Beaufort Counfy Management Ellectlveness Study--------------_______

PRESENTATION ON

IMPLEMENTATION ACTIVITIES

November 14, 1988

'-----------------------Theodore Barry & Associates

j

,.--- Beaufort County Management Effectiveness Study-------------------....

BACKGROUND

•

•

•

•

•

Extension Of Presentation Made July 18, 1988: "Initial PresentationOf Findings, Conclusions, And Recommendations."

Objectives And Scope Remain:

PlanningOrganizationPerformance Monitoring.

TB&A Efforts Now Primarily Implementation Oriented.

Adjustments Made In Project Timing To Accommodate:

Sensitive Nature Of RecommendationsImplementation EffortsChanges In County Administrator Position.

Anticipate Final Presentation In January 1989.'-- Theodore Barry & Associates_---'

..-Beaufort County Management Effectiveness Study------------------....,

MAJOR ORGANIZATIONAL ISSUES

• Administrator Span Of Involvement Too Broad.

• Several Roles And Responsibilities Not Clearly Defined.

• Unclear Placement Of Comprehensive Planning Responsibilities.

---------------------Theodore Barry & Associates--

,..-- Beaufort County Management Effectiveness Study-----------------.,

ORGANIZATIONAL FORM

•

•

•

•

•

•

Clarify Relationship Between County Council, County Administrator,County Staff, And Agencies, Boards, And Commissions.

Clarify Point Of Contact For Elected Officials.

Create Workable Managerial Span Of Control For County Administrator.

Consider Group Synergies.

Emphasize Role Of Planning.

Enhance Resource Skills For County Council, County Administrator,And County Staff.

'----------------- Theodore Barry & Associates-~

~- Beaufort County Management Effectiveness Study-----------------_______

PLAN

•

•

•

•

•

FOR IMPLEMENTATION OF ORGANIZATIONALCHANGE ACCOMPLISHED BY

Agencies, Boards, And Commissions Reporting Relationship Defined InOrganizational Chart And Charter:

Department Head Serves Ex-Officio On Agencies, Boards, And CommissionsCharter Identifies Reporting Relationship To County Council.

Commission Staff Organized By Functional Area (see charts):

Finance And AdministrationHuman ServicesCommunity ServicesPublic Works.

Commission Staff Skills Enhanced By Addition Of Key Positions:

Business AnalystStaff AttorneyDeputy Administrator Finance And Administration.

Training.

Inclusion.

'-- Theodore Barry & Associates---'

,--- Beaufort County Management Effectiveness Study---------------------.

ORGANIZATION -- AGENCIES, BOARDS, AND COMMISSIONS

•

•

•

•

•

Clarify Roles And Responsibilities.

Establish General Guidance For Operations.

Establish Uniform Organizational Structure.

Make More Responsive To Overall County Objectives.

Support With Information And Expertise.

'----------- Theodore Barry & Associates_--"

;--- tJeaUTOn c.:ounry Management Effectiveness Study----------------...,

AGENCIES, BOARDS, AND COMMISSIONS: PLAN FORIMPLEMENTATION ACCOMPLISHED BY DEVELOPMENT OF

I

•

•

•

Strategy To Change Agencies, Boards, And Commissions FromOrdinance To Charter.

Ordinance To Repeal Existing Agencies, Boards, And Commissions.

Template For Charter To Create New Agencies, Boards, And Commissions:

- Selection Criteria Established- Condition Of Service Delineated- Control Provided To Council.

• Charters In Draft Form.

'---- Theodore Barry & Assoclates---"

legislativeDelegation

I

countyCouncil

I

..................................." ·..·..· · ·..1

Il

ICharterABC

CountyClerk

CharterABC

STAFF

CountyAdministrator

OPERATIONS!I

II ,

LEGENDOrgan Izatlo naI Re latlonshlp

................... Functional Relationship

o Additional Positions Next SlideOld Position

I:-: ....... ,:.~::.:' ..; I New Position

,.I , .... ,.:_ • ;;C~l·rPf,:' . _iiPlans' &:\: ::Ecdnomlc

tJhelop.rw~" i">. ~ ~-

·oe .~', "":0,.D~p'u~y

'. ,ct:ri,j:rnfsfi'at~r c.. :FIr,.anc.~&· g

.. Ctmlol$lratlon,'.A ~,.::- '.

