Performance Audit Review - September 20, 2019 PERFORMANCE AUDIT REVIEW
TIGARD , OREGON
matrix m
consulting group
September 20, 2019
Performance Audit Draft Report TIGARD, OREGON
Table of Contents
1. Introduction and Executive Summary 1
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2. City Management 9
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3. Central Services 15
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4. Community Development 38
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5. Finance and Information Services 48
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6. Library 65
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7. Police 78
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8. Public Works 107
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9. Performance Measures 122
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Final Report of the Performance Audit Assessment TIGARD, OREGON
1 Introduction and Executive Summary
The Matrix Consulting Group was retained by the City of Tigard to conduct a Performance
Audit of general fund operations. Additionally, the scope of work included development of
recommended performance metrics for each department. The following report presents
the results and findings of the study.
The project team has assembled this draft final report which summarizes our findings,
conclusions and recommendations.
1. Study Methodology
In this Performance Review of the City of Tigard General Funded functions, the Matrix
Consulting Group project team utilized a wide variety of data collection and analytical
techniques. The project team conducted the following data collection and analytical
activities:
• At the outset of the project, the study team interviewed key staff members from
each department to develop an initial understanding of the issues and background
for the departments.
• The project team worked with city staff to collect a wide variety of data designed
to document workloads, costs, service levels and operating practices.
• The project team developed descriptive summaries, or profiles, of each
department summarizing organizational structure, staffing, technology and other
key aspects of each department.
• In order to make the assessments of operational strengths and performance
opportunities, the project team developed a set of performance measures, called
"best management practices" against which to evaluate current services,
workloads and service levels in Tigard. These service and performance measures
were reviewed with staff in draft format.
• Both an employee and community survey were conducted to gather input from
these key stakeholders. This information was considered, in conjunction with the
issues identified during the best management practices phase, as part of the
analytical effort that led to the development of recommendations.
From these efforts, key issues were developed for analysis and development of specific
recommendations for each department.
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2. Key Themes
Several key themes arose from the assessment that are worth noting to put the following
recommendations into context. Overall, the City of Tigard is providing high levels of
customer service to the public and generally providing services at a level higher than
might be expected with current resource allocations. The notable themes that emerged
included:
• Strong focus on customer service and responsiveness to the public.
• Many services provided at levels matching or exceeding relevant industry
standards.
• Strong inter-departmental cooperation and coordination in provision of services.
• Generally lean staffing levels throughout the organizational structure. However,
Tigard makes more extensive use of part-time and reduced hour full-time
employees than typically seen in other organizations.
• Limited ability to access existing data within the organization and software systems
impacting ability to analyze available data for use in evaluating current operations,
thus limiting the ability to plan, manage, and understand emerging service trends.
• Lack of integration of existing technologies — limiting the ability to automate some
processes or data requirements.
Many of the limitations noted above have been recognized by staff prior to or during the
conduct of this evaluation and efforts are underway to mitigate or eliminate these potential
impediments for greater efficiency and effectiveness in the organization.
3. Listing of Recommendations.
The following table summarizes the key recommendations contained in the report —
grouped by department. For each recommendation, there is a priority, timeframe and
cost impact of the recommendation listed to provide guidance during implementation.
Recommendation Priority Timeframe
CITY MANAGEMENT
1 The Annual Workplans for each department should be guiding High 2020
documents that are considered a part of performance
evaluations and developed in alignment with the overall City
Strategic Plan.
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Recommendation Priority Timeframe
2 The Senior Management Analyst position should be charged High 2020
with overseeing the development and implementation of the
City's performance management program.
3 The City should expand on their existing performance measures High 2020 (with
by identifying and adopting additional performance and budget)
workload measures to enlighten the public regarding the
Department's performance and accomplishments.
4 The Department should develop a methodology for predicting Medium 2020
upcoming retirements based on age and years of service of
employees and update it at least annually to anticipate which
employees and skills will need to be replaced.
5 The Department should prioritize efforts to expand the diversity Medium 2021
of applicant pools to enable it to work toward a City workforce
that is reflective of the community.
6 The City should update the performance evaluation tool and Medium 2021
implement a compensation approach that more closely ties pay
increases to individual performance.
7 Additional staffing resources, in the range of .5 to .75 FTE, Medium Next budget
should be allocated to the Human Resources Department. cycle
CENTRAL SERVICES
8 The City should utilize internal and external customer surveys to Low 2020
determine satisfaction and effectiveness of web content.
9 The City should utilize a work order system for all requests for Low 2021
web content modification.
10 The City should develop a written communication strategic plan. High 2020
11 The Graphics Design division staff should meet with Medium 2020
stakeholders before beginning work on large project design
requests.
12 The Court should adopt a written strategic plan to guide future Medium 2020
decision making for operations and employee performance
expectations.
13 The court should maintain staffing levels, so workload demands Medium Ongoing
are within 10%of annual productive hours per employee.
14 Fleet maintenance should perform analytics and random Medium Ongoing
verification of fuel purchases
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Recommendation Priority Timeframe
15 The City should ensure that its asset management system is High 2020
meeting the needs of fleet and facilities maintenance staff.
16 Property Management should regularly assess amounts spent Medium 2021
on vendors for specialty services to determine if in-house staff
should perform those functions.
17 Property Management should implement a proactive building High 2020
preventive maintenance program to prevent reactive
maintenance issues as much as is reasonably possible.
18 Fleet & Facilities should conduct spot inventory checks to Medium 2021
mitigate the inherent risk of asset misappropriation.
19 Fleet & Facilities should maintain staffing levels in the general High 2020
range of one (1) employee for every 35,000—45,000 square
feet of facilities under management.
20 Project managers should receive project management Medium 2021
certification.
COMMUNITY DEVELOPMENT
21 The Department should ensure that in-house staff have the High 2020
ability to produce workload and performance reports from
Accela.
22 The Department should generate routine reports on workload High 2020
and level of service performance measures in order to gauge
effectiveness in meeting established benchmarks.
23 The Department should distribute an electronic customer Low 2020
satisfaction survey to all customers at the conclusion of their
application and compile responses as a performance
measurement tool.
24 The Department should implement expedited permit application
reviews as a fee-based option for customers.
25 The Department should designate a second position as an High 2020
Accela power user and require that the management
responsibilities of that system be shared.
26 The Department should ensure that the system which replaces High Immediate
Springbrook can be integrated with Accela to eliminate the need
for duplicate entries.
27 The Department should monitor inspector staffing levels to High Ongoing
ensure that they remain appropriate for the required workload.
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Recommendation Priority Timeframe
28 The Department should maintain an online library of standard Medium 2020
conditions of approval for land use permits, which is shared with
staff and the public.
FINANCE & INFORMATION SYSTEMS
29 With appropriate staffing, the Finance Department should Medium Ongoing
perform regular data analysis on its data to help detect any
financial irregularity or non-compliance with financial policies.
30 Provide cross training so that critical functions for each finance High 2020
position have at least two people who can complete them and
require the employee performing the critical task as a backup to
complete the function at least twice annually.
31 Complete an annual fraud risk assessment. Low 2021
32 Management should conduct regular audits of purchases to Medium 2020
detect and deter asset misappropriation.
33 Determine if automatic notification of payroll changes is Medium 2020
possible within the City's payroll/financial software system.
34 The City should assign a second employee to provide High 2020
verification checks of garnishment data entered into the payroll
system.
35 The City should ensure that its asset management system fully High 2020
integrates with its financial software system and has the
capabilities necessary to foster an efficient, transparent, and
data-centric approach to fixed asset management.
36 With available time, the City should proactively research and Medium 2020
seek buying discounts in addition to State bid discounts.
37 The City should install and operate adequate software to Low 2021
monitor IT logs and detect any attempt at system intrusion.
38 The City should ensure GIS staff spend at least 10%of their Medium 2020
time working to proactively introduce GIS technology into every
department in the City.
39 The City should create an information technology committee High 2020
that meets at least quarterly.
40 The City should reduce its internal phishing campaign employee Medium 2021
clickthrough rate to no more than 5%.
41 The City should hire one (1) additional FTE into an IT support High 2020
position.
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Recommendation Priority Timeframe
LIBRARY
42 The Library should reduce service hours to between 62—64 High 2020
hours per week, either through elimination of some evening
hours or an earlier closing for all evenings. Closing at 8pm each
night should be implemented, the hour after which visits decline
markedly.
43 Develop a comprehensive marketing plan encompassing High 2020
traditional print and advertising and social media components.
Use this opportunity to brand the Library as consistently as
possible to the community. Finally, make one person
responsible for the coordination, development and posting of
social media while continuing to seek the input of other staff.
The lead person should be the Communications Coordinator.
Then management team should set direction and develop a
review process.
44 The new Director needs to continue the recent focus on High 2020
furthering team building and open communication among
Library staff.
45 Create an internal team to research, develop and present to the High 2020
City a Library Information Technology Needs Assessment and
Long-Range Plan.
POLICE
46 Maintain current Administration staffing levels. n/a n/a
47 Add 8 additional Officers to maintain higher minimum staffing to High 2020
achieve stated goal of 5 minute response to priority 1 and 2
calls for service. Staffing should be 4 Officers on Day Shift, 5
Officers on Afternoon Shift and 4 Officers on Night Shift.
48 Maintain current staffing of two K9. n/a n/a
49 Minimum Staffing should be Sergeant on duty at all times. n/a n/a
50 Fill 2nd CSO position for a total of two CSOs. Medium 2021
51 Maintain current staffing for traffic unit. n/a n/a
52 Review case screening process. Medium 2020
53 If all workable cases are currently assigned, the department Medium 2021
should eliminate two detective positions.
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Recommendation Priority Timeframe
54 Maintain current staffing but use the recommended benchmarks High Ongoing
to re-evaluate staffing on an annual basis to determine when
more property/evidence staff is needed.
55 Maintain current staffing for records management. n/a n/a
56 Add an additional analyst in the next 1 to 3 years. Medium 2022
57 Maintain current Administrative Specialist staffing levels. n/a n/a
58 Maintain current SRO staffing but add one additional SRO in Medium 2022—2023
the next 1 to 3 years.
PUBLIC WORKS
59 The Department should establish a routine cycle of High Ongoing
measurement, review, and action based on their selected
performance metrics.
60 Performance measures and their results should be published High Ongoing
each year in the annual budget.
61 The City should ensure that the selected asset management Medium 2021
system replacing the existing work order system has the
capabilities necessary to foster an efficient, transparent, and
data-centric approach to infrastructure maintenance and
workload management.
62 The Department should track all field work—proactive and Medium 2021
reactive—using work orders within the asset management
system.
63 The Department should develop a preventive and routine Medium 2021
maintenance calendar for the Parks Maintenance Division in the
asset management system and use this tool as the basis for
calculating staffing needs.
64 The City should ensure that the system which replaces High 2020
Springbrook has a robust project management module or invest
in a separate software specifically designed for capital project
management.
65 The Department should seek to update each system master High Ongoing
plan once per six years on a rotating basis.
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Recommendation Priority Timeframe
66 The Department should include some strategic discussion in the High Ongoing
master plans of the systems' purpose for the community and
how the plan supports the goals of the Department and the City.
67 The Department should provide development review backup for Medium 2020
the Principal Engineer, including the use of other P.E.'s in the
Engineering Division.
68 The Department should adjust the organizational structure to Medium 2021
narrow the Parks Supervisor's span of control and allow more
effective oversight of seasonal staff.
69 The Department should adjust the organizational structure to Medium 2021
narrow the City Engineer's span of control and provide
oversight assistance to project management staff.
The following chapters provide narrative detailing with the rationale and basis for each
recommendation.
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2 City Management
This chapter covers the recommendations related to the City Manager's Office and the
Human Resources Department. The analysis focused on key recommendations to
improve the operational effectiveness of each department and the staffing required to
provide those services. The Policy and Administration Program in the budget also
consists of the Mayor and Council and Office of the City Attorney functions; however,
these services were not reviewed or assessed as part of this report.
1. City Manager's Office.
The City Manager's Office is responsible for overall management of the City of Tigard
including Council support, organizational leadership, operational support, general policy
and procedure development and administration governing all City operations. This office
is responsible for implementation of the City's Strategic Plan, coordination of the City's
legislative agenda, and communicates City Council's direction to the executive staff and
employees.
The City Manager's Office has an annual operating budget of approximately $740,000
and a staff of four positions: City Manager, Assistant City Manager, Executive Assistant
to the City Manager, and Senior Management Analyst.
(1) Departmental Annual Workplans and the City's Strategic Plan should be in
Alignment.
The effectiveness of the City's adopted strategic plan can be enhanced by ensuring that
the key goals and objectives in future strategic plans are well delineated and that these
are used as the basis for on-going policy and management decisions. In particular, the
performance metrics and annual departmental workplans should align, where practical,
with the strategic plan elements. Tigard has a refreshment of the city's strategic plan
underway that is scheduled for completion in early 2020. Annually, departments should
develop their annual workplan and notate the key efforts that will further or support the
achievement of the strategic goals — or position the City operations to move closer to the
achievement of the goals.
Annual workplans should be a guiding effort for each department's focus during the year,
and a portion of the performance evaluation for staff in that department should be linked
to accomplishing the workplan. Progress on the workplans should be reviewed at least
quarterly between the City Manager, Assistant City Manager and the respective
department head. A semi-annual update on progress should be provided to the City
Council.
Recommendation 1 : The Annual Workplans for each department should be guiding
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documents that are considered a part of performance evaluations and developed
in alignment with the overall City Strategic Plan.
(2) The Senior Management Analyst Positions should be Tasked with the
Development and Oversight of the Performance Management Program.
The City Manager's Office has operated for much of this year with half of the positions
vacant. The Assistant City Manager and Senior Management Analyst positions were
vacant for nearly one year. The Assistant City Manager position has recently been filled
and this will provide significant assistance in the effective operation of this critical office
and provide support to the City Manager by taking direct oversight of a number of the
operating departments and provide support by handling special projects and initiatives.
The Senior Management Analyst position is in the process of being filled and various
considerations have been given to the duties to be assigned to this position. Given the
position's location in the City Manager's Office and the high priority that is being placed
on data analysis, data-informed decision-making and the need to fully implement the
performance measurement program under development, it is recommended that the
principal duty of this position be allocated to development, implementation and
coordination of the performance measurement and report card efforts underway. This
will take close cooperation and interaction with all departments. This position will also
provide analytical support as departments work to enhance their internal data analytical
abilities.
