provides
assurance that the BOCC (as a board) remains aware of how
these groups are functioning. The `sunset' provision can be set
for a specific period of time. I suggest a time frame closely tied
to the initial goal that created the need and /or a period no
longer than 3 to 5 years in length. They may be automatically
renewed by the BOCC if desired, but it will provide an
opportunity for regular evaluation without being a response to a
crisis or some other conflict.
NOTE: I made no attempt to define the amount of staff time
assigned to supporting the numerous advisory groups currently
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in use. I believe it to be a commitment of county resources
which does have a significant budgetary impact on overall
staffing costs. These groups meet after normal county
operational hours, requiring staff time that later detracts from
normal duties beyond follow up that occurs in regular hours.
The BOCC Clerk also has a staff person whose time is fairly
well dedicated to keeping the membership contact information
and vacancy details of each of these groups up to date and listed
on the county's web site.
EIVIERGEleTCX SERVICES
The county is currently pursuing consulting services to analyze
the existing fire service and supporting emergency services in
Orange County. Unless you are very different, the consultant
will report that during normal day time hours volunteer fire
response is limited in manpower. Afire or emergency during
weekdays 8AM - 6PM represents a significant risk.
The report depending upon how extensive it is, will also detail
how improved assignment of resources and manpower can
enhance operations county-wide. Addressing any change to that
situation will require allocation of resources and diplomatic
interaction with a variety of elements.
The Orange County Rescue Squad situation is an example of
how difficult dealing with the consultant's recommendations
will be if pursued.
Radio system coverage within Orange County is hampered by a
lack of communication towers in appropriate locations. I
understand zoning and public concerns associated with this
issue, but it does carry serious implications.
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The county's population distribution and rural road system
contribute to difficulties in establishing adequate response times
to EMS calls. Additional resources, station locations and a GPS
vehicle locator system can help. Adequate personnel resources
are available within the region which is a plus compared to
other parts of the state.
Reorganization and changing mission parameters are adding to
personnel issues. Sensitivity to these issues should remain in
the forefront, but public safety considerations are paramount.
Past, history indicates the county should continue to pursue
solutions in a timely manner.
Resolution of the Orange County Rescue Squad issues may
require aggressive action by the BOCC to ultimately resolve.
The BOCC needs to prepare itself by developing options for
consideration and formulating a consensus position for action.
H~.T1~~T ~~HTS ADD flaELA'TI®IVS
This department operates independently of other county
functions. The staff is committed to their efforts. There are two
advisory boards associated with this operation making decisions
relative to its mission and structure more difficult.
There are elements of their work that do have. interaction with
other county functions but are limited in scope. There is a lot of
"advocacy" on the part of staff. That effort is usually pointed
toward other governments and/or individuals with final
resolution coming via external resources in most cases. There is
some federal money for training and successful case reviews.
However the budget associated with this group of attorneys and
professional support staff is county funded.
Elements of this function could be considered for shifting to a
private non-profit volunteer agency if available. County
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funding to a lesser extent supporting that effort but not totally
fund staffing at current levels.
Otherwise, if its operations require continued county staffing
(BOCC decision) and could/should be shifted to the oversight of
the county attorney. Expertise with regards to the mission and
where this group's focus should be exists within the County
Attorney's office.
NOTE: Duties and parameters of each individual attorney's
work maybe constricted to specific areas but, it might be wise
to have oversight provided by the County Attorney as a central
source of consistent legal review.
Al~TIMAL SERVICES
Orange County has a great facility. Staffing appears adequate
for current operations. The county and its staff make a huge
effort at reducing the number of animals euthanized annually.
One immediate suggestion is the county pursue an appropriate
sized incinerator for disposal of animals after euthanization.
Currently, after an animal is euthanized the remains are
transported to the landfill. Once the landfill closes it will be
more of a problem. ~ The handling of the animals after
euthanization is a discomforting task.
An incinerator significantly reduces issues associated with
disposing of the animals after euhanization leaving only ash
residue as an item for disposal.
There was an issue with the 09-10 budgets. Some of the
expected savings for the animal control function was projected
to occur from in-house spay/neuter services. That required
$20,000 or more of new equipment not budgeted. Staff worked
on a plan to address the issue brought to the BOCC on 8/18/9.
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HEALTH D]EPARTIVIENT
Some readily apparent issues may be addressed with the facility
relocations under construction. I have not reviewed those plans
nor visited the construction sites as I compile these notes.
Space issues and multiple service locations create logistical
issues associated with staffing, equipment, office space and
record management. A case in point is the two dental clinics
that the county attempts to operate. Neither is equipped with
equipment sufficient to meet today's modern dental treatment
needs. Equipment is a mix of hand-me-down or out-dated
discounted fixtures not found in modern dental offices. Space is
cramped and not indicative of quality services offered. BOTH
locations are difficult to find with limited parking and/or access.
I know the new complex at the old Wal-Mart is a planned
improvement and discussion has occurred regarding the rental
space in Carrboro. Equally sited services are great except:
staffing, hours of operation and equipment used are not of a
level of quality associated with the expenses generated either in
efficiency or effectiveness. A suggestion is offered in section
Number 3 of this submission.
Filing systems and the condition of those systems within the
health department, as in other departments is ineffective,
inefficient, and of questionable security. This should improve
with relocations. A suggestion is offered later.
I do not know how closely the Health Department works with
DSS other than through their collocations. There is opportunity
for further collaboration as discussed elsewhere. I would define
the Health Department operations along traditional lines except
for some of its interactions on environmental issues. Some of
those aspects might be better coordinated through more
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collaboration with ERC (i.e. the sludge disposal educational
project).
A regular periodic meeting between the Health Board and DSS
Board and any of the related advisory committees might help
open up more dialog for collaboration and reduce duplication or
overlap serving similar population groups. This is important
given the county's several service delivery locations.
DSS
Issues at DSS parallel those at the Health Department. After the
construction projects are completed there may be opportunities
to review facility issues again. Some items that came up during
my departmental visits are highlighted below as worthy of
further investigation and discussion.
Orange County exceeds state minimums in its staffing
allocations and response to human service needs provided by
DSS.- There is duplication of administrative costs associated
with the local Smart Start agencies separately run child care
service support in lieu of the mandated function provided by
DSS.. Smart Start funds spent on duplicative administrative
costs are dollars diverted from child care subsidies for those in
need.
Orange County has been generous in its support of human
services provided by various non-profits and not-for-profits. It
is suggested that a closer analysis of that support and alignment
with the mandated functions of DSS is worth pursuing. It is
important that administrative costs be kept low and clients see
the services they need. DSS agencies operate differently in
counties across NC. It might be beneficial to periodically
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review various programs for positive innovations in place
elsewhere to determine applicability here.
Facility issues with the North and South service divisions
practiced in Orange County present barriers to efficiencies and
add to local costs not covered by either federal or state
reimbursements hidden in the county's fixed costs. Automation
and contracted functions could overcome some of those
elements of service delivery.
There is a staff transportation issue between the two major
points of service delivery (north and south). Many employees
use their own vehicles. There is lost client service time spent by
county staff traveling between locations.
.A.G~NG
Aging includes expanded, comprehensive transportation
programs servicing several classifications of clients. In and of
itself, transportation services need a comprehensive analysis and
approach to service delivery. I have no specific recommendation
except that fleet maintenance is now provided via the county
garage and issues associated with fleet management practices
should be reviewed. (Specific observations are reserved.)
There are significant opportunities for better infra-departmental
cooperation among Aging, DSS and Health as well as other
departments within county government. There are "silos" that
need to be lessened if services are to be cost effectively
delivered to the public.
There are opportunities for senior `volunteers' to fill many
clerical support positions at numerous county locations.
An item of disconnect mentioned here but discussed elsewhere
is the lack of contact during construction projects between
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departments that leads to delays, added costs and make little
sense. (At the new senior center, delays in certifying the small
kitchen where meals are delivered, not prepared by county
health department inspectors is leading to revising construction
plans, change orders to already completed work detracting from
funds available for other expenses planned in the project.)
Toilets at the new senior center (probably at the old) are NOT
the newer elevated models making them easier to use by older
adults. There are examples of similar problems that should have
been avoided or resolved with better communications.
C~III,D S~.TPP®R.T C®I~LIECTI®N SElaVICES
The County has a very successful "program". It is a separate
department in Orange County. Elsewhere in NC these services
are a fiction of DSS and handled in a variety of options.
Approximately 66% of the base costs of delivering these
services are funded thru Title 40 SS federal dollars.
The office building is not ADA compliant for the staff or public
use. There is no dedicated public parking.