DeputyAdminIstratorPublic Works

DeputyAdmin IstratorCommunityServices

DeputyAdministratorHuman Services

EconomIc long...../',

land ~lDev.~lop. Ftange Use Paralegal 1.:

Plan S'taff I ~ ;6 t

AudItor

Proposed Organization Chart

,...... :. ;.. :;;: ._;~

. DJ:t,puty.' ~?A~.mtnJ:sfr'~,to,r;::

, Finance" '&, , ' ;, "~",,,,',w,,,,,',' ...w,",',",·.w',,"Aclnilnl'Jt,i'J6,r" '" ~:

"t'. x., .... "",, ,;;",.. "',,, ,', ,. ;

I

Treasurer

I

PersonalProperty

MobileHomes

~dmIn IstrativEServices

Boats &Planes

Personnel Finance

Accounting

Assessor Purchasing

Tax

MISDirector

Mgmt. Info.~

DelinquentCollections

Word)rocesslng

I

Budget

IJ

Acctng.

II I

Data:Jrocesslng Records

I

MESNE

Proposed Organization Chart

DeputyAdministratorPublic WOrXs

Capilal SpecialImprovements Projects Manager

IBuilding Maintenance Roads and Building Codes

Maintenance Garage Engineering Drainage Bridges Solid Waste & Permitting

ID.S.O.

DevelopmentPOlmil

Proposed Organization Chart

DeputyAdministrator ··-lCommunity Svcs. ,

I,,,RecreationCommittee

I IAnimal Mosqu~o Emergenc.y Emergency Hi~on Head

She~erAirports Control Preparedness Medical Community

Service Annex

E911Cenlralized

Dispatch

Proposed Organization Chart

DeputyAdministrator

Human Services

II I , I

Speech & V.A. II Jail

,Hearing Officer I

CoronOf

I,---------- , -. 1__ ..,.-----------·----T·-- '~---"-,

I, I IOutside Voler Hospital Montal HeaJth Medical Depaf1ment of Drug & Alcohol

Agencies Registration Board Board Indigent Fund Social SelVices Commission

http:w.,,,,�,,.��

Proposed Organization Chart

Staff Attorney(Informal

relationship)

! ... .. ... .. .... .

Solicitor

Master InEquilin

..............

Clerk ofCourt

IFamilyCourt

Sherrlf

PublicDefender

ChiefMagIstrate

I

Magistrates

ProbateJUdge

IProbate

Court

;---Beaufort County Management Effectiveness Study--------------....

ROLES AND RESPONSIBILITIES .. COUNTY COUNCIL

Description

• Elected Officials Who Also Hold Down Full-Time Jobs Outside TheCounty Government.

Role

• To Set The Mission, Goals, And Objectives Which Will Guide TheLocal Government.

• To Make The Major Decisions Which Affect The Future Of The County.

• To Approve An Annual Budget Which Accurately Reflects The Missions,Goals, And Objectives Of The County And Will Act As A Guide To CountyEmployees.

'----------------------Theodore Barry & Associates-./

~-Beaufort County Management Effectiveness Study---------------..

ROLES AND RESPONSIBILITIES -. COUNTY COUNCIL (contd.)

Role (contd.)

• To Monitor The County's Internal Decisions As Well As Their PerformanceWith Respect To The Budget.

• To Act As A Public Interface Between Citizens And The County'sOperational Staff.

Responsibilities

• Guide The County Into The Future.• Run An Efficient And Productive Local Government Organization.• Create Mission Statement.• Provide Final High-Level Decisions In Strategic Planning Process.• Provide Overall Fiscal And Political Boundaries In Which Planning

Takes Place.• Set Service Delivery Levels.

'---------------------Theodore Barry & Associates-./

r--BeBufort County Management Effectiveness Study---------------,.

ROLES AND RESPONSIBILITIES .. COUNTY ADMINISTRATOR

Description

• Full-Time Employee Of The County Who Is Hired By And ReportsDirectly To County Council.