In addition, this position should be tasked with conducting special studies, analysis, and
analytical activities to support projects and duties performed by the City Manager and
Assistant City Manager, and in support of the city's strategic plan and City Council goals.
Currently, these positions have limited analytical support requiring them to be intricately
involved in the development of projects and initiatives which limits their time to spend on
more strategic and longer-term efforts important to the City.
Recommendation 2: The Senior Management Analyst position should be charged
with overseeing the development and implementation of the City's performance
management program.
Recommendation 3: The City should expand on their existing performance
measures by identifying and adopting additional performance and workload
measures to enlighten the public regarding the Department's performance and
accomplishments.
2. Human Resources Department.
The Human Resources function is responsible for the administration and oversight of all
City human resources programs to the City organization. Programs and services
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provided include: recruitment, selection and testing, benefits administration, labor
negotiations, personnel policy administration, employee relations, job classification and
salary administration, employee recognition, investigations, training, organization
development and performance management, workforce planning, equal opportunity, and
wellness and risk management with oversight and coordination of the city's worker's
compensation and liability claims management, insuring city assets, the city's retirement
programs and safety programs.
The Human Resources Department has an annual operating budget of approximately
$680,000 for Human Resources functions and $823,000 for Risk Management
($567,000 of that is the cost of citywide insurance of assets.) The staffing is shown in
the following chart:
Human
Resources
Director
Sr. HR HR Business
Business Partner
..-
Partner
Magement
Analyst
HR - Risk
Assistant
(1) Additional Workforce Planning Should be Undertaken.
Information about upcoming retirements can be used in an organization to determine
when vacancies are likely to open up in various departments, which allows HR staff to get
a head start on developing a qualified pool of applicants. Anticipating openings due to
retirement can help the department begin to make decisions about succession planning
tactics sooner rather than later. However, the department does not currently have a formal
methodology for projecting the likely retirement of employees over time. While staff within
a customer department may know when retirements are upcoming, the HR Department
is not always informed about these transitions. In order to optimize the effectiveness of
the recruitment staff in this effort, the Department should adopt a more formal workforce
and retirement planning model.
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One model for projecting employee retirement involves totaling employees' ages and their
years of service, and indexing those totals at the current time, as well as for future dates,
to determine likely retirements. Both of those figures could easily be obtained from data
readily available. An example of this method is depicted in the table below, showing
retirement risk at the current time, as well as in 2 years and 5 years:
Employee
Employee 1 23 1 24 28 34
Employee 2 48 15 63 67 73
Employee 3 45 19 64 68 74
Employee 4 50 19 69 73 79
Employee 5 48 23 71 75 81
Employee 6 48 24 72 76 82
Employee 7 49 27 76 80 86
Employee 8 52 25 77 81 87
Employee 9 54 32 86 90 96
Employee 10 57 35 92 96 102
While a model like this one can be constructed manually, this represents an area where
technology can be used to improve the Department's operations. Existing data should be
sufficient to generate reports such as the one above (or at least data that can be
presented as a report). These projections should be updated on at least an annual basis
in order to account for employee turnover and refresh the Department's strategy for
replacing lost employees and skills.
Employee skills and certifications could also be included in these projections. This would
help the HR department anticipate when skills will be lost and begin strategizing to replace
them, either by hiring new employees with the desired skills or by incentivizing existing
employees to acquire those skills and certifications.
Recommendation 4: The Department should develop a methodology for predicting
upcoming retirements based on age and years of service of employees and update
it at least annually to anticipate which employees and skills will need to be
replaced.
(2) Continued and Enhanced Efforts Should be Undertaken to Ensure the
Workforce Reflects the Community Demographics.
The Department's recruitment staff currently use multiple avenues for recruiting
candidates for open positions, all of which funnel applicants to a single recruiting module.
NeoGov is used to collect, filter, and assess applicants in order to develop a pool of highly
qualified candidates. While staff in the Department learn on an informal basis which
recruitment sources are the most effective, the Department should focus analytical efforts
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at determining which recruitment sources have proven reliable in the past in providing
both qualified and diverse candidates for consideration.
The Department should work toward a long-term goal of achieving a workforce that is
reflective of the Tigard community and the market demographics from their typical
recruitment area (which is larger than the City of Tigard). Doing this would allow the
Department to make an assessment about which recruitment sources produce the
greatest numbers and/or diversity of interview-worthy candidates.
Recommendation 5: The Department should prioritize efforts to expand the
diversity of applicant pools to enable it to work toward a City workforce that is
reflective of the community.
(3) A More Robust Compensation Practice Should be Implemented that Ties
Pay Increases to Individual Performance.
Currently, typical salary adjustments for employees (not represented by collective
bargaining agreements) are loosely tied to performance. While the City utilizes
performance evaluations, the delineation between staff performance is not sufficient to
result in pay adjustments that vary by much — most employees are getting a similar pay
increase annually.
There are a number of municipalities that use an evaluation system to provide additional
benefits to their employees via a pay-for-performance or merit program. Such a program
rewards employees for their individual contribution to the department or the municipality
as a whole. These programs are separate from standard cost of living adjustments or
step increases and are solely designed to recognize outstanding workmanship. However,
most pay-for-performance plans tend to be set up for non-union employees due to
limitations posed by bargaining contracts. It is not impossible to implement pay for
performance within unionized environments, it is just harder.
In a survey performed by the International City/County Management Association (ICMA),
they found that in Olathe, Kansas, their pay-for-performance provides the basis for
promotions, pay increases, transfers and performance bonuses. The City has a formal
performance review that begins with supervisors and employees identifying job specific
goals and how their individual work performance contributes to those goals. The City
uses a rating scale to determine how, or if, employees met the expectations set forth at
the beginning of the rating period which then determines the amount of additional
benefits, if any. The goal of their program is to recognize employees who have done
outstanding work above and beyond expectations, thereby providing them with more than
the "routine" cost of living adjustment normally received by all employees regardless of
productivity.
The implementation of compensated related performance incentives has shown that more
satisfied employees are motivated to perform at a higher level and be more productive
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for the organization. Reward based recognition can certainly be a motivating factor for
employees to perform at maximum levels benefiting both themselves and the City.
The City will likely need to develop a new, or refine the existing, performance evaluation
tool to implement this suggestion and provide the definitive scoring approaches that will
distinguish solid from outstanding performance.
Recommendation 6: The City should update the performance evaluation tool and
implement a compensation approach that more closely ties pay increases to
individual performance.
(5) Additional Staffing Resources are Needed to Provide the Services
Required.
To accomplish the additional duties outlined above for Human Resources, additional
staffing resources are needed. It is estimated that at least .5 to .75 FTE should be
allocated to Human Resources to support existing programs and provide the additional
services outlined above. Many of the positions in Human Resources are at the reduced
level "full-time"equivalency. They are eligible for benefits but do not work a full workweek.
The easiest, and least costly approach would be to convert all of these reduced hour
positions to true full-time positions. Alternatively, the City can implement a new .5 to .75
FTE position to supplement the current staffing allocation.
Recommendation 7. Additional staffing resources, in the range of .5 to .75 FTE,
should be allocated to the Human Resources Department
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3 Central Services
The following chapter focuses on the City's Central Services Department, addressing
opportunities for improvement in the Design and Communications, Municipal Court,
Property Management, and Fleet Maintenance divisions. In addition to each specific
division within the Central Services Department, the Department Director also functions
as the City's ADA coordinator.
The Central Services Department consists of four primary divisions: Communications,
City Recorder/Records, Municipal Court, and Fleet & Facilities Operations. Within Fleet
& Facilities, there are both property management and fleet maintenance divisions. The
Recorder & Records Division is not assessed as part of this study.
DEPARTMENT STRENGTHS
While this chapter focuses on changes that the Department can make to improve the way
it operates, the following points should be noted as particular strengths of the Department
in the functions reviewed as part of this study:
• The City's website is user-friendly and easy to navigate.
• While several departments have their own staff to coordinate their communication
efforts, the City uses centralized communications for several communication's
functions, including graphic design for written communication.
• The City's communication's team is available to serve all departments.
• Courts are adequately staffed to handle anticipated workload.
• The Court has written policies and procedures to assist staff with completing their
responsibilities.
• Maintenance, replacement, and management of fleet and equipment are
centralized.
• The City maintains a fleet fund reserve to ensure timely replacement of fleet
assets.
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• Charge back rates for fleet services are in place and evaluated at least annually.
• The Department uses electronic work orders for all maintenance activities.
• The Department is adequately staffed for Capital Construction Project
Management.
The Central Services Department budget data summary show a very modest overall
increase of 0.58% from FY18 revised numbers to FY19 adopted numbers. While there is
no indication that workload levels are decreasing, the budget reveals decreasing
expenditures in, both, Design & Communications and Fleet Maintenance. The Design &
Communication's budget shows a reduction between FY18 revised and FY19 adopted of
just over 4%, while the Fleet Maintenance budget shows a decrease of 4.62% for that
same period.
Division FY 17 FY 18 FY 19
Actual Revised Adopted
Design & Communications $563,930 $614,925 $590,187
Municipal Court $463,992 $560,880 $603,845
City Recorder/Records $464,811 $526,129 $533,494
Fleet Maintenance $222,732 $322,503 $307,589
Property Management $1,736,512 $1,888,409 $1,900,539
Total $3,451,977 $3,912,846 $3,935,654
The following organizational chart shows an overview of the organizational chart of the
Central Services Department.
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CitYRRecorder
ecords
LCity Recorder Property Fleet
(1.0) Management Maintenance
Digital D.•corder . •.
Communications — Admin Sec 11
RecordsCoordinator (1.0)
Building
Web Services Management Court Clerk 11 Maintenance Maintenance
Coordina or ialist (4.0) Te h Tech
• • -
Building
Maintenance
Tech 11-
groundsRegrog�aphics L_ .
nance
The following sections address changes to technology, organizational structure, and
operational practices which the Department should make in order to become more
efficient, responsive, and data-driven.
1 ` Communications
The Communications Division provides support for the City's branding and
communications efforts to achieve effective communication with the public. The Division
provides internal services support with communications planning, website design and
updating, editing, creating annual reports, graphic design, copywriting, printing, video
production, and news releases. Examples of final products the division helps create
include brochures, posters, human resources recruiting fliers, business cards, letterhead,
stationary, and a variety of electronic media design.
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The assessment revealed several very positive strengths of the Communication's
division. These strong points are indicative of a competent, well-led organization which
thus far is successful in achieving its goals and standards. Examples include:
• The City uses a webmaster to maintain the website with up-to-date information
across all departments.
• The City's website is user friendly and easy to navigate.
• The City uses centralized communications for several communication functions,
including graphic design for written communications.
• The City's communication's team is available to serve all city departments.
• The City's communication's team provides numerous services to city departments
to assist with the creation of effective written documents (fliers, brochures, posters,
etc.).
The sections below discuss areas where the department has opportunities to improve its
level of service even further.
(1) The City Should Utilize Internal and External Customer Surveys to
Determine Satisfaction and Effectiveness of Web Content
The City utilizes internal and external customer surveys for certain departments; however,
the City is not currently utilizing customer surveys to gather data on user satisfaction and
effectiveness of web services.
As the City already knows, by better understanding what internal and external
stakeholders want in relation to website content and design, the City can be in a better
position to ensure effective overall external communications while delivering results
internal and external customers want to see.
With regard to web services, the City might be doing a fantastic job for internal and
external customers; however, from the customer's perspective, there might also be areas
in which there could be improvement. An annual survey would be beneficial as an
opportunity to learn about customer satisfaction with web-related services (content,
design, ensuring what the public wants to see on the website is available and on the site,
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satisfaction with timeliness of providing data to the public in relation to timing of matters
that involve public input, etc.).
Recommendation 8: The City should utilize internal and external customer surveys
to determine satisfaction and effectiveness of web content.
(2) The City Should Utilize a Work Order System for all Requests for Web
Content Modification
Currently, each person wanting changes to web content will email or otherwise contact
the Web Services Coordinator, who will make any modifications on the website as
appropriate. Web Services Coordination then prioritizes each request and regularly
reviews the status of requests to ensure timely delivery of results to internal customers.
This process does not involve the use of work orders, but rather a spreadsheet to
document and manage workload.
With graphic design using a work order ticketing system and several other divisions/
departments in the city using them, the City should implement a work order system for all
web services-related work requests. The use of such a system will provide the city with a
better opportunity to track projects by priority, ensure timely delivery of requests, and to
run reports on workload performance data.
Recommendation 9: The City should utilize a work order system for all requests for
web content modification.
(3) The City Should Develop a Written Communication's Strategic Plan
The City does not currently have a written communication's strategic plan to guide
communications' integration with programs across multiple departments and to guide all
communications efforts (including public education and advocacy) over the next several
years.
While the City's Communication's leadership is knowledgeable and skilled with municipal
government communication's objectives and overall strategies, the following information
is worth mentioning as it relates to overall guidance. There are six steps in designing an
effective communication's strategic plan. The diagram below highlights these six steps:
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Assess Establish
Establish your
Communication s Communication Audience
Infrastructure Goals
i
Problem,Defining the Frame Each Establish Targets
Audienceand Call to Action A
The first step of assessing the City's communication's infrastructure might be one of the
most important steps as it allows you to self-assess where you are now and to draw on
any lessons learned from past experiences. The assessment begins with understanding
what communication's efforts have worked well for the City in the past and what did not
work well. This process also involves determining how many staff are available to commit
to communications efforts, what each of those people will specifically do in each
communication's project, and how much budget is available to promote effective
communication's efforts.
The next steps in the plan include framing the City's communication's strategy by
ensuring every project has established communication's goals, the general audience is
defined as well as any specific targets (i.e. a specific TV station reporter who might be
able to get the message on the evening news), each message is clearly framed, and the
message identifies the "problem, solution, and a call to action".
Even though this is not a specific step in the process, an important effort is to ensure
there is a plan to select and train those people who will be spokesperson's for the City,
whether through a centralized department, individual departments, or some combination
of the two dependent upon the message being delivered. All efforts to ensure adequate
spokesperson training for decentralized communication's efforts should be managed by
the city's Design & Communication's division.
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Having these efforts memorialized in writing will provide guidance to city staff and
ultimately provide additional focus for the city as it seeks to achieve effective
communications with both internal and external stakeholders.
Recommendation 10: The City should develop a written communication's strategic
plan.