LIBRARIES
The main library under construction in Hillsborough will be a
great asset. It will raise expectations elsewhere for the county
to vastly improve upon other sites. All of the other branches
need attention and both ashort-term and long-term approach
should be considered for implementation.
Suggestions include:
CARRBORO -look at alternative space to allow for visibility
and expansion of use. Rental space in another building would
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be a step forward and help gauge long-term demand. Store front
libraries work.
CEDAR GROVE -plenty of space exists that with limited
modification would increase the facility's use without adding
staff. Currently separate rooms created staffmg demands to
allow use. Connecting those rooms and centralizing access
would allow for greater use. Signage would help too.
CARRBORO SCHOOL SITE -Great idea that needs some
attention. Future school designs that moved the library to a
location accessible without going thru school halls would allow
the facility to gain more public access and limit conflicts.
Joint staffing options can be pursued.
TOWN OF CHAPEL I~LLL -The County contributes to its
library's operations. Note: the budget for the Chapel Hill
library is roughly 3 times what the County spends county wide.
The County Commission should define a policy for library
expansions that create options with fmancial partnerships with
the towns that bring forth wider community support. To move
projects forward encourage the towns to step up with fmancial
participation. Abetter agreement for assisting Chapel Hill
could be established on some formulized basis.
I am uncertain that along-term plan exists for library services
county-wide. Mebane and Durham could become partners as
their presence grows within the county and population shifts.
PARKS AND RECREATI®N
Historically, the county has purchased land for future parks and
recreation sites. The latest soccer complex project is a tribute to
those efforts. The process and its consistency are questioned.
At issue is that long-standing commitments seem to go unmet in
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a timely manner because dollars are shifted to other sites to
`share' resources. Thus some projects with major investments
appear to drag out in completion of promised improvements.
Observations:
One:
There are staff issues and conflict with the Durham County over
the j ointly funded park on the county line.
Two:
Staff supervision at remote sites is not consistent.
Three:
There is a need to create a park maintenance plan and decide
where equipment associated with those tasks is stored. Some
equipment needs to be stored at each park site while more
expensive equipment can be stored centrally. Travel time to and
from a central site is time not spent working at needed tasks. It
usually involves more than one employee and is impacted by
traffic, vehicle issues and poses some risk of roadway accidents
impacting upon county equipment negatively.
Four:
Effort should be pursued to standardize agreements with the
towns into similar format and content. Currently each town
negotiates its best deal and county staff attempts to figure out
what conditions apply based upon the town county facilities are
most closely associated with at the time.
Five:
Parking issues may become a problem at the new soccer
complex.
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S1X:
Parks and Recreation activities are closely aligned with some of
the county's efforts at land preservation. There should be closer
interaction and interface of those functions.
ENVIROTTIVLENT AND RESOURCE CONSERVATION
Orange County is unique in its approach to a variety of issues
and this department is among those elements where Orange
County differs from other counties in NC. I have experience
with several aspects of what ERC does but from a differing
view. IF, the BOCC is solidly supportive of the current
structure, then there are opportunities to expand ERC to more
closely address gaps that exist.
It is pointed out within this submission that connecting the dots
between Extension Services and/or Parks and Recreation would
help reduce the administrative oversight via the manager's
office. Either option could work, but would need phasing and
proactive support among existing staff.
Beyond those comments, the most important contribution
available at this point is to urge that once a project is identified,
Iinish it before tackling another major effort. Land acquisition
is a valuable preservation technique, but along the way as land
comes off the tax rolls it becomes difficult to support. Between
environmental regulation policies and zoning provisions and the
county's restriction on utility expansions, land within Orange
County is guaranteed to remain rural with limited development.
HOUSING AND COMMUNITY DEVELOPMENT
This department consists of nine full and one part time staff. It
oversees 620 Section 8 housing units with 120 landlords. Note-
1/a of the Section 8 housing units are mobile homes and there is
currently a waiting list of 1400 persons with an availability rate
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of about 100 or so units per year. Open enrollment in this
program should be capped to allow better use of staff time.
The department administers other state and federal housing
programs and is the county's lead agency in responding to
homelessness. Anew Housing Board was recently created to
replace the BOCC as the oversight body for these programs.
Orange County and its Citizens have supported these programs
via bond referendums in excess of any required matches to
federal programs (1998 and 2001). Those funds are spent.
Travel around the county found many more mobile home units
and parks than I expected. As land prices rise, especially where
utilities are in place, relocation of mobile homes, closing of
mobile home parks and impacts on tenants renting mobile
homes may become a concern.
In the near term, a work session related to discussion of recent
study results related to affordable housing in Orange County is
being scheduled to address findings and seek input on goals for
the future. Financial commitments by the county to these issues
need to be carefully weighed and evaluated maintaining a clear
understanding of other commitments the BOCC has established.
~'®LID WASTE
I do not dwell on the Transfer Station issue except to address
the obvious, where ever this facility is located there will be
strong opposition. Beyond the transfer station discussions it is
important that the county look closely at its relationships with
the towns and private haulers before financial commitments to
this process are finalized. IF towns feel they have more cost
effective options later (5, 10, 15 years from now) is the county
covered for its investment. IF SO, fine, if not ratification of a
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commitment for the life of the debt associated with the project
should be obtained.
Long term the county should address solid waste collection
needs in the rural areas through some systematic process that
allows for the eventual closure of most of the green box centers.
Experience with both services leads me to believe that over time
curbside collection allows for more effective and efficient
allocation of resources. Currently the green box sites are funded
by the general fund (county wide taxes). We staff these sites
and haul the materials from those sites to destinations using
county staff and vehicles. The rolling fleet for Solid Waste is
quite extensive. .
The county's 3R billing process if handled appropriately could
be the basis for shifting from a tax based green box system to a
curbside fee based one. Eventually, the current system will
either require greater tax revenues or reduced operations.
Observations:
One:
Staff generally opposes contract operations based on pride in
their efforts.
Two:
The county has a 30 year financial commitment to maintain the
existing landfill beyond its closure. It is uncertain if existing
reserves are adequate to cover `potential' unknowns. Options to
reuse the site for `revenue' producing outcomes should remain a
priority.
Three:
This department has a public outreach effort in place that has
over 2000 contacts. That is a resource to be made available to
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other departments within the county with similar environmental
connectivity.
Four:
Because this operation has been an "enterprise" funded service
its impacts have seen less budgetary oversight than some other
county functions. More direct involvement by senior staff is a
needed priority. While no major concerns spark this suggestion,
going forward the revenue stream will tighten and be limited to
either the 3R's or transfer station assignment of costs.
Five:
It makes sense for discussions to begin on the future of the
jointly owned "Green" tract of land purchased in part with
landfill enterprise funds. The property may have economic
development value long-term. All options should be explored
relative to the property's value and potential uses.
TAX ADl~IINIS'I'I2A'I'I®N -
ASSESSIYIENTS, COLLLCTI®NS, LAND REC®I2DS
For purposes of discussion these items in a broad sense are
addressed as one. Elsewhere within the state efforts to merge
these fiunctions under one director are common. Whether some
form of consolidation is pursued or not remains for study.
Issues do exist that without the close working relationship that
now is in place could present problems going forward.
Software issues ($1.5 - $2.5 Million) do exist and must be
addressed soon. The towns will participate in that cost on a
limited prorate basis. County costs will total 88% for purchase
and maintain of the needed software. THIS PURCHASE
SHOULD NOT BE DELAYED. Efforts are underway to
negotiate the purchase. UVhen it comes to the BOCC (hopefully
soon) you should act upon it. Putting the new software in place
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will be difficult and take time. It needs to be implemented
between re-valuations and tested to be sure it is accurate.
EMS billings should be looked at closely. Several counties use
third party agencies to pursue these billings. Knowing what
insurance companies are doing elsewhere in NC is helpful when
attempting to resolve billing disputes and pursuing third party
payments.
There is need to address HoteUMotel tax collections and ensure
uniform enforcement. Chapel Hill collects its own I~aVI tax. A
program of routine audits to ensure appropriate taxes are
collected and remitted to local governments should be in place.
There are firms that can perform these services for the county.
Signage for the County's offices in the new facility needs to be
pursued. Citizens spend time attempting to fmd the tax office
et.al. because no public signage guides them to the destination.
REGIST'E~t ®F DEEDS
Issues for BOCC consideration and action include:
One:
Records prior to 1992 are in need of `back scanning' for
preservation purposes. This is being done by part time staff on
a limited basis. Older records are being handled; fading and
losing detail. This is an expensive task and if not given priority,
one-time records will be lost.