Role

• To Manage County Employees In A Direction Towards Fulfillment OfThe Missions, Goals, And Objectives Set Forth By County Council.

• To Act As The Interface Between County Council And The LineDepartments Of County Government.

• To Develop An Annual Budget Which Reflects The Missions, Goals,And Objectives Set By County Council.

• To Make Top-Level Daily Operational Decisions Affecting Countyo erations.

'------'--'----"-'-'-'~-------------TheodoreBarry & Associates--'

- .... QClU'V/I ....ounry Management Effectiveness Study--------------.,.

ROLES AND RESPONSIBILITIES -- COUNTY ADMINISTRATOR

(contd.)

Role (contd.)

• To Monitor Line Departments Through Coordination Of DeputyAdministrators.

Responsibilities

• Act As Chief Executive Officer Of County Government WithComplete Day-To-Day Operational Control.

• Provide Leadership.

• Develop Skills In Subordinates.

• Minimize Budget Variance.

• Achieve Highest Possible Constituency Satisfaction.'---------------------Theodore Barry & Associates-./

• ._ --_...J ",u"Q1!:JC'HIt:JlI ~l1eCClVeneSS Study-------------......

BOLES AND RESPONSIBILITIES -- COUNTY ADMINISTRATOR

(contd.)

Responsibilities (contd.)

• Provide Information To County Council To Make Informed Decisions OnService Levels: Costs, Trade-Offs, Measures of Satisfaction,Professional Public Administrator Input.

'---------------------Theodore Barry & Assoclates---'

COUNTY ADMINISTRATOR PERFORMANCE MEASUREMENT

.-,-100%

RangeAnd

ComponentsOf

PeriormanceMeasurement

0%

Council Satisfaction

BudgetVariance

LeadershipAnd

ManagementSkills

Council Satisfaction.......

Constituency-.

Satisfaction ...(External Measure)

Internal EfficiencyAnd Effectiveness ........

Measure

Budget -.Variance

....

LeadershipAnd Management .......

Skills

10% Qualitative

25% Survey ExpertObserver

25% Goal AttainmentBy Time, Quality,Efficiency

20% Budget ExecutionOn Controllable Items

20% MotivationCommunication FacilitatePlanning Process

INTERIM

Depends On Two Assumptions:

IDEAL

(1) County Council Is Able To Specify Plan And Goals.(2) A System Exists To measure Constituency Satisfaction And Program Periormance.

----------------------------Theodore Barry & Associates----

._ .• ---"'J ...o:."Q,",c;,,,c;1/1 cueer/veness Study-------------.......

ROLES AND RESPONSIBILITIES .• DEPUTY ADMINISTRATOR

Description

• Full-Time County Employees Who Report Directly To CountyAdministrator,

Role

• To Facilitate The Fulfillment Of Goals And Objectives Relating ToTheir Specific Departments.

• To Act As A Liaison Between-County Administrator And IndividualLine Department Heads,

• To Coordinate Activities Between Individual Departments Within TheDeputy Administrator's Area.

• To Help Develop Meaningful Budgets Which Will Reflect CountyCouncil's Goals And Ob'ectives,

'------..:=:::.:.:::::....:::.....:::~~.:.:..:::~~~.:..::::~------Theodore Barry & Assoclates-../

_-Beaufort County Management Effectiveness Study---------------

ROLES AND RESPONSIBILITIES -- DEPUTY ADMINISTRATOR

(contd.)

Role (contd.)

• To Make Daily Operational Decisions Affecting County Operations.

• To Monitor Individual Departments Within Their Area.

Responsibilities

• Responsible To County Administrator For The Efficient And EffectiveOperation Of Their Areas.

--------------------Theodore Barry & Associates--

--Beaufort County Management Effectiveness Study--------------....

ROLES AND RESPONSIBILITIES .. DEPARTMENT HEADS

Description

• Full-Time County Employee In Charge Of A Specific Line Department.

Role

• To Fulfill Specifc Objectives Of lndividual Department.

• To Carry On Day-To-Day Operations Of Department.