(4) The Graphics Design Division Should Be Involved in Projects from Inception
and Should Meet with Stakeholders Before Beginning Work on Design
Requests.
The City's graphic design team, excluding the Communication's Manager, consists of
1 .75 FTE staff. At present, the team gets involved in projects when someone submits a
workorder; however, by the time the workorder is submitted, it is probable that the project
planning process is well underway. In order to better serve their customers, it is beneficial
for the graphic design team to become involved with a project as early as possible, often
at the inception of the planning process. If there is a probability that design will be involved
at some point of a project, then graphic designers should be involved as early as possible.
For larger design-work projects, such as annual reports or those that will take design staff
more than two full days of work, departments should be encouraged to create a work
order at the very beginning of a project's planning phase, thus allowing the graphic design
team the opportunity to sit in on meetings or otherwise become knowledgeable about a
project's goals, target audience, messaging requirements, as early as possible. The
sooner the graphic design team is involved, the more likely they are to create a design
with limited revisions that meets the needs of their internal customers.
At present, customers submit design requests and for larger projects, the graphic design
team spends what can be a considerable amount of time on an initial design. While design
staff routinely reach out to the staff member who submitted a work order before much
effort is put into the design, it is probable that this does not always occur.
The project team recognizes that with current staffing levels and current workload, it is
not always feasible for design staff to attend meetings prior to a workorder being
submitted for design work; however, the earlier design staff are involved in the visioning
process for a project, the less likely there will be any differences in vision for what the
final product should look like.
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For larger projects, the design team member assigned the project should meet with the
requester prior to beginning any design work to help ensure everyone is on a similar page
with regard to what the final product should look like.
By bringing in the graphic design team early in the project's planning stage and requiring
the graphic design team to verbally consult with project stakeholders prior to beginning
actual design work, there will be more clarity for design staff and the results are much
less likely that any time will be wasted designing something that was not what the
customer wanted to see.
Recommendation 11: The Graphics Design staff should meet with stakeholders
before beginning work on large-project design requests.
2 Municipal Court
The Municipal Court handles primarily traffic, parking, and limited ordinance infractions in
the City of Tigard.
The assessment revealed several positive strengths of the Municipal Court division.
These strong points are indicative of a competent, well-led organization which thus far is
successful in achieving its goals and standards. Examples include:
• The Court is adequately staffed to handle existing and anticipated workload
demand (especially considering the proposed traffic camera enforcement program
about to begin).
• The Court has numerous department operating instructions (DOls) to provide
guidance to staff for various work processes.
• The City uses centralized communications including graphic design for written
communications.
• The majority of citations are electronic and do not require hand entry into the
Court's record keeping system.
The sections below discuss areas where the department has opportunities to improve its
level of service even further.
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(1) The Court Should Adopt a Written Strategic Plan to Guide Future Decision
Making for Operations and Employee Performance Expectations
The National Center for State Courts (NCSC) recognizes the importance of strategic
planning for court operations and they published a Strategic Planning Resource Guide to
assist with court strategic planning efforts.' According to the NCSC, it is a prerequisite to
enhancing court performance and administration that a strategic plan be developed and
include the following:
ResponsibilitiesEffective Court Strategic
Planning
Seek Ways to Adapt Consider Future Court
Management Practices in Circumstances
a Changing Environment
Consider Future Court Consider Future Court
Goals
Court strategic planning is similar to other strategic planning initiatives and yet with often
changing technologies utilized within courtroom-related tasks/functions, there is a distinct
need to remain flexible within this changing environment. The Municipal Court does not
currently have a strategic plan; however, development of one can help guide the Court's
future efforts to best serve citizen and court needs. Additionally, employees will have an
even better understanding of performance expectations both, now and in the future, with
a well-developed strategic plan.
Recommendation 12: The Court should adopt a written strategic plan to guide
future decision making for operations and employee performance expectations.
' NCSC Strategic Planning Resource Guide httt s://www.ncsc.ora/Topics/Court-Management/Strategic-Planning/Resource-
Guide.asox
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(2) The Court Should Maintain Staffing Levels so Workload Demands are
Within 10% of Annual Productive Hours per Employee.
A sampling of the division's workload is provided in the table below:
Court FY17 FY18
Court Caseload 4,927 6,015
Total Violations Processed 3,015 4,141
Traffic Safety Diversions Processed 1,156 1,094
Traffic Safety Diversion Compliance Rate 91.5% 90.3%
Annual productive hours are an important calculation for determining available time per
employee for handling essential functions of the job. This calculation is determined with
both objective and subjective criteria. To calculate annual productive hours, you start with
an assumption of 2,080 hours in a work year (this can change depending on the year, but
2,080 hours is a reasonable assumption). Next, we deduct time for allotted holidays,
vacation, and sick leave. Finally, time for breaks, meetings, and training is deducted. The
resulting number is the total number of hours an employee is anticipated to be at work
performing their core job-related functions.
The following table shows annual productive hours for Tigard Municipal Court employees:
Category Amount(Hrs)
Base Full Time Hours 2,080
Holidays (12 days a year) (96)
Vacation (15 days a year)2 (120)
Sick (12 days a year) (96)
Breaks/Meetings/Training3 (391)
Subtotal of Hours to Be Excluded (703)
Annual Productive Hours 1,377
The majority of workload is the result of citations — traffic, parking, and limited ordinance
infractions in the City of Tigard. Arraignments occur weekly and total staff time in the
courtroom is approximately 90 minutes. Trials occur every other Thursday for three hours
each (assumption of six hours monthly). There are currently about 500 citations
processed monthly (this can vary widely, but 500 is a reasonable assumption for this
workload metric). The City just received approval to implement a traffic camera
enforcement program. In anticipation of a significant increase in citations due to the
2 The City has multiple ranges for employee vacation time.A middle estimate of 15 days"is used for this calculation.
3 The Breaks/Meetings/Training hours assumes 30 minutes daily for phone calls,30 minutes daily for breaks,30 minutes daily for
meetings,and two(2)days of training per year.
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implementation of this automated traffic enforcement program, the Court recently hired
two additional staff members to keep up with workload.
To process a citation, staff must enter information into the computer (verify e-citation data
and hand enter about 5% of total citations, which are hand written), file required
paperwork, process driving record data, process no show paperwork if that occurs, issue
letters to defendants as required, set up payment plans, process diversion program
paperwork, make payments, and close case files. Total processing time likely averages
45 minutes per citation for an efficient operation. Answering phone calls and handling
walk in traffic not specifically related to a case take up another eight (8) hours weekly of
total staff time. If staff are new or otherwise not completely efficient at each function, this
time estimate will increase.
Time estimates for workload data are as follows:
Total annual
Workload hours
24 trial days per year at three (3) hours each 72
Arraignments occurring 52 times annually at 90 minutes each 78
Citation processing from inception to completion 4,500
Phone calls and other public assistance at eight(8) hours weekly 416
Total hours 5,066
A recommendation is that court staff are utilized between 90 and 110% of annual
productive hours, which in Tigard results in 1 ,240 to 1514 hours per employee. Some
overtime can be good for employees and can save the city money when compared with
deciding to hire additional staff simply to avoid paying overtime. For this reason, up to a
110% staff utilization rate is appropriate. The approximate total workload in hours for five
(5) employees handling court-related functions (one supervisor and four clerks), is
1 ,013.2 hours per employee (based on 5,066 total hours). With 1,377 available hours, the
current staff utilization rate is 73.58%. This utilization rate is acceptable due to the pending
implementation of an automated traffic camera enforcement program.
The City recently hired additional court clerks in anticipation of the implementation of an
upcoming traffic camera enforcement program. This is good business practice in that it
takes time to get court staff trained in all functions of court operations. Had the city not
made these hires, the staff utilization rate for three (3) employees would be 1,688.67,
which represents a utilization rate of 122.63%. This rate is higher than the recommended
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utilization range and supports the prior justification for hiring additional court staff
considering the anticipated increase in workload from traffic camera citations.
The Court Operations Supervisor should determine the staff utilization rate on an annual
basis and use the updated data to determine whether staffing levels should be modified
for the upcoming fiscal year.
Recommendation 13: The court should maintain staffing levels so workload
demands are within 10% of annual productive hours per employee.
Fleet Operations
Fleet services provides oversight of vehicle maintenance and repair of city vehicles and
equipment. Staff works to help determine appropriate vehicle and equipment replacement
schedules, as well as ensure proper preventative maintenance occurs on vehicles and
equipment.
The assessment revealed several strengths of the Fleet Operations division. These
strengths are indicative of a competent, well-led organization which thus far is successful
in achieving its goals and standards. Examples include:
• Maintenance, replacement, and management of fleet and equipment are
centralized.
• A replacement reserve has been established to help ensure timely replacement of
fleet assets.
• Charge back rates are in place and evaluated annually.
• A preventive maintenance schedule has been adopted.
• Customers receive prior notification of upcoming preventive maintenance services.
• Work orders are electronic and maintained for all maintenance activities.
During FY17 and FY18, the Fleet Maintenance division completed an average of 224
preventive maintenance work orders and an average of 836 scheduled maintenance work
orders. Through February 2019, the division completed 141 preventive maintenance and
466 scheduled maintenance work orders.
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Fleet Maintenance FY17 FY18 FY19
Fleet Preventative Maintenance Work Orders 191 257 141
Fleet Scheduled Maintenance Work Orders 866 805 466
Work orders are delivered electronically and prioritized by department (public safety first,
public works second, then other departments). In-house staff complete many repairs in-
house and only contract out work that is either too time consuming to perform or
preventive maintenance work on vehicles. In-house staff take care of preventive
maintenance for all equipment. The total amount outsourced in combined labor and
supplies is approximately $75,000 annually. This shows in-house staff are efficient and
effective in determining what work should be outsourced versus completing the work in-
house.
The sections below discuss areas where the department has opportunities to improve its
level of service even further.
(1) Fleet Maintenance Should Perform Analytics and Random Verification of
Fuel Purchases
The City of Tigard has its own fuel tanks/pumps. Invoices for fuel purchases are
decentralized so they are delivered directly to individual departments. There is an inherent
risk related to internal controls and both the detection and deterrence of fuel theft when a
centralized department does not regularly perform analytics and random expense
verification of fuel purchases.
Other local government organizations have experienced incidents of theft of fuel, when
an employee will fuel up a personal vehicle and claim that it was a city vehicle. If required
to input data about the vehicle being fueled, the employee can input false data in an
attempt to mislead anyone who might want to verify the fuel purchase.
The City requires employees to enter certain data at the pump when fueling a City vehicle.
That data is then routed to individual departments, which in turn keeps records on fuel
usage.
An example of a fuel verification check is having a staff member sample a certain number
of fuel purchases each quarter. The vehicle is located and its current mileage verified.
The fuel report for the prior ten (10) fuel purchases are reviewed for each vehicle sampled
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to determine if the actual mileage is consistent with what one would expect to find based
on prior mileage entries.
The fuel usage data and current mileage are entered into an Excel spreadsheet and a
miles per gallon over a period of time is determined. The review includes pulling data for
average miles per gallon from the National Highway Traffic Safety Association (NHTSA)
for the vehicle year, make, and model being fueled. If the review finds actual miles per
gallon are significantly lower than NHTSA estimates, that could be an indication of fuel
theft and reason for additional investigation. Random sampling fuel usage verification
checks provide a useful tool to both detect theft should it have occurred and to deter any
future consideration of committing such an act.
The following is a sample report of miles per gallon actual versus NHTSA estimated based
on a sampling of a city's vehicles (after verification of actual mileage). The data in the
sample report show mileage per gallon are consistently lower across all sampled vehicles
than NHTSA estimates. Since this is consistent across several departments, it is less
concerning that there is an incident of theft (unless it is widespread theft) but more
indicative of something else (i.e. those city vehicles are weighted down with equipment
and/or drivers could have a heavy foot).
Since the fleet maintenance division maintains the fuel tanks and pumps, it should be
responsible for ensuring appropriate fuel usage. The division's administrative specialist
could run analytics on fuel usage while coordinating with department directors to verify
mileage on sampled vehicles. Any discrepancies or areas needing further inquiry would
be referred to the appropriate department director for further investigation.
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City Vehicle MPG Actual v. NHTSA Estimates
18.00
16.00
14.00
12.00
10.00
8.00
6.00
4.00
2.00
0.00
Electric-217 Electric-227 Water-268 Water-269 Parks-516 Animal Control Animal Control
-744 -748
■Actual MPG ■Estimated MPG
Recommendation 14: Fleet maintenance should perform analytics and random
verification of fuel purchases.
(2) The City Should Ensure that its Asset Management System is Meeting the
Needs of Fleet and Facilities Maintenance Staff.
An effective asset management system allows an organization to optimize efficiency and
effectiveness by budgeting accurately for the likely cost of maintenance and repairs,
staffing appropriately for the projected workload, and using a preventive maintenance
program to ensure assets do not deteriorate due to an unacceptable level. Some
organizations use as a primary tool for this work, a computerized maintenance
management system (CMMS) or dedicated asset management software with an
integrated work order system. A CMMS is not always recommended, but what is
recommended is any program that has an asset management system that seamlessly
integrates with both a work order system and financial reporting software.
The City currently uses an asset management and work order system; however, staff
indicate a desire for that system to perform additional functions. The City should ensure
its asset management program includes an effective work order system which is
integrated with the asset inventory. The Department should adopt a formal asset
management strategy which involves three components: a Department-wide asset
inventory, a lifecycle costing system, and a work order system.
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The following table shows common components of an effective asset management/work
order integrated system.
Essential Function Description/Explanation
Asset Management The software should allow the City to upload a complete and classify a
completed listing of infrastructure assets that would be maintained by Fleet
and Facilities. It should allow each asset to be classified by its category
and type and assigned to an "owner"division.
Lifecycle Costing The software should allow each asset to be assigned a construction or full
replacement cost, as well as an anticipated lifecycle and depreciation
schedule. This information is vital for capital budgeting.
GIS Integration Most systems available are compatible with ESRI ArcGIS, which means
that each stationary infrastructure asset can be assigned a specific location
in one of the public works GIS layers. The City's software should allow this
capability so that the geographical location of any asset can be quickly
searched, and GIS layers can display information about, and link to, the
assets populating them. While most fleet assets will not need this level of
service, other areas in the city do need them.
Work Order Management The software should be able to manage a work order system which
provides the basis for a Department-wide preventive maintenance
program, detailed reporting, and staffing allocations.