Two:
The same situation is applicable for `vital records' (birth, death
and other one-of-a-kind forms). The ROD has a vendor
proposal to do all vitals for a lump sum of $234,000 subject to
bidding.
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Three:
There is a federal mandate to do an SSAN removal on all
records subject to public search by 2011. A vendor search is
needed. This could be a costly project.
Four:
The ROD has roughly $250,000 in an automation fund and the
county budgeted $90,000 (I am told) toward the vitals project.
All of these issues need BOCC attention soon.
BOA OF ELECTIONS
There may be some confusion on the needs of the BOE with
regards to operating versus storage space. I believe more study
needs to occur before the BOE is moved into the space being
vacated by Finance and HR.
State law requires the voting equipment and records to be
secured and protected from tampering. It does not require direct
location of these items with the BOE, just ensured BOE control.
Later in this report a centralized record storage facility option is
offered as a solution to some of the county's current and future
records keeping and equipment storage needs. The concept is to
reserve expensive office space for offices, not old files or
limited use equipment.
Voter registration information is stored in more than one
location. That is an unacceptable approach to maintaining these
documents.
ARTS COMMISSION, TOURISM .AND ECONOMIC
DEVELOPMENT
These functions currently have a somewhat autonomous
relationship with county government. A11 have separate
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advisory boards that take direct interest in the functions beyond
the involvement of the BOCC.
I have yet to meet with the Arts Commission staff. However,
among most county governments in NC this function is
managed via anot-for-profit or non-profit with some county
funding support.
I have met with the Tourism Director and discussed some of the
challenges associated with tourism marketing in our area. 100%
of the county hoteUmotel tax collected goes to its operation
($700,000/yr). Chapel Hill also has a similar tax. It contributes
$150,000 of its receipts to the tourism effort.
The Orange County room occupancy rate is between 68-72%.
Average room rates run $118/night versus $85 in Durham and
$90 in Raleigh. In a tight economy, room rates impact
occupancy rates.
There are no near term issues other than retaining and securing
quality staff in a competitive market. It is unlikely, occupancy
taxes can be increased. Thus revenue streams are a function of
room numbers, occupancy and room rates.
Economic Development is a complex function with differing
internal and external influences. The county needs a
comprehensive approach to economic development. There is no
uniform strategy in place. Staff issues result from attempting to
`sell' economic diversity and development as important without
a clear understanding of what ED is in Orange County. Beyond
general conversation in support of ED as a priority limited effort
or investment has evolved in support of unidentified end goals.
Currently there are economic development functions operating
in Carrboro, Chapel Hill along with the County EDC
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I fully understand economic development is different in
®range County. I have been involved in economic
development programs and policy formation for a long time.
Without an `end goal' in mind; product to pitch; and supporting
infrastructure, there is no economic development.
Ail other factors aside including staffing, the B®CC should
egaminie its commitments to ED in terms of target markets,
infrastructure financing and the forms of incentives it would
consider given a viable client and project. Without having a
clear strategy, ED will continue to be a less than effective
investment of resources with limited results.
~®~TIZ IDEPAlZTMENTS (~IIZ, Ii'INANCE, IT ANI)
PUI2CI~ASING et.al. are either supporting functions for
everything the county does; regulation/control over
everything the county does; or, some combination of two. In
Orange County, these functions tend to more about control and
regulation. That view if supported by the BOCC is very
successful. All of that control and regulation comes at a cost
and tends to negatively impact upon operations and the delivery.
of services. In a broad sense, this perception is addressed in the
following paragraphs. Examples exist that do not favorably
reflect upon organizational needs.
IN~OIaIY.irATI®N TECIIN®L®GY
I am told that ®range County government has more
computers than staff. If so, that was not an I.T. decision.
Throughout county government there is substantial need for
updating software applications. A high initial cost and
maintenance of software will be an on-going expense.
Adoption and funding of an I.T. Strategic Plan should be a high
priority. Clear goals need to be established and measured
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carefully for effectiveness. Everything that I.T. does is in
support of other organizational missions. If they do a good job,
you will rarely hear any I.T. related comments. If there are
problems you know quickly.
Areas to be addressed: (some have been identified elsewhere)
One:
Web site design, functionality and maintenance -efforts to roll
out a new web site are scheduled to conclude in September.
On-going improvements are expected.
Two:
Granicus -discussed elsewhere.
Three:
Information storage and security -currently the county
maintains far too many paper records. There are more efficient
methods where cost can be offset by the reduced demand for file
cabinets and the office space to hold those records.
Four:
Property Tax I.T. Package -atop priority at a high cost.
Five:
Planning and Inspections Software -existing planning software
is dated and does not link to other inspections involved in
construction development related services. Planning, Building
and WelUWastewater inspection processes can be interfaced to
provide one simple form and format. It would aid individuals
involved in the process of getting construction documentation
and bridge gaps in communications between the Health
Department and Planning that exist.
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S1X:
Clearly organize and expand I.T. to a level responsible for all
the county's technology functions in a comprehensive one-stop
manner. Included would be computer hardware and software,
telephone and other communication systems, the technical side
of PIO functions and any other technical aspect of county
operations that might come forth (a local government Cable
Channel, radio communication systems, etc.).
I~~TNIAN RESOURCES
One:
There is a definitive need to update and adopt the county's
personnel policies in a comprehensive manner.
Two:
There is no formalized employee safety or wellness program.
Three:
Strong consideration should be given to going self-insured for
employee health insurance.
Four:
There are some employee benefit packages available that offer
employees direct individual benefit without adding cost to
county administrative fian.ctions (Employee Health Savings
Accounts)
Five:
Related to both HR and Finance and long-term sustainability,
the county should consider how it will fiandgost-employment
health benefits per its current benefit package. There exists an
"unfunded" county liability of $ 57 million in future health care
costs for retirees. If funded according to GFOA accounting
standards it would require a $5 million annual allocation.
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2$
This is currently spay-as-you-go expense that has an
escalating impact upon future budgets. For the current fiscal
year, $657,600 is budgeted for retiree insurance and $347,500
for Medicare supplemental coverage. Total insurance coverage
for active employees is budgeted at $6,066,000. The scope of
these numbers will grow as insurance costs rise and more
employees retire. It is a great benefit. The question: is it a
sustainable financial commitment?
Six:
FIR has become more directly involved in assisting departments
with reorganization analysis. That work should be continued.
Seven:
The county should seek to have its formal personnel policies.
(once adopted) accepted as substantially equivalent to those
covering employees now governed under the State Personnel
Act. This would bring consistency and uniformity to how the
county handles personnel issues.
Eight:
In handling several personnel matters it has become evident that
the county needs a formalized training program to assist mid
level managers in preparing themselves for promotion; to assist
and assure that long-term county senior staff is updated on more
effective personnel practices; and, to make sure all county
employees get basic introduction to human relation skill
building training opportunities.
PURCHASING, CENTRAL SERVICES, et.al
As currently structured, this consolidation of services was just
implemented in July and there are many items yet to be
addressed. These comments are based upon departmental visits
and conversations with several other departments. Some of
input is unconfirmed but deserving of study and analysis.
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P'URC~IIASII~TG
One:
The County Engineer function is assigned to this division. I do
have questions why the need and why here? Further study is
needed to validate the move. Why not the Planning Department
or elsewhere?
Two:
As part of a county-wide need, there may be reason to study the
concept of constructing a central storage and distribution facility
(possibly near the county garage). The concept envisioned
would encompass a centralized depository where historic county
files could be securely stored. Items like the BOE voting
machines could be housed there. It could be a location where
such activities as scanning and shredding of documents could be
centralized in a secured area. Doing so helps address record
storage and space issues impacting all departments.
Three:
In an effort to control county purchasing activities a policy
of requiring a "purchase order" for all purchases of $100 or
more and also treating every equipment related purchase of
$500 or more as a capital item is in place. An analysis of these
two policies might make it difficult to justify their existence.
Without verification, it may be that we are spending dollars to
save dimes. Requiring a PO for every $100 purchase means an
added paper trail is being created and that requires someone to
handle, track and audit. I have not yet verified how many PO
actions exist in total or the range of dollars involved. But
without doing so, I know that excess staff time in Purchasing
and at the operating department level is being spent tracking
low value actions at a per hour cost that probably exceeds any
savings in purchase coordination or incidental improper
purchases made. We can research what baseline other counties
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have in place. Without doing so, I would suggest something in
the order of $250 or higher.