• To Develop A Meaningful Budget To. Meet Objectives.

Respon sibi lities

• Run Individual Departments Efficiently.

• Provide Knowledge And Information To The County AdministratorCritical To The Planning Process.

--------------------Theodore Barry & Associates--

~-l::1eauTDrt c.:ounty Management Effectiveness Study---------------...

COUNTY CLERK

Following Aspects Of Job Changed:

• Record Keeping Function: Collects, Stores, And Evaluates InformationMore Effectively.

• Agencies, Boards, And Commissions Control: System For KeepingAttendance, Handling Applications, Taking Minutes, And EnsuringCompliance With Sunshine Laws.

Updated And Filled Out Complete Agencies, Boards, AndCommissions Histories:

• Compiled Source Documents.

'---------------------Theodore Barry & Assoclates-./

- Beaufort County Management Effectiveness Study'----------- ___

PROPOSED PLANNING FRAMEWORK

Revenue Levelsversus

Service Levels

CountyObjectives

Department Programs

Department Objectives

Department Action Items

Resource Allocation (Priorities)

QuantifiableQualitative

'. .: - -\

\. -- -I

II

,I):

_________________________ Theodore Barry & Associates

- ------. --_ .. -, _ .._~_ _ ",. -···..~r -------

PLANNING

• Identified Planning Cycle Issues For Beaufort County.

• Developed Mini-Course Curriculum.

• Conducted Department Head Training:

- 2 Seminars- 1 Case Study Workshop.

• Prepared To Conduct County Council Orientation Course.

• Built Consensus For Strategic Plan Process Among Staff.

• Involved Department Heads In Process.

'--------------------Theodore Barry & Associates--'

Planning Process

I

\®

BUdgeting -Translate Goals ofOrganization intoFinancial Terms

oImplementation as

IntegratedSystem

/"Knowledge andInformationSharing

/ ~

®Goal SettingCD Current and Out Year

Strat~gic~ Objective ~Plannrng •

"Big Picture"

I

\\ ®

Feedback andPe rformanceMonitoring

StartFinish

GOAL: Stated byCounty Council

-------- ------J •..- .._~_ .... - .... _ ..__ .... _.. "...,..., "' .... -J

RECOMMENDATIONS

• Change The Decision-Making Initiative.

CURRENT;Problems Problems• •Solutions • Solutions ..

Council ..... ... Administration ..... Departments~ ....

Reactive • Executor/ •: Custodian.-

( Decision-Making Gaps )

IDEAL:

Council

Proactive

Objectives• •• Solutions ..Administration

CEO/Planner

••

Objectives •Solutions.Departments

--------------------------Theodore Barry & Associates--

MEANS TO SET SERVICE LEVEL PROVIDED

Qualitative And Quantitative Means To Set Service LevelProvided:

• Mandatory Level Determined -- Research.

• Optional Levels Gauged:

- Scientific Study- National Study- Fiscal Capacity.

Choices Framed For Qualitative Judgment Tradeoffs:

• Political Costs• Rational Basis Provided Through Quantitative Means• Principle Of Service Consolidation Through Freedom Of Choice• Principle Of Alternative Provision Of Service.

'--------------------Theodore Barry & Associates-/

SOUTH CAROLINA MANDATES

Total Mandates Affected Parties'",

LEGISLATIVE Counties 93% Law Enforcement 63

• Active 574 Municipalities 39% Treasurers 36• Unconstitutional or Repealed 34

--- Special Service 17% Auditors 29Total 608 Districts

Magistrates 24ADMINISTRATIVE 72

Clerks of Court 20EXECUTIVE ORDER 3

---TOTAL 683

.. Mandates May Apply To More Than One Unit Of Local Government.

Source: Catalog Of State Mandates To South Carolina Local Governments, December 1987.

