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Planning and Development Services
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VINSON INSTITUTE
OF GOVERNMENT
The University of Georgia,
EXECUTIVE SUMMARY
In support of the local government of Augusta, Georgia, this report provides documented
guidance on the current trends, standards and best - practices associated with structuring
and operating, planning and development services within local government to provide
foundational information to be utilized to consider the manner in which planning and
development services can be structured. Information analyzed includes organizational
structure, strategic priorities, position descriptions, lines of reporting and staffing levels.
Although other jurisdictions are used as comparables, the orientation of this research is
designed to be specifically customized to the needs of Augusta. It is recognized that the
significant history of consolidation in Augusta, as well as the valued contributions of the
administrators who have structured the department design should be taken into account.
Thus, what follows stands as a set of observations and recommendations to help facilitate
the continued evolution of the efficiency and effectiveness of Planning and Development
Department in Augusta.
COMMON THEMES AND RECOMMENDATIONS
To ensure the validity of identified issues, consideration was primarily given to those
concerns that were identified via multiple sources. While this may have the implication
of leaving a major concern unaddressed, valid concerns must be verified from multiple
sources so as to identify the issues germane to the entire department. The issues
identified through this process are commonly found in organizations that have
consolidated and generally occur as departments evolve. Thus, while the issues are
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significant, they are common challenges that arise in organizational development. The
issues identified center on Consensus on Strategic Priorities, Departmental Structure,
Performance Management System, Disconnected Facilities, Classification and
Compensation, Staffing Levels, Fee Study and Updates, and Career Development and
Training.
Consensus on Strategic Priorities. Throughout the interview process and engagement
with local government staff, there was no clear communication on a set of prioritized
challenges, goals to be addressed, or a driving vision. In fact, certain departments appear
to be so overwhelmed with their day -to -day workload that they are unable to develop or
follow a strategized approach to addressing community challenges (e.g. in contrast to the
resource targeting utilized to revitalize the Laney - Walker community). Thus, it is
recommended that a strategic plan be developed and clearly communicated throughout
the department on the specific priorities and vision that give direction to service delivery
(note — this plan must also be connected to the strategic priorities of the Augusta
Commission and Administration). An implication of this process should be to have
budgetary allocations reflect the consensus priorities, as the budget is one of the major
policy documents associated with local government.
Departmental Structure. Once the strategic priorities are established, then full
consideration should be given to the organizational structure of the Planning and
Development Department along with its divisions. Optimal departmental structure
should be based upon strategic priorities in conjunction with principles of administration.
Thus, it is recommended that Augusta engage in an additional review of department and
division structure once the strategic priorities are established (also consider planned
allocation of resources). Factors that should be considered include: 1) a reduction of the
number of Deputy Directors from one (1) to two (2); 2) with the Transit Planner
spending three (3) days a week at the Transit Department working on funding for this
department while the cost being carried by Planning and Development, this position
should be fully housed in the Transit Department; 3) consideration should be given to
whether there are sufficient grants to justify a Finance and Grant Coordinator, or should
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this position be housed in the Finance Department; 4) if GIS Technician positions are to
be maintained, then qualified personnel must hold these positions. Currently, these
personnel are assigned to Customer Service. The positions should be filled with qualified
personnel or eliminated. Additionally, it appears that the GIS Technician positions are
not making a substantive contribution to the Customer Service function although their
pay grade is significantly higher than the clerks. Consideration should be given to filling
these positions, and others, with qualified and productive personnel; 5) since the flow of
work in Licensing is significantly determined by the outputs in Customer Service,
consideration should be given to subordinating the latter under a Manager for Licensing
and Customer Service, with a supervisor for Customer Service; as it currently stands,
there are high levels of interaction between the Construction Manager and Customer
Service (this should also be considered in terms of optimal work flow), and 6) build the
staffing levels with requisite skill sets that support the effective functioning of the MPO.
While the majority of the Planning and Development Department requires smaller
organizational modifications, special consideration should be given for reconstructing
the Planning and Construction Division/MPO. This consideration should include
division capacity building through replacing certain key positions with planners that
have professional credentials. Faculty at the Carl Vinson Institute of Government will
provide ongoing support throughout consideration of the optimal structure.
Performance Management System. After engaging in multiple interviews, on -site visits
and ride- alongs, it is evident that there are many staff members that are hardworking
individuals dedicated to providing high levels of service to the citizens of Augusta.
These individuals should be commended. However, there are instances where there is
inadequate managerial control over the department, management tools are not effectively
utilized to control operations, and personnel positioning in the divisions is allowed to
further diminish operational productivity. Currently, there are strong controls in place for
the Divisions of Code Enforcement and Inspections (Construction); however, this is not
the case for Licensing and Customer Service. This is exemplified in that fees for untimely
license renewal are rarely enforced; thus, producing an environment where adherence to
standard operating procedures does not drive the culture of the operating environment.
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The implication is that a lack of tightness in the performance management system
reduces uniformity, produces an absence of accountability, undermines the civil service
system and supports staffing positions based upon relationships versus productivity and
effectiveness. Thus, it is recommended that a performance management system be
developed, within the context of the strategic plan that maximizes managerial and
supervisorial control within the Planning and Development Department. This system
should also be developed in a manner that takes full advantage of the use of City View
(Software Solution).