Treating capital items as a $500 or larger purchase is strictly a
control function. For accounting purposes, the county does not
capitalize any asset below $5,000. There are other methods to
control purchases between $500 and $5000 that require less
record keeping at a lower cost.
Four:
Discussions with operating departments indicate that Purchasing
routinely substitutes its judgment for that of those delivering the
services. Purchasing should standardize and economize but
some flexibility needs to be granted those servicing the public.
Five:
A comprehensive approach is needed to address the county's
real property assets (land, buildings and facilities either owned
or leased). There are a number of agreements with specific
expiration dates for action that need the BOCC involvement
well in advance of renewals IF other options are considered.
Operational and facility agreements that involve other county
departments should involve the input of those departments
before renewal deadlines force action not necessarily in the
county's best long-term interests.
51X:
Purchasing has been responsible for managing the various
construction projects involving new county facilities. There are
issues raised by departments deserving of further consideration.
Examples include: a current disagreement at the new Senior
Center related to its kitchen facilities discussed elsewhere in this
report. Wall padding for an indoor basketball court at the senior
center was purchased and installed but cost overruns elsewhere
in the project deleted the basketball goal (?) There are
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unresolved punch list items at the Animal Shelter. Two
departments (HR and Finance} had little interface on the
remodeling project for Link Center.
A better process is needed to assure that departments actually
housed in a facility are given adequate input into decisions
related to a construction projects final acceptance.
Seven:
Surplus furniture sits in various locations around the county. It
could be used in areas where poor quality items are in use or
before someone purchases a new item. Some of my concerns
on this issue deal with employee safety and welfare (OSHA and
other regulatory considerations).
CEI~T]L~L SEI~'VICES
A comprehensive approach to facility maintenance does not
exist. The system in place does not address routine items in a
timely manner nor do follow up procedures exist that could help
avoid more costly responses when systems fail. Some blame
may be in the county's failure to property budget maintenance
expenses or to fully recognize the value of an effective facility
maintenance program.
One:
Most county buildings receive little programmed maintenance.
It is not coordinated nor is it comprehensive. Efforts respond to
complaints not to any prioritization of need.
Two:
Limited custodial services are provided county wide. While
back office operations can survive with limited custodial
support (staff can clean up after themselves) public areas need
routine and on-going custodial services (Senior Centers, front
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office areas, hallways, lobbies, bathrooms, etc.). Bringing new
buildings on line should include a funded building maintenance
and cleaning program.. Some services can be contracted out to
third parties if found cost effective.
Some system of routine inspections should be in place to assure
quality control exists.
Three:
Vehicle maintenance efforts could be enhanced. Many surplus
vehicles are stored at the county garage. Disposal of surplus
vehicles is needed to free up space at the garage site. There are
numerous other site oriented issues.
Four:
Analysis should be pursued to determine how cost effective
vehicle maintenance practices are currently. Inventory of
vehicle parts, batteries and tires should be reviewed for
effectiveness.
SITll~MA12X
These observations are basic and not to be taken as absolutes.
Further study and analysis could be appropriate. None of
recommendations is to be taken as overtly "critical" of existing
practices or personnel in a sense of "highlighting" weaknesses.
Each comment is an attempt to ask four basic questions:
(l) Why are we doing this or that in a certain manner?
(2) Are there contributing factors that prevent or prohibit
other options?
(3) When was the last time these issues were addressed,
reviewed or modified?
(4) Is there a better, more effective and/or efficient approach
to be considered?
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.~issignment IlTumber II
Pursue a detailed review and propose revisions to the
County's current "Agenda Development Process".
How can the process be streamlined? How can more
timely responses and distribution of information be
introduced into workflow? How can that information
be arranged in a better format for more concise
presentation along with greater public access?
Various factors impact the length, substance and format of the
Orange County Board of County Convnission meetings. If
applied, these recommendations could help the meetings become
more streamlined and improve public perception.
FIRST, "any" controversial issue will disrupt the normal meeting
process. Some local governments have gone to a format of
holding "special" meetings on a particular issue to allow
other business to be handled in a normal manner at regular
meetings. Special meetings create scheduling issues, but if there
are a lot of these items occurring, create a meeting calendar and
allows regular application of the "special" meeting consideration.
When there is no issue, do not meet.
I\TEXT, improve the meeting "abstract" process. Currently 15
days before a scheduled meeting departmental submissions must
be into the Manager to qualify for placement on the agenda. (I
imagine there are exceptions made to this policy.) 15 days before
the next scheduled meeting is actually the day before the Board
holds it previously scheduled meeting. Staff works to complete
information due two weeks after the meeting they will attend that
given Tuesday to be turned in on that Monday. I assume the
Manager's staff does. not look at that information until after the
meeting they have already prepared to attend is over (Wednesday
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or later). Why an issue? Any item on a current agenda
depending on board action could impact staff work loads for
the next meeting and require redrafting of volumes of
paperwork just submitted the day before.
1. I am told some staff has trouble preparing agenda items and
abstracts requiring Manager's staff to rewrite and restructure
submittals. Staff must be held responsible for their
submittals. There are appropriate methods available to
address those issues.
2. Numbering of Ordinances and 1Z.esolutions as already
discussed separately will be functional action that makes
tracking of County Commission actions easier; easier for
the staff and the public. That effort was initiated and begins
with January 2009. The Clerk and Attorney initiated actions to
create a system of verifying Ordinances and Resolutions as
attachments to meeting mhzutes when acted upon. The
Attorney is scheduled to complete an update of the codification
of the County's Ordinances for OFFICIAL adoption by the
BOCC by year's end.
3. The Orange County BOCC has a lower level of contract
and purchase sign-off authority for the County Manager
than authorized under NCGS. NCGS authorize a County
Manager to sign contracts for construction projects up to
$500,000 and purchases of materials and supplies up to
$90,000. ALL contracts still xequire a Pre-Audit sign-off by the
County Finance Officer before they can be legally acted upon.
A check of the BOCC meeting agendas for the period from
January -June 2009 indicates that of the various board agenda
items acted upon by the BOCC, fifteen (15) agenda items
would `not' have been a Board item if Orange County
followed the NCGS limits. ~Uhi].e not large in number from a
Board action standpoint, each required full commitment of
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staff time to comply with the normal. submission process for
Board agenda items and associated abstracts.
Each of these actions was previously authorized by the
]BOCC through its thorough budget review and adoption.
The BOCC has many roles within. the NCGS requiring hours
of dedicated effort. Involving the BOCC in routine operational
decisions detracts from its other roles. Staff workloads are
increased in an inordinately costly and inefficient manner; not
addressing time delays associated with deferring each item until
the BOCC has completed the approval process.
These purchase and contract decisions are open to review by
the BOCC and public at any time. 1~.uditors review these
records to identify misfeasance or malfeasance.
'T'hird, review the agenda format for slight modifications.
Without specific knowledge of why the current structure exists, it is
suggested that from a formatting standpoint a category be added for
UNFINISHED, OLD or DEFERRED items (terminology optional).
It is my understancling that some items have taken several meetings
to be addressed only because at each subsequent meeting the items
were listed toward the end of the agenda and time limits did not
allow them to be acted upon.
Fourth, as a matter of preference, I feel it more appropriate for the
County Manager's report to occur before the Board Comments
toward the end of the meeting. The BOCC should be last to
comment at the close of the meeting rather than the manager.
Fifth, meeting packages for the BOCC should have a copy of all
power point presentations included in the appropriate sections
and/or copies provided for the BOCC at the meeting so that they
can refer to slides individually without disrupting the presentation.
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Sixth, if the BOCC moves forward on the GRANICUS system
there axe other procedures that can be pursued as needed such as
announcements by the Chair as to availability of that meeting, past
and future meetings on the County's website for reference and record
purposes, etc.
Seventh, during the `one' meeting that I attended in Chapel Ffill., it
was difficult for the audience to follow the BOCC agenda items.
Using the flat screens in place, each agenda item could have a
prepared slide showing the action being considered by the Board
with a short description. Power point presentations could be shown
on those flat screens so that everyone in the audience had a view.
These items can be addressed in the `new' meeting facilities being
planned for the Hillsborough site. Portable solutions may need to be
evaluated for other sites.
Eighth, ®range County often takes several steps and meetings
to handle a single item from its inception until actual
implementation occurs when fewer steps are possible. This is
not the result stfuctured deliberation. It is functional practice. fin.
example for consideration:
® Staff seeks approval to apply for a grant. A f-u11. agenda
package, abstract and presentation is prepared, reviewed and
placed on a scheduled agenda for BOCC approval to apply for
the grant.