Field Access The software should include access to a mobile application which can be
used by staff in the field to look up work orders, identify their geographic
location, read prior status updates for them, record labor hours and
vehicle/equipment use against work orders, and update work orders'status
or mark them complete. Each crew in the field should be able to access
this application on tablets to update the system in real time.
Reporting The software should be able to produce detailed reports from the work
order system, as well as the program's asset management module.
Examples of reports may include a)the total depreciation of the asset over
a selected time period, b) the total maintenance and replacement cost of
the asset in any given fiscal year, c) the total labor hours spent on non-
routine maintenance of the asset, and d) the total number of work orders
related to each asset(to know if there is need to re-do work,or simply there
are high maintenance costs associated with the asset).
While the City's systems might perform many or all of these functions, staff using them
must be comfortable with the particular system and all that it has available to them so
they can best do their job.
Recommendation 15: The City should ensure that its asset management system is
meeting the needs of fleet and facilities maintenance staff.
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4 Property Management
The Property Management (Facilities Services) Division is responsible for environmental
health, safety, and security of city facilities. These services include providing security,
janitorial services, fire safety, maintenance, and repair of city buildings. Additionally, they
assist the other city staff with limited physical work (moving filing cabinets, etc.).
Staff handle all minor repairs, maintenance, minor remodels, painting, floor repairs, door
maintenance, and many preventative maintenance functions. Employees are not licensed
to perform specialty work and as such they do not complete HVAC, plumbing, or electrical
repairs. However, they are on-site for those issues and handle contracting with outside
vendors as necessary.
Grounds maintenance is staffed with one employee and this employee is responsible to
complete mowing, blowing, weeding, and landscaping for all city administrative buildings
(senior center, PW, city hall, and library).
There are three (3) authorized FTE positions as building maintenance technician II, one
(1) authorized FTE as a senior building maintenance technician, one (1) authorized FTE
for grounds maintenance, and one (1) FTE supervisor position. In addition to the
responsibilities of maintaining city buildings, the supervisor is also responsible for being
the city's single capital construction project manager.
The assessment revealed strengths of the Property Management division. Example of
these strengths include:
• There is an effective Project Management staffing ratio for capital construction
projects.
• The division utilizes a work order system to ensure projects are completed in time
and efficiently.
• Given the size of buildings under management and the challenges associated with
aging buildings that are not always co-located, staffing levels are appropriate.
One of the strengths mentioned was project management staffing. The project team
recognizes that the City of Tigard does not have a "project manager" by title but rather
those services are a small portion of the job for another position. Capital projects vary in
how much time they require from a project manager to manage a project to completion
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(skill of the project manager, complexity of the project, whether more time needs to be
allocated to the planning phase or the construction phase, etc.).
In recognition that there is a level of subjectivity to adequate staffing for capital
construction project management, the project team developed a model for determining
the number of project management staff needed in an upcoming year using a weighted
metric which accounts for both the dollar value per manager and the number of projects
per manager. The theory behind this is that the more a project costs, the greater its
complexity, and thus the more time necessary for a project manager to spend on it.
A brand-new project manager might not be assigned more than four (4) or five (5) non-
complex projects in a year, while an experienced project manager can handle more
complex projects at double that amount.
A 2014 study4 examined project management companies and determined whether they
were high performing or low performing companies. They determined that high performing
companies had their project management staff handling an average of 8.4 projects while
low performing companies had their project managers handling an average of 11.3
projects. Based on best industry practices and appropriate studies, the project team uses
a weighted metric ratio of 70% cost and 30% number of projects with eight (8) projects
valued at a total of $25M under management per project manager as best practice
numbers.
There are currently 12 projects under management with a total cumulative value of
approximately $1 M. Using a weighted metric of 70% cost and 30% number of projects,
the City has a weighted average of 0.48. The weighted metric of 0.48 represents the
estimated workload demand on the employee performing project management functions.
In this case, an estimated 0.48% of the Facility Services Supervisor's time is spent
managing projects. This means that while the city is appropriately staffed in this function
at present, future workload demands on the Facility Services Supervisor will necessitate
the need to hire additional staff.
Metric FY19
Dollar Value of Projects $1,000,000
Recommended PM (Based on dollar value) 0.04
Weighted at 70%
4 https://www.pmsolutions.com/reports/State_of_the_PMO_2014_Research_Report_FINAL.pdf
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Metric FY19
Number of Capital Projects 12
Recommended PM (Based on number of projects) 1.5
Weighted at 30%
Combined Weighted PM Staffing 0.48
The sections below discuss areas where the department has opportunities to improve its
level of service even further.
(1) Property Management Should Regularly Assess Amounts Spent on
Vendors for Specialty Services to Determine if In-House Staff Should
Perform Those Functions
The City's building maintenance staff perform significant maintenance work on all of the
city's buildings; however, none of them hold specialty certifications (HVAC, plumbing,
electrical, etc.). This is not unusual for a City the size of Tigard; however, whether city
staff should hold specialty certifications should be the result of ongoing analysis on the
amount of money the City spends for HVAC, plumbing, electrical, or other specialty-type
repairs/maintenance.
If the cost of outsourcing specialty maintenance/repair functions exceeds the cost to hire
a city employee into a newly created position with appropriate classification/
compensation, and the City believes there will be a continued need for those specialty
services, the City should require at least one employee to hold an appropriate certification
so those functions can be performed using in-house staff.
Recommendation 16: Property Management should regularly assess amounts
spent on vendors for specialty services to determine if in-house staff should
perform those functions.
(2) Property Management Should Implement a Proactive Building Preventive
Maintenance Program to Prevent Reactive Maintenance Issues as Much as
is Reasonably Possible.
While building maintenance staff perform preventive maintenance, there currently does
not exist a written formal preventive maintenance program in place. Within the City's asset
management program, there should exist a method to enter data into the system that will
automatically schedule work orders for a multitude of preventive maintenance tasks.
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In order to build a preventive maintenance plan for building maintenance functions, the
City will want to decide which of its building assets will be included in the plan. Next, all
information about the asset is gathered (original equipment manufacturer (OEM)
recommendations, prior repair history, knowledge from existing maintenance staff about
what repairs/maintenance might be needed in the future, etc. Next is to create an initial
preventive maintenance plan and enter that data into the city's asset management/work
order system. Once the plan is complete, employees perform the required preventive
maintenance services, track results, and adjust the plan in subsequent years as needed.
Recommendation 17:Property Management should implement a proactive building
preventive maintenance program to prevent reactive maintenance issues as much
as is reasonably possible.
(3) Fleet & Facilities Should Conduct Spot Inventory Checks to Mitigate the
Inherent Risk of Asset Misappropriation.
There will always be an inherent risk of asset misappropriation associated with local
government operations. This is regardless of who any specific employees are in various
positions — the risk itself is inherent and it is real. There are numerous examples from
local governments across the country where asset misappropriation has occurred. Even
though small tools or smaller pieces of equipment are generally not too expensive, the
risk of their misappropriation is greater than for other assets a city might own.
There are several ways in which management can mitigate the risk of inventory theft or
misuse. These include limiting who has access to where these items are stored, installing
cameras showing who enters the room and coverage for the entire inside of the room,
requiring employees sign in/out all equipment, and to conduct spot inventory checks of
tools and small equipment.
According to the Association of Certified Fraud Examiners (ACFE) 2018 Global Report to
the Nations, asset misappropriation is by far the most commonly discovered type of
occupational fraud, having occurred in 89% of all known frauds analyzed in their latest
report. The average cost of an asset misappropriation scheme is $114,000 USD per
incident.5
5 2018 ACFE Global Report to the Nations:https:Hs3-us-west-2.amazonaws.com/acfepublic/2018-report-to-the-nations.pdf
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The following graphic shows additional data from the 2018 AFCE report. While it might
be more appropriate for this chart to be associated with a finance department, the
important takeaway is that while there are other more costly types of occupational frauds
that occur, a significant majority of frauds that occur involve asset misappropriation. The
discrepancy with reconciliation of fraud incidents by percent is that several types of fraud
schemes overlap categories and thus the total will always be more than 100%.
OCCUPATIONAL FRAUD CASES BY TYPE
■%of Incidents Average Loss per Incident o
0
00
Ln
0
0
0
in
0
0
0
0
o L'
0
a
N
o 0
rn 00
M 0
00 m .�
ASSET MISAPPROPRIATION CORRUPTION FINANCIAL STATEMENT FRAUD
Recommendation 18: Fleet & Facilities should conduct spot inventory checks to
mitigate the inherent risk of asset misappropriation.
(4) Fleet & Facilities Should Maintain Staffing Levels in the General Range of 1
Employee for every 35,000 — 45,000 Square Feet of Facilities Under
Management.
As a general best practice, the ratio of facilities to maintenance staff is around 45,000 —
50,000 square feet of buildings to maintain per one (1) maintenance employee. This ratio
however, is flexible for several reasons: the number of contracted repairs necessary for
technical expertise, the proximity of building locations to one another, and the age/
condition of the buildings being maintained.
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As an example, if a city had 20 buildings totaling 300,000 square feet, spread out over 40
square miles and the majority of buildings were very old and in general disrepair, it will
take more maintenance staff to adequately take care of those buildings than if there were
five buildings with the same 300,000 total square feet all co-located next to one another.
The same square footage exists under this scenario; however, the former scenario will
require more maintenance personnel.
Excluding the supervisor, there are four staff to maintain 12 buildings, with a cumulative
129,184 square feet of building space (including common areas). Additional maintenance
occurs at other buildings (Fanno Creek House, Summer Lake Shop, skate park, etc.) This
comes to 32,296 per maintenance employee plus those other facilities. This ratio is
slightly lower than the ratio normally recommended; however, some of the city's facilities
are older and thus require more time and effort to maintain them. Additionally, facilities
are not reasonably co-located which creates the justification for the City's existing ratio.
As a general rule, the City of Tigard should strive to achieve a ratio of one (1) maintenance
employee for every 35,000 — 45,000 square feet of buildings under management.
Property Management Square Footage of Maintenance
City Hall 8,400
Permit Center 11,840
Police Department 12,804
Library 48,001
City Hall Modular 1,980
Niche 3,240
Police Department Annex 2,652
Police Storage 2,820
Senior Center 7,718
Ash/Burnham Street 7,440
Public Works 17,968
Canterbury 4,321
Total (including common areas) 129,184
As the City adds buildings or buildings continue to age, the City should continuously re-
evaluate the appropriate number of personnel necessary to adequately maintain city
facilities.
Recommendation 19: Fleet & Facilities should maintain staffing levels in the
general range of one (1) employee for every 35,000—45,000 square feet of facilities
under management.
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(5) Project Managers Should Receive Project Management Certification
Construction project management is a combination of multiple important roles in the life
of a capital project. From planning, budgeting, and supervising projects from start to finish,
project managers are responsible for the entire project. A partial list of responsibilities
includes developing a budget, creating work timetables, determining the best overall
strategy for construction, coordinating with city leaders and contractors to ensure
timetables are met, understanding technical and contractual details to ensure they are
met, ensuring a safe construction site, making sure the project is completed on-time and
on-budget, and meeting all of the necessary reporting requirements for each project.
Effective project management starts before design work on a capital project begins. It
starts at the time the project is initially thought about at the department head level, with a
project manager being assigned at that early point to ensure there is cohesiveness with
not only that project, but in how that one project might affect other projects under
consideration.
Project manager certification helps ensure projects are managed according to best
industry standards and practices. While any project might turn out okay, the project team
recognizes the inherent risks of not having a certified project manager on staff and
recommends that all project managers receive appropriate certifications.
Project manager certification can be obtained from the Project Management Institute
(https://www.pmi.org/certifications/types). There are several possible certifications
available with a recommended certification being the "Project Management Professional"
or "PMP".
Recommendation 20: Project managers should receive project management
certification.
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4 Community Development
The following chapter focuses on the City's Community Development Department,
addressing opportunities for improvement in performance measurement, technology
utilization, cost recovery, staffing, and customer service.
DEPARTMENT STRENGTHS
The Community Development Department in Tigard has a number of strengths which
should be noted before delving into the improvement opportunities. These strong points
are indicative of a competent, well-led organization which thus far is successful in
achieving its goals and standards. Examples include:
• All plan review functions are co-located in the same building so that application
submittal is a "one-stop shop" for applicants. The filing system is easy to use for
employees and records are easy to retrieve.
• Customer service is emphasized at the Department. The City's website includes
application forms, information about submittal requirements, citizen access to
Accela, fee schedules, and the development code. Building permit application
guides are readily available for customers. The counter is open four days per week,
and over-the-counter plan checking is offered every day that the Department is
open.
• The Department has embraced technology. All divisions of the Department are
GIS-enabled; GeoCortex is available to all plan review staff, Accela is used to track
application reviews and make information available to the public, staff have access
to the system via tablets in the field, and the Department is in the process of
implementing electronic plan review.
• The Building Division has a comprehensive operating plan which covers
administrative, plan review, inspections, permitting, and compliance standards.
This division also operates as an enterprise fund, and revenues are more than
sufficient to offset expenditures.
• A clear system is in place for land use applications; they are classified by their
type, meetings with the applicant are conducted at the outset, and workload is
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carefully tracked to ensure that staff meet the cycle times required by the State of
Oregon.
• There is a strong focus on training and maintaining the required certifications for
each position, and this is included in annual performance evaluations.
The sections below discuss areas where the Department can change its operating
practices, assignment of roles, and use of technology in order to improve its level of
service further.
(1) The Department Should Adopt a Measurement and Reporting Cycle to
Quantify Performance.
In order to gauge the effectiveness and efficiency of the services provided by the
Department to the public, the Community Development Department should institute a
regular practice of performance reporting. High-performing organizations define the
outcomes of success and track the measures that will inform them of whether or not they
are reaching those outcomes. Typically, these measures can be derived from data
recorded in the course of providing services, and benchmarks are established to define
the goals which the organization aspires to reach. These benchmarks, or performance
measures, provide a number of benefits to an organization:
• They help the organization align its efforts with its wider strategic goals and its
mission, vision, and values.
• They allow the organization to identify strengths and weaknesses, and to track its
progress toward established goals over time.
• They frame discussions of success based on desired outcomes rather than
personalities or behaviors of staff.
• They cultivate a growth mindset of long-term, continuous improvement and open
discussion.
The Department has a head start on implementing a performance measurement system.