Disconnected Facilities. As the department evolves, it is expected that it will take time to
develop facilities that match such a unique departmental structure. However, planning
services are located in one facility and license /inspections are located in another building
(seven miles apart). This creates a scenario where the public must travel between
multiple facilities to have their needs met. It also produces an organizational/operational
separation that precludes the type of symbiotic departmental culture that is reflective of
effective organization. Some planning and development organizations address this
challenge by creating one - stop -shops where both the public and local government staff
can have their needs addressed in one location. It is understood that future plans call for
a singular location. The development of the singular location will greatly enhance the
effectiveness of planning and development service provision; thus, it is recommended that
Augusta ensure that this consideration is taken into account to ensure development of the
singular facility.
Classification and Compensation. A major problem with employee evaluation arises
when performance evaluation tools do not provide enough differentiation in employee
roles. Therefore, one of the purposes of an effective classification system is to match
employees to their appropriate roles, position those roles within the department, and
provide compensation based upon the qualifications, roles and contributions made to
achieve the strategic priorities of the organization. Information from the Georgia
Department of Community Affairs Annual Salary Survey was reviewed for the periods of
2008 through 2012. Salaries for several positions in jurisdictions that have a population
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above 100,000 are included in the appendix. A review of this information does suggest
that significant differences in salaries between Augusta and comparable jurisdictions do
exist. Many instances were observed where the high work load in conjunction with
compensation perceptions produced low morale amongst Augusta management and staff.
In assessing the roles played by planning and development services in these communities,
we find that this difference is exacerbated because employees in the Augusta Planning
and Development Department tend to have significantly more responsibilities, are
required to handle a higher work -load, and deal with a much higher concentration of
aging infrastructure and socio- economic challenges throughout their jurisdiction.
Additionally, in some instances, actual job duties do not fit the specific job description.
Consequently, it is recommended that Augusta implement a specific review of
classifications and salaries based upon the strategic priorities set by the administration
and commission. This review should consider the need to streamline operational
processes, job functions and descriptions, qualifications and the physical ability for
individuals to perform designated tasks. The Carl Vinson Institute of Government will
provide ongoing support in this regard.
StaffinR Levels. A clear advantage to consolidation is the potential savings that come
from utilizing the economies of scale and scope implied from merging local
governments. Generally, it takes time to achieve these savings as organizational
development becomes dependent upon merging cultures and operations. It is expected
that departments will be called upon to maintain service levels during periods of lower
levels of resources. Multiple divisions within Planning and Development have been
called upon to fulfill such requirements. Significant reductions have taken place in Code
Enforcement, Inspections, and Licensing. But, over the long term these expectations can
undermine work performance and employee morale. With these issues in mind and their
relative implications on the achievement of strategic priorities, it is recommended that
Augusta give specific consideration to divisional staffing levels inclusive of the number of
code enforcement officers, certified inspectors (license and building), plan reviewers, an
assistant to the auditor, administrative support staff and clerks (including researchers)
that would support the achievement of its strategic priorities. This should also include
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consideration for succession planning (to mitigate the potential challenges of an aging
workforce..
Fee Study and Updates. Many jurisdictions constantly seek to balance low cost provision
of services to the need to generate the amount of revenue that is appropriate to meet their
strategic priorities. The recommendations regarding staffing levels and compensation are
made within this context. Fortunately, Augusta is in a position to balance the needs of its
planning and development community with increased revenue generation based upon fees
for service. Considering the costs associated with achieving strategic priorities along
with respective labor pool requirements, compensation, and staffing levels, this is a prime
opportunity to work with the Construction Advisory Board to develop a partnership to
help support strategic needs. Currently, the CAB fund supports division needs regarding
administration, human resources, payroll, and code enforcement amongst other
functions. With these concerns and the additional strategic needs in mind, it is
recommended that Augusta consider working with the Construction Advisory Board to
perform a fee study to ensure that they are at an appropriate level. This partnership
could help support the needs of both Augusta local government and the development and
planning community as well as the citizens of this jurisdiction.
Career Development and Training. Strategic workforce planning does not singularly fall
under the needs of human resources, but it is also under the purview of specific
departments. These departments are specifically attuned to their actual human resource
needs. Strategic workforce planning not only addresses the needs of the department, but
should also include the career advancement needs of employees. Based upon a wide
range of surveys and interviews, there appears to be a disconnection between personal
qualifications, career development and incentives.
In reviewing the position analysis questionnaire responses, there appears to be a
consistent perspective that underestimates the amount of education needed to be qualified
for a specific position. Overall, there needs to be more emphasis on increasing the
educational qualifications associated with specific positions. This is not specifically
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isolated to traditional educational criteria (e.g. Bachelors Degree). It refers to the applied
training that comes from professional organizations. Considering the role of Planning
and Development, more attention should be applied to certifications from groups such as
the American Society of Public Administration or the American Planning Association.
The educational merit demonstrated through credentials such as AICP Certification,
certification maintenance, and Advanced Specialty Certification, amongst others could
prove valuable in advancing the quality of local governance. Finally, there were a
number of instances where the qualifications and skills of staff were not appropriately
aligned with the skill set determined by a projection of organizational goals. Thus, it is
recommended that Augusta develop an incentive program that corresponds to the
certifications and educational levels required in each division and a corresponding
career ladder that connects employee development with the strategic priorities of local
government. It is additionally recommended that an internal review of divisional
training needs be implemented as a basis for establishing an aggressive training program
to increase the core competencies and education level of division staff.
For more information, contact:
Malik R. Watkins, Ph.D.
Carl Vinson Institute of Government
University of Georgia
malik @uga.edu
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