Public Works Consolidation Joint Resolution Study Mel Kleckner Town

Public Works Consolidation Joint Resolution Study Mel Kleckner Town Administrator Peter Castanino Highway Superintendent February 5, 2003 Introduction n n n n n n n The value of public works Why are we looking at this now? Approach to examine this issue Organizational history and background The merits of public works consolidation What we are proposing How we get there—implementation steps The Value of Public Works Public Works meets the daily needs of citizens By providing construction, operation and maintenance of infrastructure Four primary functions: § Clean water § Sewage disposal § Trash disposal § Safe roads Public Works enhances our quality of life Public spaces for a variety of uses that enrich our citizens’ lives § Cemetery § Athletic fields § Ice skating rink § Underwood pool § Playgrounds and tot lots § Clay Pit Park § Public benches § Attractive deltas § Public trees § Clean streets Why are we looking at this now? Why are we looking at this now? n Initiative of the Board of Selectmen and Warrant Committee, resulting in a joint resolution of the Boards of Selectmen, Water Commissioners and Cemetery Commissioners Fiscal demands Demand for improved productivity, efficiency and quality n n It’s an old idea whose time has come n Four studies undertaken since 1975 n n n n King Commission (1975) Shaw Report (1985) Consolidation Study Committee Report (1992) Joint Resolution Study (2003) all recommended consolidated public works functions King Commission Report “It is the view of this committee that the key to the realization of savings is through a reorganization of these departments.” “The committee holds the position that to be effective this organization should have a single decision making authority.” King Commission (1975) Joseph King Bennett Mandel Walter Flewelling John Bishop Joseph W. Kales It’s how things are done n Overwhelming majority of communities (both locally and nationally) find a consolidated public works structure to be most efficient n Each of our neighboring communities has a public works structure Only two of the fifty-six MWRA communities do not have a consolidated public works department (Belmont and Marblehead) More than 75% of all US cities have public works departments n n Approach to examine issue Approach n Interviewed primary stakeholders n n n Commissioners Department and assistant managers Town Accountant, Light Manager, and Town Engineer n n n Review existing consolidation studies Conducted legal analysis with Town Counsel Worked with public works consultants, Municipal Resources Inc., to discuss and refine analytical approach Interviewed public works directors in six comparable communities (Arlington, Brookline, Lexington, Watertown, Wellesley, Winchester) Compiled organizational and resource data about our current organizations n n Organizational History and Background Legal Basis n Structure of Massachusetts Town Government n n n State Laws Home Rule Article 4 of the Town By-Laws n Highway and Town Facilities n n Board of Selectmen jurisdiction Many recreational facilities on School property Legal Basis n Water Distribution n Chapter 296 of the Acts of 1885, An act to Supply the Town of Belmont and its Inhabitants with Water Article 7 of the Town By-Laws Town Meeting adoption of Sections 22 through 26 of Chapter 114 of the Massachusetts General Laws Article 10 of the Belmont By-Laws Special Act and State Law Utility regulatory environment n n Cemetery n n n Municipal Light Department n n Existing Organizations Water Board Board of Selectmen Cemetery Board Water Town Administrator Cemetery Highway Facilities Services Provided Water • Administration • HR/Labor Relations • Utility Billing/Meter Reading • Water Distribution and Maintenance Services • Infrastructure Planning and Replacement Highway • Administration • HR/Labor Relations • Street Maintenance • Sanitary Sewer Maintenance • Stormwater Maintenance • Central Vehicle Maintenance • Forestry Services • Deltas and grounds maintenance • Solid Waste and Recycling • Street Lighting Buildings and Grounds • Administration • HR/Labor Relations • Buildings repair, maintenance and upkeep • Grounds and maintenance Cemetery • Administration • HR/Labor Relations • Cemetery Operations • Grounds maintenance Common functions: • Construction and maintenance activities • Emergency service/response • Administration • Human resources and labor relations • Billing and collection (sewer, water) Department Resources Department Water Highway Cemetery Grounds TOTAL Staff 16 30 6 5 57 Equipment 14 49 5 8 76 Budget $3,878,409 9,923,692 305,344 377,517 $14,484,962 FY03 Budget Public Works 34% Other Tow n 66% The merits of public works consolidation Removing Barriers n Every department works hard and provides quality services We share and coordinate our activities— but there are institutional and inherent limitations on our ability to do