® The grant is awarded. A full agenda package, abstract and
presentation maybe prepared, reviewed and placed on a
scheduled agenda for the BOCC to approve acceptance of the
grant.
® A budget amendment, associated documentation and agenda
abstract is prepared, reviewed and placed on a scheduled
agenda for BOCC approval before actual expenditures can
occur.
® If contract documents, purchases of equipment exceeding the
county's current limits apply, another meeting package, abstract
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and supporting documentation is prepared, reviewed and
placed on a scheduled BOCC meeting for action.
It is recognized that this process is not always as depicted.
However, if it does occur at all, several of these steps could
have been consolidated to encompass One Motion of the
B®CC to approve the associated actions. Doing so eliminates
the added considerations and the associated staff time and
effort to place the item on each subsequent agenda.
I did not attempt to analyze how many such events occurred an the
recent past, but can if the Board desires (the August 18~ meeting
agenda has several) .
Sumxn.ary: More considerations are possible given further study.
This was a quick effort to offer options based upon limited
participation or attendance at your meetings till now.
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Assignment Number III
Look closely at organizational efficiencies andl effectiveness.
®verview:
Throughout this submission I have attempted to focus on those
areas where the greatest opportunity exists to enhance what has
been successfully developed in Orange County. Not all of the
recommendations are expected to implemented or even considered.
I told the BOCC in our discussions that I would be forthright in
bringing you as comprehensive of an approach as possible within
the established time frame.
I have yet to do a thorough review of staff qualifications,
backgrounds or capacities. General observations are. that there are
many people in leadership roles within county government capable
of greater challenges. Some remain fixed in the status quo, not all.
Several are ready to step up and excited about the possibilities.
Incrementally, there are many opportunities to improve and
enhance service delivery within existing systems. Your leadership
and ability to fend off the critics will greatly impact outcomes. The
following suggestions relate to many comments elsewhere in this
report but are highlighted here for reference. There are more
possibilities. The absolute goal is to instill an attitude of
Continuous Improvement and a motto to live by.
Suggestions:
One:
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Create Quality Service Tear~as. This would consist of employees
within various related functions from different county departments.
Give them projects associated with reviewing a particular service
delivery option currently in use. Challenge them to evaluate and
produce "better" solutions. Focus attention on cost, service delivery
and some measurement of client satisfaction.
There are successful examples of this process in place in NC and
elsewhere that can be used as models. The county could reward
these efforts (examples exist).
If we get out of the way, some good ideas may come forth by those
closest to the action. (All efforts will not produce results. But given
the right challenge, the right people might surprise us with insight
and enthusiasm.)
Two:
Align resources (staff and funding) with realistic expectations.
The County has just established an early retirement incentive. To
pay for the plan it is expected that a vacated position will remain
empty through the fiscal year. EXPECATIONS may need to be
adjusted to account for the vacancies that will occur. The County
should save money, but gaps in staff productivity are going to be a
reality. Efficiency, strictly from a cost factor will be there.
Unfortunately, productivity will also fall. It has to!
There will be opportunities to re-evaluate those vacated tasks as to
whether job functions can be shifted or shared among other staff; or
contracted to other sources if they exist. Human Resources is
working with each department as potential vacancies are identified
with a serious effort to reorganize tasks if at all possible.
2
4d
Three:
LTse technology whenever possible. There are several areas
where technology at some cost will be offset in potential savings in
staff time. These examples exist throughout the County.
Automated inspection tablets -efforts in Building Inspections could
be extended to well/septic inspections.
GIS solutions for EMS -equip ambulances with GIS tracking units so
that 911 dispatch can send the available units closest to a need
rather that dispatched from a fixed location. This approach could be
applied to the county operated van system to aid in route control.
Automated Agenda Meeting Packages - if the BOCC concurs, staff
can begin a process of providing all meeting information in
electronic format. I would suggest the BOCC be provided laptops
with the appropriate software configurations to allow the process to
work. (We would probably save a tree a month.)
Other Examples exist -
Four:
Centralized records storage. Discussed elsewhere in this
document.
Five:
Self funded health insurance. Discussed elsewhere.
Six:
Consider contracting some vehicle maintenance functions. We
currently stock tires and other parts for most county vehicles and
handle all replacements internally. Besides the inventory cost of
holding items, staffing is allocated to this effort. Several other
internal vehicle maintenance considerations are worthy of study.
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Seven:
Solicit Ynore use of volunteer staffing. There are many volunteers
in use in several departments of county government. There are
probably more opportunities to use retirees IF departments are
encouraged to do so. Especially in roles of client greeters, phone
answering duties and general filing functions.
Eight:
Develop target measure comparisons of performance. There
are similar functions of service provided in Orange County in many
NC counties. Comparatives can be developed to act as a basis to
evaluate how services are delivered elsewhere. Learn from our
peers.
Nine:
Create a position of Grants Coordinator for ®range County.
Grants would still be pursued by individual departments BUT
centrally coordinated to maximize grant opportunities, research,
reporting and accountability.
Ten:
Create acounty-wide non-profit foundation. The purpose of this
proposal is to create a vehicle for citizens, other foundations and
any other group to `contribute' to atax-exempt organization that
would focus on various civic priorities. Possibilities exist that those
who would not give money to a government or government agency
would see an appropriately managed foundation positively. The
county might achieve some of its larger goals with less investment of
tax dollars. (I have used community based foundations/non-profits
to build libraries in Florida and North Carolina.)
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Eleven:
Seek more partnerships. The County often tackles challenges
without seeking out those that might benefit by participation in
efforts having common benefit. (In Cabarrus County, we built parks
in partnership with the State, private developers, the towns and
YMCA.)
Twelve:
Look closely at centralizing specific, more costly services.
Orange County is fortunate to have an,expanding public transit
system. That offers the County the ability to look more closely at
attempting to centralize some service functions. A specific example
for consideration is the Health Department Dental program. We
now have two operations. One exists in rented office space on the
second floor of an office building in Carrboro. The other is located in
space at the current Health Department offices in Hillsborough.
That location is scheduled to move to the old Wal-Mart.
To properly equip one of these facilities is very expensive. Neither
office is currently properly equipped. Old equipment is in use and
some vital dental technology is not available (scanning dental x-ray
and other) at either location. IF we want to deliver quality services,
then better equipment and facilities is required.
If we want two locations, the expense of equipping and staffing
quality oriented service doubles. Look for a location somewhere,
approximately half way between the two locations; furnish and staff
a quality service; and do so in a cost effective manner. (The
uniqueness of this issue is that this is not a service the county is
required to provide. It is a valuable but not mandated service.)
I stay in an apartment complex near I-40 and Hwy 86. There is
rental office space or office condominium space readily available
located in close proximity to scheduled bus services. It is roughly
half way between the two current locations using the shortest
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routes between destinations. We might be able to transport some
clients via the Orange Bus as an option for getting people to the site.
This is not an effort to centralize all county services. There are
some cases where such consideration truly snakes tooth service,
delivery and cost effectiveness sense.
44
Assignment Number
'The County does have several communication vehicles in place
and operational at this time. Most of those efforts are not
coordinated, done in collaboration or uniform in effort. A search
of county records indicates the county spent $465,000 in FY2009
on advertising expense. The Tourism function accounted for
$342,000 of that amount and legal announcements cover another
$25,000-$30,000. The remainder of roughly $90,000 - $100,000
was spent among other departments for various public out reach
functions. ('The largest portion of these expenditures was for
print media/newspapers.)
Td.esearch indicates there is "no one" newspaper outlet that
effectively reaches all of Orange County.
Chapel Dill Tlerald -18% penetration rate
7100 daily subscribers, 20,000 Sunday.
3 days per week focus on Orange Co.
Chapel I~[ill News -18+% penetration rate
Circulation similar to CTII-3[ not confirmed
2 days per week focus on Orange Co.
News of Orange Co. -Penetration rate not confirmed
Circulation numbers not confirmed
Weekly
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Carrboro Citizen -Rack distribution only (free)
Circulation 6-x,000 copies
Weekly
Independent (Il~I~Y) -Rack distribution only (free)
Circulation of 10,000 in ®range Co.
Weekly
None of these outlets provide county-wide distribution.
SITGGESTI®1®T -ONE
Chapel Hill periodically runs a quarter page input in the local
edition of the CHN and CHH that focuses upon Chapel Hill issues
and functions as an out reach to their citizens.
Instead of various Orange County departments submitting
individual ads, notices and other solicitations to the public
independent of others, these efforts could be coordinated into a
routine 1/4 -1/2 page insert into all of the newspapers covering
the county. It may be possible to negotiate with each newspaper
to get a fixed rate annually based upon the volume of space used.