--------------------------Theodore Barry & Associates--'

PERCENTAGE OF STATE MANDATES BY PROGRAM AREA

Program AreaPercentage of State Mandates

to Program Area

General Government320/0

Community Service

MANDATED SERVICES

Office Space, Furniture, Equipment

• Probate Judge• Auditor• Superintendent Of Education• Board Of Education• Clerk Of Court• Sheriff• Treasurer• Master In Equity• Jails• Court House• Circuit Court Judge• Family Court Judge

Agencies, Boards, And Commissions

• Voter Registration• Tax Equalization Board Of Appeals• Land Commission• Community Health Board• Mental Retardation Board

Departme nts/Pos i ti 0 ns

• Sheriff• Clerk of Court• Coroners• Magistrates and Constables• Auditors• Treasurers• County Supervisor• MESNE Conveyance• Jailer• Roads and Bridges• Tax Collector• Master in Equity• Public Defender• Emergency Preparedness• Veterans Affairs• Fire Inspector• Librarian• Solicitor• Probate Judge

Services

• Upkeep of Federal Land• Medically Indigent Care

'---------------------------Theodore Barry & Associates----'

Health

SERVICE PRIORITY MATRIX

Capital Infrastructure (contd.)

•••

2 Hospital2 Preventive6 Recreation

• 2 Drainage

Administrative

Community

Safety

• 1 Fire• 1 Police• 1 E-911• 2 Jail

Education

•••

••

3 MESNE2 Planning3 Building Codes And Permitting

5 Animal Shelter4 Mosquito Control

• 4 Library Human Services

Capital Infrastructure• 4 Voter Registration

2 Mental Health LEGEND•• 2 Water2 Medical Indigent 1 • Highest•2 Sewage2 Social Services 2

••

3• 3 Roads • 2 Drug And Alcohol 43 Airports4 Coroner 5

••

Lowest6 •• 2 Solid Waste • 2 Veterans Affairs• 5 General Transportation Service • 2 Speech And Hearing .Theodore Barry & AssocIates

,..--- Beaufort County Management Effectiveness Study------"'-----------______

BEAUFORT COUNTY SERVICE LEVEL GUIDE

Determine Optional Services Level With Reference To:

• Scientific Means: Health And Safety Standard, For Example:

Environmental Standard To Determine Quality Of Drinking WaterNeeds Assessment SurveyConstituency Satisfaction Survey.

• National Standard = Professional Standards:

Individual Professional Associations, e.g., Procurement OfficersNational Professional Resources: ICMA, National Association OfCounties, Public Technologies, Inc. South Carolina AssociationOf Counties:

* Recommend support.'-- Theodore Barry & Associates_--,

~- Beaufort County Management Effectiveness Study-----'--------------...

BEAUFORT COUNTY SERVICE LEVEL GUIDE (contd.)

Optional Services (contd.)

• Fiscal Capacity:

Community Value

Available Revenue

Catalog Of State Mandates To Local Governments InSouth Carolina

South Carolina Advisory Commission On IntergovernmentalRelations (SCACIR) Publication: "State Mandated LocalGovernment Expenditures And Revenue Limitations In South Carolina"

Impact Fee.

Frame Choices For Qualitative Judgment

'- Theodore Barry & Associates_---/

,-- Beaufort County Management Effectiveness Study·----------------____

STRATEGIC PLANNING PROCESS

• Confirmation Of Mission.

• Scan Of Environment.

• Identification Of Strategic Issues.

• Assessment Of Resources.

• Formulation Of Strategies.

• Management Of Strategy Implementation.

'-- Theodore Barry & Associates_---'

,--- Beaufort County Management Effectiveness Study-----------------.,

BEAUFORT COUNTY STRATEGIC PLANNING

CONSIDERATION CHECK LIST

(1) Political Environment(2) Jobs(3) Education(4) Transportation(5) Environment(6) Legally Mandated Service

Level(7) Demographic Trends(8) Sewage(9) Solid Waste

(10) Liquid Run-Off(11) Competition From Other

Counties

(12) Housing(13) Economic Development Plan(14) Uncertainty(15) Coordination With School Board(16) Feedback(17) Communication(18) Media(19) Health(20) Culture(21) Flexibility Of Revenue(22) Public Safety

'--- Theodore Barry & Assoc;ates_..-'

~-Beau'ort County Management Effectiveness Study--------------____

GOAL SETTING PROCESS

• Begin With Strategic Plan.

• Identify Components Of Strategic Plan.