this Successful organizations must adapt to changing conditions and break down these barriers n n Removing barriers Opportunities created by consolidation § Allocate resources more effectively § Coordinate common functions § Enhance management § Centralize administrative functions § Save and/or avoid long-term costs § Improve emergency response capacity § Support employee development § Maintain service quality in a challenging fiscal environment Allocate resources more effectively A unified management structure will allow us to: § Coordinate routine resource management and service delivery on a daily basis § Accommodate seasonal work loads by allocating personnel and equipment § Deliver emergencies services more efficiently Coordinate common functions n n n n Underground utility repair Grounds mowing and maintenance Snow plowing and removal Utility meter reading and billing Enhance management § Initiate performance measurement by benchmarking § Develop a system to track the cost of providing services § Maximize technology and innovation § Institute a common vision and direction § Increase planning capacity § Coordinate enterprise fund accounting for compliance with GASB 34 § Increase accountability Centralize administrative functions § Human resources § Labor relations § Budget development, planning and tracking § Bids and contracts, equipment purchases § Customer service Save and/or avoid long-term costs § Elimination of duplication in organizational overhead - Supervisory, administrative and clerical staff - Meter reading, billing and collection § Combined resources provide opportunities to avoid future costs - Sharing resources may present the opportunity to reduce or eliminate future staff Improve emergency response capacity § Water main breaks § Sewer and storm drain breaks or blockages § Storm water flooding § Trees and tree limbs down § Snow and ice control Support employee development § Create more opportunities for career advancement § Labor support through efficient allocation of resources (e.g., burials, snowplowing) § Cross-training - Enhances job satisfaction - Enhances job security Maintain service quality in a challenging fiscal environment Create opportunities n n n Increase efficiency Coordinate resources Focus management What are we proposing? A proposal to establish a consolidated Public Works Department n A unified department, under the legal jurisdiction of the Board of Selectmen, led by current Highway Superintendent, Peter Castanino, as public works director. Elimination of Board of Water Commissioners and Board of Cemetery Commissioners n Proposed Reorganization n Creation of an advisory Cemetery Commission n Advise the Selectmen on burial policies and fee structures Provide representation on McLean Land Use Agreement n Principles of Implementation n Cost of combined department shall not exceed individual department budgets Utilization of existing personnel and resources Opportunity for meaningful work for all Evaluate all possible opportunities to partner with other departments or entities to provide functions more cost effectively Core mission of existing departments will not be subverted n n n n Proposed Organization Board of Selectmen Cemetery Board Town Administrator Public Works Director Operations Mgr/ Division Director Administration Field Operations Water Highway Grounds Cemetery Vision of New Organization Create a cohesive unit with a shared mission… § Coordinate approach for: - Providing services - Budgeting and equipment purchasing - Short- and long-term planning across divisions § Team management approach for providing services § Shared staff at every level § More efficient delivery of common services, ie. grounds maintenance and snowplowing § Formal system to allocate resources daily based on need and also during emergencies § Combination of water/sewer and electric meter reading and billing With a culture of: Responsiveness Efficiency Excellence Accountability Respect First Operational Steps 1. 2. 3. 4. 5. 6. Communicate the vision to all employees Appoint an operations manager Evaluate and coordinate the delivery of all common services Consolidate department budgets Create a central point of contact to respond to public requests, questions, concerns Centralize all utility meter reading and billing How do we get there? Implementation Steps n Board of Selectmen vote to support the recommendation Draft Special Act and By-Law language for Town Meeting approval, incorporating all organizational and jurisdictional changes Create and classify Public Works Director and Operations Manger positions n n Implementation Steps (continued) n Communication Process n n n Formal report Public deliberation and hearings Employee and Union Communication n Interim MOA n Delegation of operational authority during transition “All labor that uplifts humanity has dignity and importance and should be undertaken with painstaking excellence.” Martin Luther King Jr.