In the City's budget, a number of quantitative metrics are listed under the Community
Development section. These include the total construction valuation per Building
Department FTE, the total permit fee value collected, and the total number of hearings
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conducted. While dubbed "performance measures", these metrics are better suited for
gauging workload than assessing the quality of work or level of service provided by staff.
The Department also has cycle time objectives established for some functions (the
Building Division aims for a maximum of 2-3 weeks for conducting initial plan checks and
the Planning Division has a memo of internally established cycle time objectives), but no
systematic approach of reporting and review is followed in order to attain the four benefits
listed above.
To address this, the Department should establish service level metrics that will be used
as performance measures and begin tracking and reporting on them quarterly or annually.
The following key steps should be taken:
1 . Determine the level of service that the Department is committed to providing in
building, planning, and inspections.
2. Select metrics that specifically measure the Department's success in meeting
established levels of service.
3. Establish target benchmarks against which the Department's performance can be
measured. These will serve to inform decision-makers of whether performance
levels are acceptable or not.
With these steps in place, the Department should begin tracking the selected measures.
Because Accela is already used to process applications, the reporting functions of this
tool should be used to their fullest extent. Performance measures should focus on
Department work outcomes, particularly those that are within the control of staff. A list of
recommended performance measures for each function within the Community
Development Department can be found in a dedicated chapter of this report.
Gathering the data necessary to report on the selected metrics will require that the
Department is able to produce Accela reports. The software has a built-in reporting tool
and the ability to produce a variety of workload and performance reports, but staff have
not yet been trained to generate them from the system. The Department should be able
to independently produce the reports used for routine quarterly performance
measurement. This training may be obtained from a consultant or from an Accela trainer,
and the City's IT Department should provide as much support as they are able. Obtaining
this training for the appropriate staff should be among the highest priorities for the
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Department; a permitting system is losing half its usefulness when staff cannot access
reports from it.
Each quarter, the Department's performance against the selected metrics should be
reviewed by management, and a determination made whether the level of service
provided meets the established targets. Areas of high performance should be recognized
and celebrated. Areas of poor performance should be identified, and a discussion held
among management (and staff, as necessary) to establish a plan for improvement.
Recommendation 21: The Department should ensure that in-house staff have the
ability to produce workload and performance reports from Accela.
Recommendation 22: The Department should generate routine reports on workload
and level of service performance measures in order to gauge effectiveness in
meeting established benchmarks.
(2) The Department Can Benefit from an Electronic Customer Satisfaction
Survey.
As outlined earlier this this chapter, the Department does a number of things to promote
a high level of customer service. Because customer service is a focus of the Department,
the Department should implement a means of evaluating their performance in this area
through the eyes of their customers. Customer feedback is a valuable tool for
performance measurement and organizational self-evaluation. The Department has a
comment box currently which allows customers to provide opinions. This can be improved
upon by using an electronic survey which is sent to each customer by email address
following the conclusion of their application.
• By reaching out to customers rather than requiring them to take initiative to submit
an opinion, the Department can reduce some of the selection bias inherent in a
self-initiated survey of the type currently being used.
• Electronic surveys can be tracked to make sure only one response is submitted
per email address.
• The results of a digital survey are easier to compile and analyze than hand-written
survey responses.
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The survey should ask customers to rate their level of satisfaction with elements such as
how well the process was explained to them by staff, how well they were kept informed
of the status of their application, the timeliness of review, and the courtesy of employees.
Instituting a routine invitation to take a customer survey at the conclusion of each
application will provide the Department with a rich source of data directly from their
customers and valuable insights into their perceived strengths and weaknesses. It can be
used as the basis for one or more performance measures, as outlined in a dedicated
section of this report.
Recommendation 23: The Department should distribute an electronic customer
satisfaction survey to all customers at the conclusion of their application and
compile responses as a performance measurement tool.
(3) The Department Should Offer Expedited Plan Review.
Many cities, in addition to the normal plan review timeframes established for permit
applications, offer an expedited plan review option. This allows applicants, for a fee, to
receive an accelerated turnaround time on their application. The Department does not
currently offer expedited plan review, but should do so, when allowed by state law, as a
way to enhance the level of service offered to customers and maintain an economic
development advantage. The following points should be considered in implementing this:
• Expedited plan reviews should not involve prioritizing one application over another
or "jumping the line". Rather, additional staffing resources should be contracted to
accommodate the additional workload imposed by shorter cycle times while
ensuring that other, non-expedited applications can still be completed on time. The
Department already uses contracted plan reviewers for some applications, and
thus is well-positioned to expand their use to expedited reviews.
• Contracted plan reviews, in this context, should not be used as a means of
handling periods of peak permit activity, but as a way to provide an exceptional
level of service to applicants.
• The additional fee charged for expedited review should be sufficient to recover the
cost of the contracted plan reviewers' time. Expedited reviews should be cost-
neutral to the Department.
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• The Department should begin offering expedited reviews incrementally, beginning
with just a few common application types which can be consistently handled by
contracted staff. Accelerated plan review should be offered for more application
types once the process is running smoothly.
Providing customers with the option to expedite their permit application's review is an
enhancement of service and will allow portions of the Department's workflow to move
more quickly toward approval. It may also be used by the Department to expedite projects
which are important to the City from an economic development standpoint. The
Department should establish the parameters of this service and the circumstances under
which it is offered over the coming year.
Recommendation 24: The Department should implement expedited permit
application reviews as a fee-based option for customers.
(4) The Department Should Address Staffing and Financial Data Issues Related
to Accela.
In many respects, the Department utilizes technology well. Several software systems
are in use to help staff manage their core functions.
• The Department has a dedicated permitting software, Accela, which is used to
create and update records of building and land use permit applications, record
the work done by staff, coordinate plans examination, and receive and review
certain types of applications (those not requiring plan submittal) electronically.
• The Department uses auxiliary tools such as Selectron, Laserfiche, and the City's
GeoCortex GIS system to schedule inspections, digitally archive documents, and
determine the location and appropriate land use requirements for applications.
In addition, the Department is in the process of implementing an electronic permitting
and plan review system which will allow for the digital submittal and routing of plans,
significantly improving the Department's workflow and eco-friendliness.
For these strengths, the Department also has two primary technology issues which limit
the use of one of its core systems.
The Accela permitting system is not integrated with the City's financial management
information system, Springbrook. This creates a number of issues, because financial
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processes are integral to community development work. Ideally, actions with financial
consequences (such as receiving a payment) would be automatically reflected in
Springbrook, but this is not the case. As a result, all financial transactions must be entered
in both systems. For example:
• The Building Services Supervisor must generate periodic reports on all payments
received and balance the cash drawer accordingly, then provide the report to the
Finance Department for entry into Springbrook.
• The refund process requires a monthly report to be provided to the Finance
Department, which writes refund checks for Community Development to distribute
to the correct recipient and enter the amounts into Accela accordingly. This work
is mostly done on weekends and overtime.
The duplication of effort that results from the lack of integration between these two
systems costs the Department employees' time and increases the likelihood of making
an error. To address this, there are two key steps that the Department should take:
1 . While most staff in the Department use Accela in the course of their daily activities,
the Building Services Supervisor functions as the system administrator. In addition
to supervising the front desk permitting technicians, this position oversees user
setup and security, serves as the liaison with the vendor, manages the
implementation of system updates, and handles the additional accounting
functions necessitated by the lack of integration with Springbrook as described.
Nobody else plays this integral role, and there is no backup for this position. The
City should require each department and division which uses Accela for case
management to designate one employee as an Accela power user. This employee
should receive training and support the Building Services Supervisor with the
duties of managing the software, running reports, and assisting other users with
the system in order to ensure sufficient backup and prevent burnout.
2. The City's intent is to replace Springbrook with another FMIS within the coming
two to three years. When this occurs, the Department should petition the Finance
Department to ensure that the selected system is compatible with Accela and can
be integrated to eliminate the need for duplicate data entry.
Providing the Building Services Supervisor with a knowledgeable Accela management
backup position will lighten that position's workload, help to prevent burnout, and ensure
that system knowledge remains within the organization. Planning ahead to eliminate the
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need for workarounds entirely when Springbrook is replaced will position the Department
to become more accurate and streamlined as the technology used for community
development and financial management evolves over the coming years.
Recommendation 25: The Department should designate a second position as an
Accela power user and require that the management responsibilities of that system
be shared.
Recommendation 26: The Department should ensure that the system which
replaces Springbrook can be integrated with Accela to eliminate the need for
duplicate entries.
(5) The Department Should Monitor Inspectors' Workload and Aim to Limit
Inspection Stops to Fifteen Per Day.
To ensure that inspections staffing is commensurate with the workload required and that
the Department can continue to provide a timely level of service, the number of stops
made by building inspectors each day should be monitored. Typically, inspectors'
workload should require no more than 12-15 stops per day. Multiple inspections may be
completed at each stop, but the number of individual addresses inspected should not
exceed this level in order to ensure work quality and prevent burnout.
In Tigard, most inspectors average 10-15 address stops per day, but staff commonly
exceed 15 stops per day. The busiest inspector averages 16 per day, and 23% of all days
have more than 15 stops. The following chart shows how many inspection days over the
course of a year days entailed a reasonable number of stops and how many exceeded
the recommended limit. An inspection day is defined as a count of the unique addresses
visited by a single inspector on a given date.
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80
ca
D
= 60
0
Q 40
N
C
0 20
C
� 1U 0
2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25+
Number of Address Stops
As the graph shows, most days involve 15 or fewer stops, and the number of inspection
days trails off for heavier workloads of more than that. The most common number of
inspection stops per day is 14. However, inspectors made 16 or more stops in 2018 on
282 occasions, and 95 of those occasions involved 20 or more stops for a single
inspector.
While these figures may suggest that staffing should be adjusted upward to meet
workload demand, it is important to consider the following points:
• Many of the building inspections performed by inspectors are for subdivision
homes, where the elements to be inspected are fairly uniform and the addresses
are very close to each other (walking distance, in many cases).
• Despite apparent heavy workload, the Department's inspectors successfully
conducted 99.5% of inspections within 48 hours of receiving the request.
With these points in mind, the Department should monitor inspector staffing levels and
make future adjustments if the level of service suffers (inspection response time is a
recommended performance measure) or staff overtime levels become burdensome.
Recommendation 27: The Department should monitor inspector staffing levels to
ensure that they remain appropriate for the required workload.
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(6) The City's Standard Conditions of Approval for Land Use Permits Should be
Maintained in an Online Library.
The conditions of approval used by a city are crucial components for issuing land use
permits, and planning staff must be familiar with the standard conditions used in their
jurisdiction. It is important that the standard conditions of any city remain consistent from
application to application, in order to ensure a uniform quality of plan review and
development.
The best way to promote consistent and standardized conditions of approval for land use
applications is to maintain an online library or database which can be updated when
necessary and used as a common point of reference for staff. Currently, the City of Tigard
does not have its standard conditions in a digital library; instead they are included as part
of a template which staff use to develop written opinion/decision documents. While useful
in the context of developing these documents, the City's standard conditions should be
maintained in an online library.
Using a shared digital format for standard conditions of approval allows them to be
updated as necessary, and all planning staff can be assured that they have instant access
to the most recently updated version of the document. It also allows them to be shared
with the public through the City's website. In this format, the standard conditions become
a living document, useful to staff and stakeholders.
Recommendation 28: The Department should maintain an online library of standard
conditions of approval for land use permits, which is shared with staff and the
public.
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5 Finance and Information Services
The following chapter focuses on the City's Finance and Information Services
Department, addressing opportunities for improvement in the Information Services,
Finance Administration, Finance Operations, and Contracts and Purchasing Divisions.
Utility Billing is a part of the Department; however, it was not reviewed or assessed as
part of this report.
The following table shows a summary of the Department's operating budget for FY17
actual, FY18 revised, and FY19 adopted.
Division FY 17 FY 18 FY 19
Actual Revised Adopted
Finance Administration $398,079 $561,441 $488,493
Financial Operations $603,711 $757,014 $772,116
Utility Billing 1,094,993 1,258,484 1,205,191
Information Technology $2,505,621 $2,173,801 $2,286,373
Contracts and Purchasing $213,707 $221,778 $229,751
Total $4,816,111 $4,972,518 $4,981,924
The overall budget for the Department remained relatively flat from FY18 revised to FY19
adopted, with total expenses of $4,972,518 in FY18 and increasing only 0.19% to FY19
at $4,981,924. During that same time the budget for Finance Administration dropped by
13%.
DEPARTMENT STRENGTHS
While this chapter focuses on potential improvements that the Department can make, the
following points should be noted as particular strengths of the Department in the functions
reviewed as part of this study. The City's finance department is staffed at a level that
otherwise might be found in a smaller sized city. With limited available staffing resources,
Finance staff are doing an excellent job. There are many more positive attributes to the
Finance and Information Services Department, but some of the noteworthy strengths
include:
• The City utilizes a GIS steering committee to assist with entity-wide implementation
of GIS-related services and technology.
• City employees receive ongoing training in online security procedures.
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• The City has a multi-year Capital Improvement Plan (CIP) that includes enough
comprehensive data so that elected officials can make informed decisions.
• The City uses a P-card/credit card program that provides financial incentives to the
city and there is a policy in place for the cards' use.
• Written policies and procedures are in place for critical financial processes and
finance staff are cross trained to perform critical processes.
• The City uses long-term financial forecasting models including annual contingency
funding.
• The City has been able to maintain at least a 16.67% General Fund reserve.
• The City has a centralized contract monitoring system in place to allow for better
oversight of City contracts to help ensure compliance with legal requirements.
The following sections address changes to technology, organizational structure, and
operational practices which the Department should make in order to become more
efficient, responsive, and data driven.
1 Finance Administration
Finance Administration is responsible for preparing/coordinating the City's annual budget
process, long range financial planning, financial analysis, completing an annual 6-year
Capital Improvement Plan (CIP), issuance of business licenses, managing the city's
investments, management of the issuance of debt, and development of financial policies.
This study did not involve a thorough assessment of internal controls; however, an initial
review revealed that if finance staffing levels were increased, more could be done to
strengthen controls. Staffing levels in the Department have remained static for the past
nine (9) years, with the same number of FTEs authorized since 2010. With existing
workload statistics and a need to ensure strong, modern internal controls, there is an
inherent risk for the potential of fraud, waste, or abuse.