This would become a regular outlet for reaching newspaper users.
Keeping the message accurate and timely is discussed in the
last suggestion at the end of this set of recommendations.
STJGGESTIOleT -TWO
'l'ake greater advantage of the County's access to cable
television. I have not reviewed the County's franchise agreement
with the cable company(s). Elsewhere counties are tal{ing
advantage of franchise provisions that allow for local governments
to provide numerous citizen outreach efforts. Since the State has
assumed franchise management, there are also State grants of
$25,000 annually to support this effort. You must follow certain
guidelines and be consistent in effort as addressed in the last
suggestion of this set of recommendations.
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There are no shortage of informational options available to the
County should it pursue a local government channel effort. Legal
ads, employment opportunities, special programming, meeting
programming and other `government' related promotional options
exist. In Cabarrus County, the county functions as the service
provider. In Onslow County, the City of Jacksonville operates the
channel via an agreement, but the County controls county content.
Your web site and Granicus can be linked to allow the cable
programming to be available and to do double duty for future use.
~LTGGES'TIOIaT - TI~I~EE
GRAI~TICIT~. There are several options on the market for web-
casting meetings. This system is the one that I have familiarity
with from prior experience and past research. It functions as
software vehicle with continuous support for web-casting live
meetings; as a storage link for prior meeting video records; as a
link to other informational data bases; and if applicable can act as
the basis from which to transcribe your meeting minutes. Once
installed, the system becomes an on-line informational resource
readily available to the public. One caution: it does become a
living, accessible record of every action of the board and its
members. Like You-'Tube, it can be downloaded and become a
resource for use in unintended manners.
SIJGGES'TIOl~ -FOUR
Radio does offer an affordable method to communicate a brief
pointed message, several times at a cost effective rate. There
are methods to determine those stations with the highest number of
listeners and apply those messages that need that exposure. I have
not used radio extensively elsewhere, except where "talk-radio"
offered opportunities to provide more detailed discussions
regarding issues of importance. Like other media outlets, radio is
ad revenue based. The County can buy time and negotiate for
segment time on the smaller stations as a means of reaching out to
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residents. Examples exist elsewhere that can be discussed if
hoard interests are there.
SITGGESTI®I0T -FIVE
Ilse the County's web site to its fullest capacity. Although it has
not been the County's highest priority, staff has been working
internally to enhance and update the County's web site. This effort
has occurred within limited expenditures (hence the time delays)
and is an attempt to significantly update the County's Internet
appearance. I have only viewed incremental portions of the effort
which is scheduled to go live in September. It is sure to be better
than the current site.
Significant to this effort, there has been little past coordination of
updates and linkage between departmental sites. The new model
will provide better connectivity and subject search capacities.
Individual departmental content will still be maintained by each
department. ®versight to ensure collaboration, cooperation and
cohesiveness remains an issue to be managed.
SITGGESTI®l~t -SIX
Establish an email based informational outreach that relays
important information on a regular schedule to anyone and
everyone that desires that information or the County needs to
reach out and touch routinely. Much of the information sent to
recipients would be similar to that published in the newspaper
releases outlined in Suggestion -One above. It would be sent
instantly, at minimal cost to an active list of recipients that had
either requested to be on our email list or were targeted as those
that should receive the information to assure their knowledge.
(Examples of the later group would include State Legislators, the
Governor, the Federal Delegation, Town Elected Leaders, News
Media Outlets and other similar target individuals or groups.)
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I was approached by the VOICES group about being a
communication resource. That group and others could be included
for distribution purposes or asked to provide regular updated email
listings. Other than maintaining the email listing and routinely
updating email addresses, the cost of this effort is minimal
beyond the staff time in putting the information into an
electronic format.
In Casselberry, Florida (a metro Orlando city of 25,000) we began
the email newsletter as an electronic copy of a published version
that was included with utility billings. Within a few months of
implementation, the email version was reaching 1500 users on a
requested basis. Some people prefer email.
SUGGESTION -SEVEN
Direct mail or inserts in various third party mailings.
Orange County mails real property and motor vehicle tax bills each
year and an insert developed by David Lunt provides limited
information to each recipient. There are roughly 61,000 real
property tax bills sent annually (many go to mortgage companies)
and roughly 110,000 motor vehicle billings (boats, cars, trucks,
trailers, etc). Effort could be made to refine these mailing data
bases, mine the data to reduce duplications and then use the data
for direct mail purposes. A less expensive option is bulk mail.
Efforts of this nature do create a lot of wasted paper, but if
used properly and in a controlled manner can provide effective
results.
SUGGESTION - EIGIIT
PTJBLIC INFORMATION OFFICER (P.I.O.) Orange County
has several substantial efforts in use to attempt to reach out with
information that the public needs to know. Those efforts lack
consistency, coordination and central control. Effectiveness of
those efforts is difficult to measure. The good news is the effort
and information is there for transmission. The bad news is we are
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probably not ma]~ing contact as often or with the persons we need
to reach most.
~ qualified person is needed to bring consistency to our
message; make sure collaboration exists among departments;
coordinate outreach; ensure financial resources are magimi~ed
and to be the go-to person for making it all come together in a
sensible manner. The skill sets for a person of this type are broad
and include the ability to be closely involved with all seven of the
above suggested approaches. They will not be an expert in all
areas but capable of knowing when to pursue technical assistance
but not be reliant upon that assistance for routine functions.
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Assignment Number ~
Take a close look at the staffing levels in the 1~Ianager's office
with regards to existing and future challenges.
I need to comment on current staffu1g levels to the extent that it is
a direct reflection of the demands and expectations of the BOCC
individually and collectively. There is an "understanding" among
senior staff that "the BOCC gets what it wants -collectively and
individually". In straight talk -staff feels it must meet the
demands from direction provided by the Board or the staff's
perception of what "individual" members of the Board expect.
My best explanation of this factor is the time and effort spent by
staff in the Manager's office on the agenda preparation, review,
draft and redraft of the various submittals to accommodate the
interest of the BBOC. I expect all county staff to pay attention to
items coming before the BOCC. In Orange County an inordinate
amount of time is spent on issues ultimately insignificant to the
item(s) being considered. The pursuit of perfection is an
inherently difficult if not impossible, extremely expensive task.
Additionally, while on this subject, this is the first jurisdiction in
my career where the BOCC Clerk's staff has such limited
responsibilities associated with preparing the agenda. Thus when
analyzing staffmg level in the County Manager's office it is
important to recognize (especially if comparing to other counties)
the extensive role played by the Manager's staff in meeting agenda
preparation, especially with the number of times the BOCC meets
and technical revisions required in Orange County.
The BOCC Clerk's staff consists of four (4) fulltime positions and
the actual production of meeting minutes are a contracted function.
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I have not evaluated any functions performed by the Clerk's office
beyond interaction on the meeting agenda and follow up.
If vacancies in the Manager's office do occur, the Manager should
use that opportunity to fine tune and analyze staffing work loads
and options. In doing so, there is a gap (discussed elsewhere) that
should be filled ASAP. That is the position of Fublic Information
Officer (PIO).
The last item not addressed yet in the building changes about to
occur is where the public's central contact point will be for all of
the departments to be located in the remodeled office facility. The
BOCC, Clerk to the Board, County Manager, County Attorney,
HR functions and Finance will all be in the remodeled building.
How to "greet" the public as they enter the building needs analysis.
I have no recommendation yet, except to recognize that the current
situation was not designed to be a public friendly facility.
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Assign~e~t Number VI
Look closely at reorganization options created by the potential
retirements resulting from the County's incentive program.
®verview:
The retirement incentive package has produced approximately
a 1/3 affirmative response of those qualified to select the
option. Thus far results are mixed with regards to any serious
restructuring of county departmental staffing. I plan to sit
down with each department on a case by case basis and have
~Iuman Resources analyze work flow, staff qualifications, and
how technology might be applied to assist in redesigning
position functions.
The retirements are producing vacancies at the operational levels
within each department. On the short-term, department heads are
being told that they should plan to deal with those vacancies for `at
least' the period October 2009 -June 2010. I will be working with
each department head where current situations will `not' support a
particular position being vacant for that long of a period to address
those immediate staffmg considerations on a case-by-case basis.
We will seek off-setting savings within. departments to deal with
budget implications,
Some departments are actively working on restructuring plans
addressing future needs. Others are in the early stages of
assessing impacts. UNTIL we know who is retiring and who is
not, any other analysis is speculation at this point.