• Cascade Components Of Strategic Plan In Sequence OfLogical Steps To Reach Overall Plan Directives.

• Obtain Information And Technical Expertise As AppropriateTo Understand Costs And Implications Of Each Component.

• Cascade Individual Targets And Prioritize Them.

• Create Time-Phased, Challenging But Realistic Goals ByAnswering Questions Who? What? When? Where? How?

'-- Theodore Barry & Associates_-/

,.--tJeaUTorr t:ounry Managemenr I::.TT8ClIVeneSS :::;luay-----

BUDGETING PROCESS

• Target System = End Result.

• Clean Up Old System = Base Point.

• Train Personnel.

• Use Goals To Develop Cost Estimates By Program And Priority.

• Budget Outyears (5).

• Include Life Cycle And Loaded Cost Projections.

• Ratify.

• Execute.

• Evaluate Personnel And Departments:

AnalyzeAct Upon ConclusionsTie To Performance And Reward.

'- Theodore Barry & Associates __-,

~-BeBufort County lIanagsmenl EffecUveness Study-----------------,

POLITICAL QUALITATIVE JUDGEMENTS

Cost

Qualitative

EquityRepresentationPolitical

(1) Leadership And Principles

(2) Compromise: Save A Piece Of OriginalProgram Intention

(3) FISCal Responsibility (Rational In Public Interest)

(4) Future Consideration Versus Expedience

(5) Comprehensive View - Tough Decision --Chance Next Year

(6) Investment Has Leveraged SignificantJobs Or Money

Quantitative$Tax

'- Theodore Barry & AssoclBles _--/

___- Beaufort County Management Effectiveness Study---------------_____

PERFORMANCE MONITORING ALTERNATIVES

• Trained Observers -- Standard Grading System.

• Formal Surveys:

"USA Today" Style Poll By PhoneGeneral SurveyUser-Specific SurveyMedia Review.

• Informal Panel Of Expert Opinion -- Department Head Input.

'- Theodore Barry & Associales--"

,--- Beaufort County Management Effectiveness Study-------------------.

EFFECTIVENESS MONITORING IMPLEMENTATION STRATEGY

• Establish Working Group.

• Identify Service Objectives.

• Review Existing Data.

• Select Trial Set Of Effectiveness Measures.

• Develop And Implement Selected Procedures.

• Develop Plan To Use Data Collected -- Link To Evaluation And Reward.

• Provide Measurement Findings To Management.

• Prepare Information On Costs Of Measurement Efforts.

• Review And Modify For Two To Three Year Period.

• Review Utility Of Measure, Review, Drop If Necessary.'-- Theodore Barry & Associates_-/

Plan of Action and Milestones forImplementation of Recommendations

ApproveBudget

ReviewInitial

Results

ReconsiderImplement Costs/

Benelits

I

AnalysisReview

Process

READY

NewPersonnel

Trained

HireNew

Personnel

DevelopProceduresto Obtain& Analyze

Information

Prepare toIntegrate

Slraleg ie/GoalPlanning &

Budget Cycle

DevelopPlan &

Measures

CommenceTraining

ConductMulti-levelStrat PlanSessions

TrainingAssistance/

ProgramNeeds

Training -Involve

All Levels

I

II

I

II

Organization

PERFORMAN E SupportMONITORINCS Staff

: Identify Groupflesource

Strategic Finalize StartTraining Strategies

Information Start Goal BudgelProcess

PLANNING Gathering Setting PROACTIVE--- 2 -f__-II,.................I...__....L- --'- L..- .J,, .I.I . -JL-- -l.- -i MANAGEMENT.

Current Year I & CONTROLAnalysis

Fiscal YearBUdget

Out YearEffects

IdentifyProblems

.__- Beaufort County Management Effectiveness Study----------------,

NEXT STEPS

•

•

•

Implement Performance Monitoring Recommendations.

Measure And Assess Constituency Satisfaction Levels.

Participate In County Council Planning Session, Including:

Identification Of Required Versus Discretionary Services

Establishment Of Service Levels

Review Of Service Delivery Options And Issues.

'--- Theodore Barry & Associates_----,