The City should not drop staffing levels in finance and if they were increased, residual risk
related to internal controls could be improved. The ability to implement additional internal
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controls, as mentioned later in this chapter, and the ability to provide timely reviews of
financial documents, are affected by an organization's finance staffing levels.
Analysis of the Finance Administration Division operations revealed several strengths.
These include, but are not limited to:
• The division publishes a budget calendar with clear deadlines and this calendar is
communicated with employees responsible for completing budget documents.
• The City's capital improvement plan (CIP) includes six-years'worth of projects and
within the plan for each project there is a project name, project description, project
location, funding source, and budgeted amounts for each year of the project.
• The Finance Department has adequate policies in place that provide staff with
guidance on City financial operations.
• The City employs long-term financial forecasting (10-years) and this data includes
estimates for various reserves (emergency, cash, and service level), revenues,
and expenditures. This data is provided in numeric format with appropriate visual
displays, including trendlines. The City averages 4.2% contingency funding across
general fund departments.
As mentioned previously, City Finance staff are doing a great job with their limited staffing
resources. Any discussions in this report related to internal controls are for the purposes
of "risk" only and they do not in any way imply or suggest any actual wrongdoing.
Increasing staffing levels in finance can help reduce inherent internal control risks (those
found in any local government organization of similar size and with similar finance staffing
levels).
The sections below discuss areas where the finance administration division has
opportunities to improve its level of service even further.
(1) The Finance Department Can Benefit from the Ability to Perform Regular
Financial Analytics to Ensure Compliance with Policies and for Internal
Control Purposes
With adequate time to perform analyses, there are several financial calculations that can
be performed with basic spreadsheets to detect financial policy violations or potential
issues related to expenditures. The use of data analytics to detect fraud can be an
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effective measure to protect an organization. The use of horizontal analysis, vertical
analysis, Benford's analysis, and duplicate testing are all viable means to detect possible
inappropriate items within the thousands of financial data fields seen in most municipal
government operations.
With adequate time, finance staff could proactively and regularly run analytics to look for
missing data fields in vendor files, missing data fields in accounting entry fields, verify
even dollar amounts, check for duplicate voucher payments, and even perform data set
matching analysis with vendor to vendor files or vendor to employee files. At least
quarterly and if time permits, staff could run a Benford's analysis on entire data sets to
uncover predictable patterns often associated with fraudulent invoices.
The ability to perform these functions is often limited only by staffing levels and time to
perform them. The project team noted that the City of Tigard's finance staff do an excellent
job in their efforts; however, they are limited in their ability to do more proactive work by
existing workload and current staffing levels.
Type of Analysis Method Benefits
This method compares Can detect items with a
financial statement items significant percentage
Horizontal ratios or line items over any change between periods
of a number of accounting that could warrant
periods. additional investigation.
This method compares
relationships between Can detect increases in
financial components of the spending that warrant
Vertical same time period. Items further investigation that
are expressed as might not otherwise be
percentages of a whole and visible to the naked eye.
compared between
periods.
This method compares
large data sets by
assigning expected values
to each number(0-9) in an Can detect fraudulent
Benford's invoice amount and invoices when someone
comparing the expected makes up billing numbers.
number to the actual
number found in the data
set.
This method searches for Can detect if a payment to
Duplicate duplicate payments of a vendor was made more
invoices.
than once for the same
service.
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Recommendation 29: With appropriate staffing, the Finance Department should
perform regular data analysis on its data to help detect any financial irregularity or
non-compliance with financial policies.
(2) The City Should Ensure Adequate Employee Cross Training for all Finance
and Information Services Critical Functions
Conflicting information came from employee interviews as to how often they were
required to perform cross-trained work for other employee critical functions. It was clear
to the project team that financial management staff value the importance of cross training
employees to perform critical functions of other staff members; however, limited finance
staffing levels make it challenging to ensure there are adequate back up staff to perform
the essential functions of other positions.
Adequate staffing levels and cross training are important since if the only person who
regularly does payroll is out and the one person who infrequently performs as that
person's back up is also unavailable, the vital function of paying employees on-time could
be disrupted. Even if the backup is available, it is important that this person perform the
backup task with some degree of regularity to ensure they can properly complete the
tasks. They almost certainly will not perform the tasks as efficiently as the person who
regularly does it, but with required training and having to complete the work at least twice
annually, they should be able to handle the function when called upon.
Multiple positions within finance divisions have critical functions that must be performed.
When employees are trained in how to perform work for other areas not specifically within
their normal realm of responsibilities, it allows employees a better opportunity to
collaborate together when issues arise. Employees can feel better motivated if they
believe they are contributing to the overall good of the organization and when they know
that their work is valued (they are the back up for a critical function in another area),
positive benefits for employee morale can occur.
The overall benefits of cross training revolve around it being a good return on investment
for the organization. This includes increased employee efficiency when someone is out
of the office (rather than grinding to a halt, things continue on — even if not as thoroughly
as with the person who normally performs the work). Additionally, the organization has a
greater ability to build important succession planning skills into several employees.
One of the important factors with cross training, especially with finance-related functions,
is the person who acts as someone's backup should be required to perform the function
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at least twice annually. By requiring a backup employee to handle payroll, or pay invoices,
it allows that employee to learn the process by actually doing it on a somewhat regular
basis (with the person who regularly handles the function nearby to answer questions).
There is a greater chance the job will be done correctly by the backup employee when
the person who regularly handles it is out and unavailable, if the backup employee
performs the function with some degree of regularity (at least twice annually) with the
trainer nearby. Additionally, if each critical task someone does, has two different backup
employees who can perform them, that is even better.
Recommendation 30: Provide cross training so that critical functions for each
finance position have at least two people who can complete them and require the
employee performing the critical task as a backup to complete the function at least
twice annually.
2 Finance Operations
Finance Operations is responsible for all day-to-day financial and budgetary requirements
for the city. This includes preparation of monthly financial reports, pension fund assets,
debt management, recording of cash receipts, accounts payable and accounts receivable
functions, capital assets, inventory recording and reporting, project cost tracking,
preparing the City's Comprehensive Annual Financial Report (CAFR), grant accounting,
payroll services, maintaining the General Ledger, and monitoring all city funds. This
division also oversees the annual external financial statement audit.
Some of the many strengths observed in the Finance Operations division include:
• Finance staff receive annual training and professional development.
• Monthly budget-to-actual reports are prepared and sent to Departments.
• All disbursements are supported by adequate documentation.
• Invoices are reviewed and approved prior to payment.
• Accounts payable are processed in sufficient time to take advantage of discounts
and to not pay penalties.
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• Changes to payroll require written authorization and can only be completed by
limited personnel.
• Deposits are made daily and bank reconciliations occur monthly.
• The City accepts online payments for services.
The sections below discuss areas where the finance operations division has opportunities
to improve its level of service even further.
(1) Completing an annual fraud risk assessment
As mentioned previously, there is no indication of any actual incident occurring or having
occurred in the City. This recommendation addresses a best practice from the National
Association of Certified Fraud Examiners.
An annual fraud risk assessment is not associated with any particular known fraudulent
scheme but rather a means for the city to use its own senior staff to assess its
occupational fraud risks, to discuss ways in which misconduct can occur, to determine
the likelihood it could occur based on existing controls, to determine how significant it
could be to the organization, if something happens (in terms of both financial and
reputational harm), and to identify areas in which additional controls might be appropriate
(or conversely, existing controls are no longer necessary).
At the completion of the assessment, staff are left with more knowledge on how they can
better protect organizational assets and what can be done to improve preventive or
detective controls. Areas of high probability or high significance should be addressed by
the city's senior management team to determine if any additional controls can further
mitigate risk of occurrence or increase the likelihood of detection.
It's important to communicate with the assessment team that these risks are generalities
and not specific to any particular employee. They are known areas of risk that have
occurred elsewhere, and the City is simply trying to mitigate their own inherent risks that
something could occur locally.
Fraud risk assessments should be conducted with as many senior staff as possible in the
room at the same time. With someone facilitating the discussion, senior staff members
are updated on known incidents in other municipalities with information on how those
incidents occurred. Senior staff members then discuss risks specific to the City of Tigard.
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The facilitator then ranks each general risk from 1-5 (probability of occurring with 5 being
most likely, and significance if it occurs with 5 being very significant). Significance should
include both financial loss and the risk to reputational harm. Those two numbers are
multiplied together to get the fraud risk rating for that particular risk. The higher the
number, the greater the risk to the City and the more attention that should be paid to
mitigate that risk.
Recommendation 31: Complete an annual fraud risk assessment.
(2) The City Should Regularly Conduct Management Audits of Purchases for
Internal Control Purposes
There are numerous other municipal organizations that have experienced purchasing
schemes. By conducting random and unannounced verification checks of purchases, it
serves to not only detect something that might be amiss, but even more so it provides for
an excellent deterrent against misconduct. The City currently checks anything that
appears suspicious and there are regular quarterly audits of purchasing cards; however,
management audits of purchases offer even more protection.
To perform this function, finance staff would sample a certain number of invoices each
quarter (ideally each month) and then track down the item to ensure that it is used, or was
used, for official city business. Once the item is confirmed, finance staff call the vendor's
accounts receivable department to verify the amount on the invoice the city has is the
same amount the vendor shows. The latter is verified because one particular fraud
scheme involves ordering supplies, receiving them, having the finance office pay the
entire invoice, and then shipping back a portion (or all) of the goods while having the
refund check sent to another location (so the involved employee can intercept it). Unless
someone calls a vendor to verify there weren't any returns and verifies the correct "final"
amount to be paid, this type of scheme can occur. If there are any discrepancies between
the amount the City actually paid and the amount the vendor says should be owed, then
an investigation is warranted.
Performing regular management audits of purchases not only assists with identifying any
irregularities, but more importantly it serves as an excellent deterrent for asset
misappropriation. Existing staffing levels will make it difficult to implement this
recommendation.
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Recommendation 32: Management should conduct regular audits of purchases to
detect and deter asset misappropriation.
(3) Payroll Services
The City of Tigard pays employees every two weeks, or 26 times annually. As discussed
in a prior recommendation, there should be more than one backup employee trained to
handle this critical function.
Two issues identified during the project team's review of payroll services were a lack of
verification of payroll changes in the system and nobody assigned to verify wage
garnishment data prior to payroll being issued.
Wage garnishments are entered by a single person without subsequent verification. The
only way to know whether something was entered incorrectly is if the person whose pay
was garnished, knows the exact amount that was supposed to be withheld and confirms
that it was correctly entered. Because of the importance of handling garnishments
correctly, there should be a second employee to verify all wage garnishment entries into
the payroll system. The employee who currently performs payroll backup is
recommended.
Payroll fraud has been identified in many other local governments. If the person entering
payroll ever wanted to change a pay rate, they can create a fraudulent payroll
authorization form (PAF), make the change, and then if the annual auditor (or anyone
else) checked, they would see the "approved" PAF and think everything is legitimate.
The current practice for adjustments to the payroll system includes a supervisor approving
a salary adjustment, human resources approving the change, and then the city manager
has the final approval. Once fully approved, the paperwork is delivered to payroll who
makes the changes. There is nobody to confirm the amount authorized in the change was
entered correctly by the payroll employee. Without a verification process, there is risk that
there could be fraudulent entries or honest mistakes made.
If the City's payroll system allows for automatic notification to others anytime a change is
made, the project team recommends the Accounting Supervisor be automatically notified
anytime a change is made to someone's payroll data (salary, withholdings, benefits
changes, etc.). An additional reason for this recommendation is that the person entering
payroll can change rates back and forth throughout the year if they believe nobody will
check and if an audit happens, hopefully the check with the fraudulent amounts isn't
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audited. Automatic notifications allow the Accounting Supervisor to question anything
unexpected.
It is important to reiterate that all discussions related to internal control risk are inherent
risks to local government operations and in no way are indicative of anything related to
any particular employee.
Recommendation 33: Determine if automatic notification of payroll changes is
possible within the City's payroll/financial software system.
Recommendation 34: The City should assign a second employee to provide
verification checks of garnishment data entered into the payroll system.
(4) Capital Asset Management Software Should Fully Integrate with the City's
Financial Software System
Finance employees track capital projects, capital project funds, and fixed assets.
According to interviews, the system(s) currently used might not integrate well and thus
there could be challenges with finance staff's ability to do their work as effectively as
possible. The inventory for capital assets is through Springbrook and MaintStar is not
regularly reconciled with Springbrook.
Many cities use software programs that allow them to maintain records of all infrastructure
components, integrate this inventory with their GIS systems, create preventive
maintenance calendars, assign work orders to assets and update/track their status, and
generate reports, all while integrating with the City's financial software in a seamless
manner.
Tigard's financial software should seamlessly integrate with its asset management
software. The table below identifies essential functions that are important in an integrated
fixed asset/asset management/financial system:
Essential Function Description/Explanation
Asset Management The software should allow the City to upload a completed listing of
infrastructure assets and integrate with fixed asset financial software.
Lifecycle Costing The software should allow each asset to be assigned a construction or full
replacement cost, as well as an anticipated lifecycle and depreciation
schedule. This information is vital for capital budgeting.
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Essential Function Description/Explanation
GIS Integration Most systems available are compatible with Esri ArcGIS,which means that
each stationary infrastructure asset can be assigned a specific location in
one of the public works GIS layers. The City's software should allow this
capability so that the geographical location of any asset can be quickly
searched, and GIS layers can display information about, and link to, the
assets populating them.
Work Order Management The software should be able to manage a work order system which
provides the basis for a Department-wide preventive maintenance
program, detailed reporting, and staffing allocations. This information
should integrate with financial software.
Reporting The software should be able to produce detailed reports from the work
order system, as well as the program's asset management and financial
software modules. Examples of reports may include a) the total
depreciation of sidewalks over a selected time period, b) the total
maintenance and replacement cost of signs in FY 2017, or c)the total labor
hours spent on non-routine maintenance of vehicles over the past 18
months.
Recommendation 35: The City should ensure that its asset management system
fully integrates with its financial software system and has the capabilities
necessary to foster an efficient, transparent, and data-centric approach to fixed
asset management.
3 Contracts & Purchasing
Contracts & Purchasing is responsible for processing purchase orders; creating,
processing, and compliance with bids and requests for proposals (RFP), informal
requests for proposals (IRFP), invitation to bid (ITB), requests for qualifications (RFQ);
and for writing the associated bid or RFP contracts.