Beyond the initial impacts of any vacancies created by the
retirements of any of the 150 +/- employees eligible under the
County's one-time retirement incentive program I have looked
broadly at the County's organizational structure. Every County's
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organizational structure is a reflection of several factors: type of
services; strength and quality of staffing; external influences;
advisory board functions and the influence of the BOCC. NO one-
size fits all. When opportunities are created to re-evaluate existing
situations, they should not slip by without attention to how
functions interact and what desired outcomes really are.
An over-riding influence to avoiding rational reviews of
existing operational (i.e. organizational reporting alignments)
structures is "personalized" investments in the ST.t~TITS Qf.JO.
It does exist in Orange County.
At risk of ruffling feathers or shaking `silos' within Orange
County's governmental structure, I broadly brush several
opportunities to pursue more closely aligned functions within.
existing parameters. (Again, the issue of staff strengths and
quality are extremely important to these considerations along with
the influence of the many advisory boards and their members.)
Where are many options on alignment of county governanent
functions that can be found across l~Torth Carolina. Each
department within each county has a similar and varied role
among its peers across the state. Offered within the context of
this presentation are suggestions based on a limited overview
of existing operations. More observations and study are
required prior to implementation.
I. El~TVIRONMEIvTT and RESOUI.2CE COloTSER~A-.TION -
This function within Orange County is different than experienced
or seen elsewhere within the state. I suggest two moves to bring
associated activities into closer alignment for coordination and
collaboration purposes.
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A. Moving Extension Services as a reporting function to ERC
would help align the various elements of Extension's interactions
with the rural and farming community with the ERC goals. The
programming side of Extension would not be as applicable, except
that interactions with the environmental communities that exist in
Orange County do overlap.
Note: staffmg in Extension Services is via an agreement with
NCSU. I need to review the specific commitments to NCSU the
County has authorized via its MOU for support of Extension
Services. Specific legislation passed this year that will limit our
ability to influence staffing structure in Extension Services after
1 / 1 / 11 with regards to furloughs or salary reductions.
B. Moving Parks and Recreation as a reporting function to ERC
would help align the various land preservation activities of ERC
with the overall mission of land management overseen by Parks
and Recreation. The activities side of Parks and Recreation is a
little less applicable.
(Moving these two functions, expands the interaction of EIZC
with the functions and narrows reporting relationships
elsewhere within the organization.)
II. TAX AIDMINISTIa.ATI®N -
Functional coordination currently exists between Revenue/Tax
Collector and the Tax Assessor. Formalizing this relationship with
the creation of a Tax Administrator is a proven method to ensure
that these functions gain complete coordination, collaboration and
cohesiveness among the variety of functions transacted. Some
discussion among the existing staff has focused on consolidation. I
have not yet had a chance to listen to their proposals. I am familiar
with this structural merger elsewhere among larger counties in
North Carolina.
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III. EC®N®MIC REVEL®PM]ENT/ARTS/T®UI2ISM
Limitations exist on how economic development functions within
Orange County can be effective. Some attention is paid to Tourism
and Arts but the driving factors are oriented toward opportunities
for economic expansion within a narrowly defined set of
parameters. Suggestions for are offered for more study:
A. Move the Arts function to a reporting relationship with the
County's Library. Abetter fit exists between the mission of the
Library and Arts than does the current alignment.
B. Consider a split of Tourism and Economic Development as a
reporting relationship. Both have separate advisory boards and the
mission of Tourism although related to Economic Development is
focused on the singular mission of `heads-in-beds'.
Consider fi~.rther study of the Economic Development function.
Within Orange County, economic development has a differing
meaning than elsewhere within North Carolina. Land use
regulations, utility extension policies and a variety of other issues
impact `traditional' economic development found elsewhere.
Some thought might be given to moving the function of economic
development as an element where direct oversight is provided by
the County's Planning Director.. Title changes and appropriate
analysis would consider how to accomplish the move.
The County needs to identify the infrastructure elements needed to
support economic development and commit financial support.
IV. BZJDGETING/FINANCE/PURC]EIASING -
Two of the early retirements will be the current Budget Director
and Finance Director. Replacements will be new hires.
My recommendation is to create the position of Deputy Finance
Director to assume the oversight of budgeting functions. The staff
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of both divisions has operated separately and independently. That
will change via cross-training with Finance and Budgeting staff
able to assist each other to the maximum extent necessary.
The County has moved added functions to Purchasing to include
Asset Management and Public Works.
The restructuring of the Purchasing/Central Services function to
include Public Works and Asset Management is a different
approach from what I have seen in NC county government. It is
not unusual for Purchasing to be separated from Finance in
municipal government due to the utility and public works
contracting responsibilities cities assume. In county government
purchasing usually falls within a Finance Department reporting
structure. (This issue needs more evaluation on my part prior to
any recommendation.)
There is a definitive need for more oversight of the county's public
worl~s function as discussed elsewhere in this submission.
I am not sure of the rational that supports the position of County
Engineer (two staff members) being a reporting function to
Purchasing/Central Services. That relationship has just been
establish and needs further analysis.
V. I~[ITll~IAN RIG~ITS AND REI~ATI®NS/ C~IILI) SUPPORT
ENF®RCEI~IENT/I~[OITSING -
These three functions as stand alone departments are somewhat
unique to Orange County. All three have narrowly defined
missions, small staffs (with fairly technical backgrounds) and
function in close relationships with one or more advisory boards
(except Child Support Enforcement).
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A past practice in Orange County has.been to create departments
that fit a particular goal. In each case, these functions have been
successful within their roles. What is not certain is whether their
status as independently operating departments is necessary or best
use of the talent within each department. There is some overlap
among staff positions and responsibilities with other county
departments.
Human Iaights and l~.elations - A five member staff consisting of
a director (attorney), two civil rights specialists (one attorney and
one MPA), a translator and an administrative assistant comprise
the office. They have two advisory boards that they work with
closely. However, outreach ~is the main source of their client base
and most of their work once completed results in referring cases to
non-profits or other agencies for direct legal assistance. It is
certain their role is important to those served. The issue is that
their role is fairly self-directed or led by advisory board input.
Housing -This department of county government has a diversified
mission dealing with various elements of providing housing
options for residents of Orange County. The main focus is upon
federally funded opportunities to expand availability of housing
options and provide subsidies where available. County funding
does support the effort and its mission by associated input from
external task forces has been expanded into `homelessness' in a
staff support role. Further study of departmental functions could
lead to closer collaboration and coordination with other county
departments.
Child Support Enforcement -This department has a successful
record of achieving enforcement collection actions against those
individuals responsible for fmancial support of children in Orange
County. Elsewhere in NC this function usually falls within the
parameters of DSS. The service is also a contracted function in
some NC counties. The department has a relatively small staff and
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limited mission. They have been effective, but are effectively
insulated from other county operations via function and location.
VI. SMART START CIIII,D CARE AI~1VIIl®TISTRATIOlOT -
In Orange County State Smart Start child care subsidies are
administered via the local Smart Start organization. At the same
time, very similar subsidies are being administered via the
County's DSS. Elsewhere, Smart Start Boards make a direct
allocation of Smart Start funds to county DSS agencies and DSS
administers those allocations similar to existing programs from
other funding sources. Administration of these identical programs
with different funding sources is being duplicated. Dollars spent
on administrative expense could be put into child care subsidies for
those seeking that assistance.
VII. COI~tSOI.II)ATE~D IIITIVIAIOT SERVICES - As a function,
consideration of this option would only be available pending
special authorization by the NC General Assembly. NCGS 153A-
77 makes it possible for counties with a population of 425,000 or
more to consider merging health and social service functions
within one operational department.
There are wide ranging implications for such a consideration and
resistance to any change would come from vested interests in
current organizational structures. The `potential' implications and
"long-term" impacts of such a bold and aggressive approach to
reaching out to those in need of assistance within Orange County
would not be out of context with the efforts and many differing
groups now actively involved in delivering services to a diverse
population.
In a county as rich in community involvement as Orange
County and known for taking progressive approaches toward
addressing local needs, such a step deserves detailed study at
some point. There are working relationships between the
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County's DSS and PH departments, but regulatory and reporting
criteria along with independent vested interests hinder
consideration of more effective approaches to service delivery.
A comprehensive, independent analysis along with significant
community input from all of the various organizations and
associated interest groups could lead to consideration of this
concept (if authorized by the General Assembly) or at a
minimum more functionally .coordinated services provided
under the existing organizational structure.