There are currently one and a half (1.5) FTEs in purchasing with one employee also
performing back up functions for utility billing, payroll, business licensing, and cash
receipting. There is a vacant position for this workgroup and if filled, it will bring staffing
levels up to a more effective 2.5 FTEs.
Some of the strengths observed by the project team within the Contracts and Purchasing
division include:
• Purchasing thresholds and policies have been established.
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• The City uses electronic purchase requisitions and purchase orders to streamline
the procurement process and to help mitigate risk of noncompliance to
purchasing policies.
• The City uses a P-card/credit card program with a rebate or other financial
incentive.
The section below identifies an area where the contracts and purchasing division has
opportunities to improve its level of service even further.
(1) The City Should Proactively Research and Seek Buying Discounts in
Addition to State Bid Discounts
The following table shows workload statistics for FY18 for the number of purchase orders
processed, the dollar value of those purchase orders, and the number of requests for
proposals, requests for qualifications, invitations to bid, or informal requests for proposals:
Contracts & Purchasing FY18
#of Purchase Orders Processed 144
Dollar Value of Purchase Orders $7,690,725
# RFP/IRFP/ITB/RFQ's issued 37
Additional responsibilities of this function include issuing purchase cards to city
employees, processing requisitions, writing and monitoring certain city contracts, auditing
travel expenses quarterly, and auditing purchase cards quarterly. This position also
serves as the backup for utility billing, business licensing, cash receipts, and payroll.
With only limited employees to handle contracts and purchasing workload, there may be
inadequate time to regularly and proactively seek out buying discounts that might be
available for upcoming city purchases. The City is able to take advantage of state
discounts already pre-negotiated; however, if workload and time permit, more proactive
efforts toward seeking other buying discounts could prove beneficial.
Recommendation 36: With available time, the City should proactively research and
seek buying discounts in addition to State bid discounts.
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Information Services
Information Technology is responsible for all central computer operations for city
departments, helpdesk functions of PC management, planning and developing new
systems, troubleshooting, installation, and maintenance of the city's network
infrastructure — including switches, cables, and servers, supporting system design and
programming services, maintaining the city's phone and voicemail systems, managing
the City's GIS system including data integration from various city departments for use by
employees and the public, and supplying necessary employee training for software
applications.
Throughout the analysis of the Information Services Division, the project team noted
numerous strengths. Some of those strengths include:
• Information Services not only completes an annual customer survey to identify
service levels and technology satisfaction, they complete these surveys daily.
• Information Services enforces password security including periodic changes to
employee passwords with character restrictions.
• Information Services expenditures as a percentage of the city budget are
between 2% and 3% (2.78%).
• Information Services uses helpdesk tracking software to ensure timely responses
to needs and to identify areas in which overall improvements can be made.
The sections below discuss areas where the information services division has
opportunities to improve its level of service even further.
(1) The City Should Install and Operate Adequate Software to Monitor IT Logs
and Detect any Attempt at System Intrusion
There have been many recent incidents of someone attempting to hijack a municipal
organization's server system and then demand a "ransom" in order to release the system
controls back to the local government. One of many recent examples is a Florida City that
was forced to pay almost a half a million dollars because someone gained complete
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control over their server system. Lake City, Florida recently paid $460,000 as a ransom
to regain control over their computer systems6.
The City of Tigard does not currently have in place a system to monitor and identify any
attempts of unauthorized server access — a system that would automatically notify the
City's Information Technology personnel if an attempt were made. Without such security
systems in place, the City is at increased risk of losing access to its computer systems.
Recommendation 37: The City should install and operate adequate software to
monitor IT logs and detect any attempt at system intrusion.
(2) GIS Operations Analysis
The City of Tigard clearly places a high value on GIS services as several staff perform
GIS-related functions and a GIS Steering Committee in place. GIS employees are
responsible for managing the GIS program, GIS data analysis for mapping requests, GIS
system maintenance, programming GIS software applications, managing GIS system
automation, GIS data maintenance, data editing and data configuration, processing all
GIS mapping requests, and ensuring proper application of the city's entire GIS
architecture.
A city's ability to utilize GIS-related services in each of its departments is dependent on
both GIS staffing levels and the desire of individual department directors to explore the
potential of what GIS can offer them. Departments that implement GIS services often find
they have a better ability to use spatial analysis of their existing data to improve their
decision-making abilities.
At present, the City of Tigard GIS staff track their work within a workorder system. The
GIS staff currently maintain approximately 200 different GIS data layers for multiple
departments and GIS staff proactively show departments ways in which GIS can help
them make better decisions once a year or once every two years.
More staff time dedicated to proactively working with different departments on
implementing new GIS-related projects could help those other departments better
understand the value GIS mapping can offer. A proactive and positive way to introduce
6 httos://www.nytimes.com/2019/06/27/us/lake-city-florida-ransom-cyberattack.htmI
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new GIS technology abilities is for GIS staff to meet with department managers at least
semi-annually in an effort to design at least one GIS program for that department.
While several departments (public works included) utilize extensive GIS services, not all
departments utilize GIS services as thoroughly. GIS staff allocating at least 10% of their
annual available time to making presentations and working on new projects for
departments that do not extensively use GIS services, should prove beneficial. The City's
GIS Steering Committee should be responsible for monitoring progress toward achieving
this recommendation.
Recommendation 38: The City should ensure GIS staff spend at least 10% of their
time working to proactively introduce GIS technology into every department in the
city.
(3) The City Should Create an Information Technology Steering Committee
The City currently has a GIS steering committee in place to help guide GIS services,
goals, and objectives for the City; however, no such steering committee exists for
information technology services.
A best management practice seen in many cities is when they have an information
technology steering committee in place. This committee is tasked with assisting with IT
strategic planning efforts, providing input on major IT projects, and assisting with
recommending the allocation of IT resources. The Finance and Information Services
Director still maintains full control and authority over IT personnel and activities; however,
the steering committee allows senior staff from multiple departments to provide valuable
input into the direction of the city's IT resources.
Recommendation 39: The City should create an information technology committee
that meets at least quarterly.
(4) The City Should Implement Necessary Policies and Procedures to Ensure its
Internal Phishing Campaign has a Clickthrough Rate of no more than 5%.
Discussed in a prior recommendation was the need to increase IT security. As part of that
overall effort, reducing the City's internal phishing campaign clickthrough rate to no more
than 5% is important.
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The City uses an internal phishing campaign, which is excellent; however, statistics on
the clickthrough rate shows it to be at 50%. Scammers will often introduce computer
viruses or other threats to a city's IT systems through links created in emails or
attachments to emails. An employee who clicks a link in an email or opens an attachment
might inadvertently introduce a virus into the city's computer system —which could cause
incredible financial, operational, and reputational harm to the city.
With a city-sponsored phishing campaign, the city proactively sends emails to employees
to record whether that employee clicks on a link or opens an attachment. One example
is the City sending an email that says something like "Congratulations, you won a free
pizza. Click here for your free coupon". The email shows up in the format of a coupon and
in the name and color scheme of a known pizza company. Regardless of the type of
email sent, the City's tracking of how many people "click" (the clickthrough rate) on a link
or open an attachment compared with the total number of people who could possibly click
shows a 50% clickthrough rate. Best management practices strive for no greater than a
5% clickthrough rate.
Cybersecurity awareness in general is vitally important for the City. At present, there is
no policy restricting when someone can click a link they receive via email. With a 50%
clickthrough rate, that is indicative of employees who either do not take seriously the
threat of cybersecurity or they do not fully understand the risks that exist. With such a
high clickthrough rate and the knowledge that city employees are professionals who care
about their work, it is more likely that cybersecurity is not on their minds.
The City should implement more cybersecurity awareness training as it strives to achieve
an internal phishing campaign clickthrough rate of no more than 5%. This can be
accomplished through policies, employee disciplinary action for repeated incidents of
clicking on links, and through more cybersecurity awareness training.
Recommendation 40: The City should reduce its internal phishing campaign
employee clickthrough rate to no more than 5%.
(5) The City Should Increase Information Systems staffing by one (1) FTE.
One of the best management practices seen by the project team in high performing public
sector IT departments/divisions across the country is that the ratio of IT staff to total city
staff is between 2% and 3%. Excluding GIS staff members, the City of Tigard's IT staffing
levels of five (5) employees represents 1.74% of total City FTE's (286.3). This is below
what the project team expects to see in a high performing IT division.
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Workload statistics for IT personnel show they respond to approximately 4,500 IT service
tickets annually. Depending on the time requirements to service and complete a ticket,
the City's current IT staffing levels are questionable as to their adequacy. Current time
frames for responses to tickets are four (4) hours for urgent matters, eight (8) hours for
priority matters, and four (4) days for regular matters.
Staff burnout is a concern. There were approximately 261 working days in 2018 and with
4,477 IT service tickets, that equates to an average of 17.15 IT service tickets each day
the City is open throughout the entire year. Some tickets likely take only a few minutes to
resolve; however, others likely take considerable time and effort for one or more IT
employees.
The following chart displays 2018 workorder ticket data, the number of working days in
the year, and the average number of tickets per working day:
2018 IT WORKORDER / TICKET WORKLOAD
261
44.77
17.15
WORKING DAYS WORK ORDER TICKETS (IN TICKETS PER DAY
HUNDREDS)
With IT services and solutions being an integral part of municipal government operations,
to reduce the risk of IT employee burnout, and to achieve the best management practices
ratio of 2% to 3% of IT employees to total city employees, the City should hire one (1)
additional FTE in an IT support position. Hiring one additional employee into an IT support
position will mean there are six (6) IT employees out of what will now be 287.3 FTEs,
representing 2.08% IT FTE's to total City FTE's.
Recommendation 41: The City should hire one(1)additional FTE into an IT support
position.
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6 Library
This chapter of the report provides the project team's evaluation and analysis of the
organization and operations of the Tigard Public Library. Our analyses focused on Library
service and staffing issues. The section, that follows, provides a brief descriptive
summary of the Library.
1. Summary of the Tigard Public Library
The Tigard Public Library provides a wide variety of patron services including, the various
collections in the Library; reader advisory services for adults and youth; various programs
for adults and youth; references services; as well as all of the internal services associated
with keeping a public library open and serving patrons and visitors.
Service Area Service Indicators Service Area Service Indicators
Overall Total holdings—229,774 Collection and Circulation of books, audio
Indicators and digital collections. Circulation visual and other materials.
• There are 30,961 Total circulated in 2017-18
registered borrowers. was 1.22m.
• 69 service hours per week An estimated 343,056 Library
and 7 days per week with visits in 2018.
9pm closings on An estimated 19,750
weeknights. volunteer hours—9.5 FTE
equivalent.
Children's Children's programs and Young Adults Extensive programs and
collections. collections for young adults.
• In 2018 there were 561 In 2018 there were 51
children's programs with children's programs with 698
18,255 attendees. attendees.
Technical Responsible for Reference Responsible for developing
Services acquisitions and and maintaining the
processing of library Reference collection.
materials. In 2018 answered an
• Responsible for cataloging estimated 29,967reference
and classification of library questions from patrons.
materials. Oversees the delivery of
• Responsible for care and services, both print and
repair of library materials. electronic data.
• 79 computer workstations
(avg. 596 hours of use).
Outreach Extensive outreach to pre-
schools, schools and for
memory care seniors.
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The Tigard Public Library's $6.2m budget is funded through a combination of sources —
but mostly City (41% of the total budget) and the Washington County Cooperative Library
Services (almost 59% of the total budget) funds.
The Tigard Public Library is served by a staff of 50 full and part time personnel for 39.7
FTEs in total.
In addition, as noted earlier, paid staff resources are supported by an extensive cadre of
volunteers who last year provided about 19,750 hours to the Public Library, equivalent to
9.5 FTEs in effort.
The organization of the Library is shown on the following page.
2. Assessment of the Tigard Public Library
The project team has developed an assessment of the Tigard Public Library against `best
management practices' in library services. This assessment and the performance targets
underlying it are based on the firm and project team's experience evaluating library
services across the country. As a result of this assessment, there many positive features
regarding Tigard's Public Library which are summarized below. Additional details on this
assessment are provided in the technical appendices to the report.
(1) Positive Features of the Tigard Public Library
• The Library developed a 5-year plan in 2015— `Tomorrowland: The Future Belongs
to Dreamers and Doers'. There are 3 goals and 9 objectives, all of which are
specific and measurable.
• The Library extensively monitors performance consistent with the measures
tracked by the Oregon State Library.
• In spite of the fact that the percent of the service population who are cardholders
is below target (48% for Tigard versus 65% for the target), at over 36 items per
cardholder, Tigard patrons actively use library resources (not counting
electronically circulated items).
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Library Director
Executive
Assistant
.. . :
A=
Su.. ® Supervisor. Supervisor.
Librarian(4 @ _ Sr Librarian(1) Librarian(1) Sr Library Asst
Librarian(5 @ L Libra Asst(7 Libra sst(7
• New physical items were 12% of the collection last year, compared to the target of
5%. Again, this does not include e-resources.
• The Tigard Library is a member of the Washington County Cooperative Library
Services (WCCLS) which shares collections.
• At 69 hours per week, the Tigard Library is accessible to patrons. Moreover, the
Library is open seven (7) days each week and until 9 PM on weeknights.
• Reference questions can be asked via the phone, email or chat online
(Answerland).
• Reference collections are located in adult and in youth services sections; reference
questions are answered in both areas (in fact, in the latter, in both, the Children's
Desk and the Teen Scene Desk).
• The Library conducts annual surveys. In addition, the Library develops quarterly
program evaluations which survey patrons on specific topics (e.g., summer reading
interests).
• The Library is effective at outreach and marketing as well as the use of social
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media to inform the public about Library programs, services and special events.
• Volunteer contributions are critical to the Library. Approximately 170 volunteers
support the Library each month, totaling over 19,000 hours in the last fiscal year
(equal to 9 FTEs). The roles are varied in circulation, readers' and technical
services. A volunteer coordinator recruits, trains and provides oversight to
volunteer support in the Library.
These are major positive features for public library today. Many comparably-sized
libraries struggle to field the service hours, programs and services that Tigard has as its
foundation. The contributions of volunteers are one key—their contributions free up staff
for critical tasks like program and collection development.
Staff, too, are highly experienced and dedicated to the service commitments of the
Library. The following points underscore this from the employee survey:
• Almost 45% of staff have worked with the Library for over 11 years.
• About 72% of Library staff point to the teamwork involved to make the Library a
success for the community.
• Almost 95% of Library staff feel empowered to use their judgment to improve
programs and services.