These county functions as described elsewhere in this report
service a very diverse population with a substantial and vocal
community base of support. The reason~for mentioning the
potential is because of the large portion of the County's budget
devoted to I-Taman Services (I)SS/1') that goes far beyond the
minimum levels required by 1~CGS and the norm delivered by
other I®1C counties.
VIII. ~CIIIEVIIeTG FUI~TCTI®l~TAL EQITIVAI.EleTCY
BE~'V6rEEl~ 'T'IDE C®ITl®TTY'S PEI2S®lOT1oTEI. P®I,ICIES
TI3E STATE I'EIZS®NNEL T2UL,ES Al~tl) PR.®CEDUIZES
C®VERING TISS ANI) PUBLIC IIE.A~I.,TI:I ElVIPL®YEES -
Achieving change with regards to shifting assignments, job
functions and making decisions regarding compensation for
employees of Public Health and DSS is unduly complicated by a
personnel system administered at the State level that attempts to
treat all employees within these two departments of county
government the same in all 100 counties. Some of the larger
counties with competent professional HR staff have successfully
pursued this option. It requires updating and making sure all
county personnel policies are compliant with state and federal law.
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We must also put forth an employee grievance system that closely
follows the state's design.
The benefits of this process (1) requires us to make sure our
personnel rules and procedures are accurate and compliant with
state and federal laws, and (2) grants the county more flexibility in
staffmg assignments, job descriptions and job functions within
both the health and social services functions.
. SCSI®®I. SYSTEM F.ACII~ITY INTENANCE -
Consolidation of schools is off-the-table. There are opportunities
to focus upon unified approaches to many underlying core
functions that support education. Any discussion of these issues
requires `leadership' within the schools and county government.
This suggestion focuses on support functions like facility and
grounds maintenance (county facilities could be included as well).
The two school systems now coordinate transportation
functions.
Facility and grounds maintenance functions could be a candidate
for unification to achieve cost efficiencies. Electricians, Heat/Air
technicians, Plumbers, Carpenters, and other skilled trades could
serve both systems in some form of cost allocation. County
functions could be added in the future.
There are limited state funds involved with these activities. Thus
the real potential efficiencies and savings are to Orange County.
The commitment this County snakes to education is amazing.
It could be a significant accomplishment if it were to be extended
to developing more efficient use of its fmancial resources fully.
This issue is not entirely within the BOCC's discretion, however
discussion of the concept could benefit from BOCC initiative. If
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pursued, it would assure that all public facilities were being
maintained in a consistent and cost effective manner. Issues like
energy efficiency and other environmental factors would be given
similar consideration. Enhanced collaboration between the two
school boards and the BOCC could be a side benefit. Future
investments could be monitored for effectiveness.
X. ~l~C A.SED CC~I~SID~R.A'I'I®leT ®F 1®T®I~t-Ply®F~T AID
IoT®T-~®12-PIS®~'IT SERVICE PI2®'~DERS -
Within in the metropolitan area there are numerous Non-profit and
Not-for-profit organizations and agencies that deliver or can
deliver many of the services now addressed by Orange County
directly. There may be opportunities for the County to help
establish such groups that could assume service delivery
responsibilities that either the County is unable to do or is less
effective or efficient at doing.
I offer no specific examples at this point, except to know that if the
BOCC supports the concept, opportunities can be pursued. I have
participated is a large scale effort associated with the creation of
the Cabarrus Health Alliance (a county sponsored Not-for-profit)
which now is responsible for providing county health department
functions in Cabarrus County. That is a discussion requiring far
more expertise than I can offer. The CHA has been functioning for
over 10 years so it offers a good basis for study and comparative
analysis if desired.
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Assignment l~Tuulber VII
®ther duties as assigned (or as recognized by mysel$~ needing
management oversight, input or direction
Since mid June I have been handling the daily activities associated with the
Interim Manager responsibilities. The following items are the more time
consuming aspects of that effort. Some issues and items are simply outlined
to highlight what the next county manager should be prepared to face in
his/her role of being a change agent for Orange County government.
Record keeping and access
Usually, the first thing an incoming manager will attempt to do is review
information related to the more important challenges to be faced. Finding
accurate, up-to-date official documentation in Orange County is high first
hurdle to gaining important insight. Significant attention is needed to
improve upon how information is compiled, organized and retained.
Centralization and coordination of information resources is needed.
Personnel issues
Considerable time has been spent on personnel related issues involving
individuals at the mid and upper management levels. Most are related to a
few basic factors:
(1)Throughout the organization good people are doing good things.
There are more accomplishments to be gained. The organization is
beginning to change at a much faster pace than in the past. A need exists
for more interdepartmental coordination, cooperation and collaboration.
(2)It had been a long time since I had heard the term "silos" used to
describe the internalization of resources and information within county
government. It is regularly used in Orange County.
(3)Staff in senior management roles and mid level positions need more
training in human relation skills and conflict resolution.
Established goals, priorities and objectives -measuring progress
I often encounter the terms "the Orange County Way" or "the Orange
County Approach". "Process" is vitally important to any decision made
63
impacting public services in Orange County. Every process should begin
with an end in mind. That does not always happen in Orange County.
Staff closely follows the lead of the BOCC. Staff fully supports the
consensus of the BOCC then attempts to be proactive to input from each and
every member of the BOCC. That is not always possible.
Several long-standing issues exist either because the challenges were never
divided into achievable objectives, or every aspect of an. issue was infinitely
researched to determine if another alternative existed. Para-phrasing Teddy
Roosevelt, in the end there are three decisions a person can make: the right
decision (always the best choice); the wrong decision (the second best
choice); and no decision (the absolutely worst choice)! Delays in process
often lead to the last option in Orange County. Challenges never get any
easier if decisions are continuously delayed in search of the perfect solution.
County staff needs a clear set of goals. They need to be aligned with a
BOCC vision of the relevant values of how Orange County should look in
the future.
Priorities need be established. The BOCC needs to adopt priorities in a
logical manner and commit resources. Every priority can not be number
one.
®bjectives need to be developed and measured. Each county priority may
be comprised of several objectives. Each of those objectives should have a
measurable end result. (D+on't begin without an end in mind.)
Creating a sense of identity for county employees, vehicles and facilities.
During my stay in Orange County it has been one of my goals to travel the
county broadly. I have attempted to visit and/or locate every county facility.
There is little consistency that would lead visitors or citizens to easily view
county employees, vehicles or facilities with any sense of common identity.
There is no consistent approach to identifying county facilities via signage or
a commonly used icon. Under municipal signage regulations, there still
should be a method to properly let the public know where county facilities
are located. A common approach and a modern icon could be pursued.
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County vehicles come in a wide arrangement of colors, condition and
identifying icons. It should be with some consistency that vehicles are
identified as county vehicles; clearly numbered; kept in presentable
condition (fresh paint is not that expensive); with a common icon and
departmental identification placed in a similar location on each vehicle.
Among county departments there is no common approach to identifying
county employees. Some use a uniform approach (Sheriff and EMS), some
use identification badges and many have not recognizable identity to tell the
public they represent county government. Dress down Fridays mean little if
some staff never has to dress up.
My approach to this issue might be too formal in view of past practice here,
but because we do pay well and county employees do represent the image of
county government that the public encounters, first impressions do count and
last. I am not stressing a coat and tie approach for all staff. I do think
uniform style golf shirts for men and women; minimum standards on foot
ware for safety purposes and determinations of acceptable daily wear for
county employees will build upon a positive image with the public. Again,
dress down Fridays mean little if you never have to dress up.
Il~iero-management by the B®CC
I have not personally experienced this issue during my brief time here. I am
told BOCC members sometimes become directly involved in the details of
delivering county services.
I welcome BOCC input, but reserve the authority to act where NCGS,
federal law or direction by the BOCC consensus has established
responsibility. I understand the role of the manager in a local government
organization. I make mistakes. When I do, I accept responsibility for those
errors, attempt to make the appropriate adjustments and move on.
In the end, if the BOCC wants change within the organization to occur, it
will need to support those changes in the broader sense not on every single
factor impacting a decision. Many of the items outlined in this report will
not be addressed if each item must have intensive BOCC involvement before
action can be implemented. The broader scope that the BOCC assumes in
its policy development processes, the more effectively the manager and the
organization can respond.
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The BOCC intense interest is not a negative factor but is difficult for all staff
to understand as to the line of questioning that sometimes accompanies
discussion of issues before the BOCC. If staff is concerned their input may
gain negative BOCC reaction OR they focus on only telling the BOCC what
staff thinks the BOCC wants to hear, you may not be told or hear what the
BOCC does need to hear.
Staff does attempt to give the BOCC what it wants.
Sometimes you may need to hear more.
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