• A similar percentage of employees felt that they do an excellent job planning
services. Moreover, about 97% of employees believe that management have a
clear strategic direction.
• About 87% of employees want to make a career of working at the Library.
These attributes have supported the delivery of high levels of service to the community.
The following points underscore this from the employee survey:
• Over 90% of employees believe that they provide a high level of service to the
community.
• A similar percentage of employees believe that work quality is important.
The project team's analysis of the programs and services offered by the Tigard Public
Library supports current staffing allocation at the service hours or operation and programs
offered. The community survey clearly underscored the value of library services to people
who responded — it was consistently among the highest rated services.
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2. Analysis of the Staffing and Operations of Tigard's Public Library.
This section provides an analysis of the staffing, operations, programs and workloads of
the Tigard Public Library.
(1) The Project Team Conducted a Survey to Compare Library Services in the
City of Tigard with Other Libraries in Oregon.
The following subsections show survey results for comparably sized libraries in Oregon.
It should be noted that there is no attempt to make general comparisons of the cities, only
to examine practices in communities in the State which are roughly the same size as
Tigard. The communities chosen have been consistently utilized in this study. The Oregon
State Library publishes an annual summary of comparative statistical data for all libraries
in the State which facilitates the consistent comparison of libraries. The most recent report
for FY 2017-18 was used in this assessment.
(1.1) Service Cost Characteristics Show Tigard in the Middle of the Range in
Comparably Sized Libraries in the State.
The table, below, compares the Tigard Public Library to other libraries compared to in
Oregon in terms of financial resources and expenditures. Key characteristics of this
information include:
• In terms of total per capita expenditures, Tigard's Library is the among the highest
of the comparison cities — it is the highest in dollar total and the seconds highest
on a per capita basis.
• In terms of the ability of each library to `keep itself current' in terms of acquisitions
of books and other materials, Tigard is also in the upper end of the range. At$6.96
per capita, Tigard's collection renewal budget is only exceeded by Lake Oswego.
Oregon JL
Albany Oswego City
Population 52,710 42,386 59,585 64,089 31,875
Total Funds $2,676,622 $5,112,604 $2,348,861 $5,742,222 $2,163,366
Total Per Capita Exp. $50.78 $120.62 $39.42 $89.60 $67.87
Collection Expenditures $240,907 $416,490 $190,160 $445,933 $242,909
Per Capita Collection Expend. $4.57 $9.83 $3.19 $6.96 $7.62
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(1.2) Holdings Show Tigard in a Narrow Range in Comparably Sized Libraries in
Oregon, Though It Is the Highest in Number of Holdings.
The table, below, compares the Tigard Public Library to other libraries compared to in the
State in terms of library `holdings' (or total collection size). Key characteristics of this
information include:
• In terms of the number of library holdings, a general indicator of public support, the
Tigard Public Library is the highest of the comparison group.
• Expressing holdings on a per capita basis, all of the libraries reporting are
comparable (within about 10% high to low).
�ITTIITTME• ..
Population 52,710 42,386 59,585 64,089 31,875
Total Holdings 177,769 159,088 49.395 229,774 110,318
Holdings/Capita 3.37 3.75 NR 3.59 3.46
(1.3) Staffing Levels Show Tigard in the High End of the Range in Comparable
Libraries in Oregon and Having the Greatest Contribution of Volunteers.
The table, below, compares the Tigard Public Library to other libraries compared to in the
State in terms of the staff and volunteer resources dedicated to library services. Key
characteristics of this information include:
• In terms of the number of total staff, the Tigard Library has the highest number in
the comparison group at almost 41 .
• Tigard has the highest number of service hours of the group, too. When expressed
on the basis of service hours, Tigard remains at the top of the comparison group.
• Tigard's use of volunteers also significantly adds to these resources — its 15,000+
hours in 2017-18 is almost 50% above the next highest total. Volunteer hours
converted to 8.4 FTEs in 2017-18, 17% of total hours.
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Lake Oregon
Albany Oswego city Tigard Tualatin
Population 52,710 42,386 59,585 64,089 31,875
Total Library Staff 21.2 33.7 14.9 40.9 24.15
Total Weekly Hours 54 65 56 69 65
Staff FTE Per Hour 0.39 0.52 0.27 0.59 0.37
Volunteer Hours 7,538 10,648 4,376 15,156 7,515
Volunteer FTEs 4.2 5.9 2.4 8.4 4.2
Volunteer FTEs/Total FTEs(%) 16% 15% 14% 17% 15%
• Previous year to that reported above.
(1.4) Service Characteristics Show Tigard at the Highest End of the Range Based
on a Number of Indicators.
The table, below, compares the Tigard Public Library to other libraries compared to in the
State in terms of various service characteristics. Key characteristics of this information
include:
• In terms of programming, the Tigard Library is at or near the top of the comparison
group for children's, young adults and adults — both in terms of the number of
programs and the number of participants.
• Circulation is also among the highest in absolute terms as well as expressed on a
per capita basis.
_J
Children's Programs 425 266 391 561 364
Children's Participants 16,058 9,970 15,294 18,255 15,274
Young Adult Programs 92 33 22 51 230
Young Adult Participants 501 345 166 698 2,488
Adult Programs 58 155 165 244 4,153
Adult Participants 1,436 17,983 2,910 4,153 1,736
Circulation 580,726 949,817 535,237 1,227,561 596,694
Circulation/Capita 11.02 22.41 8.98 19.15 18.72
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While there are many comparisons that can be made, it is clear that the Tigard Public
Library has the support and the participation of the community and in turn the Library
provides very high levels of service.
(2) The Tigard Library to Provide Very High Service Levels to the Community
Compared to Library "Best Practices".
The project team as part of this study of the City developed an analysis of the how library
(and other services) compared to `best practices'. Unlike the comparative analysis
provided in the previous subsections, a best practices analysis identifies the strengths
and improvement opportunities to standards developed by the Matrix Consulting Group
in its work with hundreds of communities in the Pacific Northwest and throughout the
United States. In this diagnostic assessment, the Tigard Public Library compared very
favorably to these standards as summarized by the table, below:
Meets Does Not
Best Practice/Operational Target Target Meet Target Comment
Overall Indicators
Cardholders as a percent of At 48%Tigard falls moderately
population exceed 65%. below the target.
Annual circulation per cardholder At over 36 items per
exceeds 12 per year cardholder, Tigard patrons
actively use library resources.
These counts do not include
electronically circulated items.
Proportion of collection replaced per New physical items were 12%
year exceeds 5%. of the collection last year.
Again, this does not include e-
resources.
Services coordinated with other Some coordination with
service providers in the City (e.g., recreation and with local non-
recreation services). profits with opportunities to
increase these efforts.
Collections of non-book materials, Extensive non-book physical
including archival/cultural materials, and virtual collections.
audio-visual materials, games
(computer and board games), Braille
materials, etc.
The Library leverages community The Library is supported by a
resources (private, not-for-profit, Foundation and Friends
Friends of the Library, etc.) to organization. There are,
supplement City funds? however, opportunities to
increase this support.
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Meets Does Not
Best Practice/Operational Target Target Meet Target Comment
Service Delivery
The Library is open at least 60 hours At 69 hours per week, the
per week. Tigard Library is accessible to
patrons.
The Library is open and available to The Library is open 7 days
the public during non-business hours each week and until 9pm on
and days. weeknights. However, the
Library should evaluate how
useful some later evening
hours are for patrons (visits
drop off significantly after
about 8pm).
Reference questions are offered Reference questions can be
online or on the phone. asked via the phone, email or
chat online (Answerland).
Programs designed to reach The Library offers programs
numerous target audiences (children, for children, young adults and
adults, seniors, etc.). Program adults on a near daily basis.
performance, quality and community
feedback is tracked.
Outreach efforts exist to get to Outreach efforts are targeted
audiences who cannot get to the toward schools as well as the
library (e.g., homebound services)? homebound. However, there
may be opportunities to
support specific segments of
the community (e.g., seniors).
Technology
The Library has extensive V The Library is substantially
investments in electronic media. invested in electronic media
(e.g., a-books and e-
databases). Three (3)
automated circulation
checkouts are also available
for patron use.
Public workstations have wait times Two hours of continuous use,
managed. per policy.
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Meets Does Not
Best Practice/Operational Target Target Meet Target Comment
The library has a long-term V While the Library is part of the
technology plan. City's overall technology
planning, the Library should
have a more robust plan
covering its specific needs.
A central webmaster is designated to The Library shares social
manage the content of the Library's media content among several
website staff with risks to consistency
and quality.
Marketing
The Library has developed a Marketing materials (both print
consistent brand for its and online—web and social
communications and marketing media) are not a branded with
efforts, including internet. a consistent look. Multiple
people are involved in social
media and web presence.
The Library utilizes social media V Yes, but content management
extensively for outreach. is decentralized.
This is an extensive list of positives for the Tigard Public Library.
3. Issues for Analysis
There can be management, staffing and service/programmatic issues even for the most
positive municipal functions and the Tigard Public Library is no exception. The project
team focused on the following:
• Until recently, there has been a leadership vacuum at the Library with the
Library Director on a leave of absence. The Library was without a dedicated
Director for over six (6) months. In the interim a collective leadership of Division
Managers ran the Library. While this approach allowed the Library to operate
effectively during the Director's absence the lack of a permanent Director was an
impediment to service planning and organizational development. Indeed, this was
the highest rated `improvement need' identified by Library staff in the employee
survey. In the past two months, however, a new Director was named from among
the Division Managers and this issue has been eliminated. However, there is much
to be done in the Library. In spite of the extremely high marks that employees gave
to the Library, interviews conducted during the intervening period showed that
there was much uncertainty about the future of the Library and its continued
success. Since `openness' is new to the Library, the new Director's focus has been
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and will be to build upon this new management style.
• While the Library's Commitment to a High Number of Service Hours to the
Public Is Exemplary, Many Evening Hours Have Few Patrons. As noted
previously, the Tigard Public Library and the City have made the delivery of library
services a priority. This commitment can be seen in its collection size, staffing
levels and programs. It can also be seen in the number of hours it is open each
week. At 69 hours per week, including every weekday evening until 9pm, this is an
extraordinary commitment. However, this commitment has returns which diminish
significantly as the evening progresses. This can be seen in the following table
which displays average patron visits in the evening for 2018.
Weekday Visitation Averages for 2018
c
0 120
IL 100
0 80
d
M 60 \
Z 40
d
20
d
Q 0
3pm-4pm 4pm-5pm Spm-bpm 6pm-7pm 7pm-8pm 8pm-9pm
-Monday 106 87 71 71 56 32
Tuesday 103 88 77 73 61 27
Wednesday 96 91 86 87 59 30
Thursday 93 81 68 68 54 26
Friday 99 85 71 68 54 30
It is clear that patron visits are much reduced in the evening:
Drop off between 7-8 pm Drop off between 6-8
-42% -55%
-55% -63%
-50% -66%
-52% -62%
-45% -56%
Moreover, evening visits are diminishing over time — compared to 2017, patron
visits after 8pm are between 5% and 15% lower on Wednesdays, Thursdays and
Fridays.
While the comparative statistics show Tigard's Public Library staffing levels to be
relatively high (though not the highest), operating a two-story library with multiple
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service desks makes meeting service commitments difficult. Moreover, while
volunteer commitments are high their utilization is high for the roles which are
appropriate for them.
The Tigard Public Library should consider a service hour reduction and redistribute
staff hours to better serve core hours when patron visits peak. Reducing the
number of late evenings is one approach; reducing late evenings overall is another.
Closing at 8pm each night should be implemented, the hour after which visits
decline markedly.
• In spite of the depth and breadth of the Library's marketing and outreach
program, in some respects it is not a coordinated effort.
Marketing materials (both print and online — web and social media) are not
branded with a consistent look.
Multiple staff positions are involved in social media and web presence.
Several staff can contribute to social media without review. This is not to
deny the experience and professionalism of staff in the Library, but new
media functions like old media for purposes of branding and needs
consistency in messaging.
• As a large department with specialized information technology needs, the
Tigard Public Library needs to plan for its long-range needs in better support
of the City's technology plan. Any large organization with its own special
resource needs requires a dedicated plan for the support and renewal of those
resources. A Library, like selected other municipal services for example police,
have a great need not only for highly trained and dedicated personnel, but also
equipment such as information technology. A library has great and growing needs
for:
— Up to date and highly functioning cataloging and circulation systems and
equipment which are provided through the WCCLS.
— A relatively large number of public access computers that meet expectation
for speed and effective user interfaces.
— Data which today and in the future, increasingly mean fee supported access
to dedicated databases.
— Accessibility for the sight impaired.
While the City has an overall technology plan which is based on and reflective of
municipality-wide needs and priorities, the Library would better feed into that process with
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a comprehensive needs assessment of its technology requirements.
Recommendation 42: The Library should reduce service hours to between 62 — 64
hours per week, either through elimination of some evening hours or an earlier
closing for all evenings. Closing at 8pm each night should be implemented, the
hour after which visits decline markedly.
Recommendation 43: Develop a comprehensive marketing plan encompassing
traditional print and advertising and social media components. Use this
opportunity to brand the Library as consistently as possible to the community.
Finally, make one person responsible for the coordination, development and
posting of social media while continuing to seek the input of other staff. The lead
person should be the Communications Coordinator. Then management team
should set direction and develop a review process.
Recommendation 44: The new Director needs to continue the recent focus on
furthering team building and open communication among Library staff.
Recommendation 45: Create an internal team under Technical Services to
research, develop and present to the City a Library Information Technology Needs
Assessment and Long-Range Plan.
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7 Police
This chapter provides an assessment of the Police Department staffing and operations
requirements.
A. ADMINISTRATION DIVISION.
The Chief's Administration consists of the Chief, two Commanders, a Business Manager,
a Public Information Officer, a Community Engagement Program Coordinator and
Confidential Executive Assistant. Each of these roles will be briefly discussed in the
following section, though there are no specific performance measures that captures all
aspects of the roles, e.g. the Confidential Executive Assistant handles many tasks for the
Chief and some tasks are one time while others may be handled as needed, yet the role
is essential for the coordination of operations within the Chief's administration and as a
point of contact for the chief.
The Chief is in-charge of day to day operations and is supported by two commanders and
four administrative personnel. The Chief assigns tasks and is involved in all major
decision making.
The Command staff has a clear separation of tasks, though they assist each other when
needed. The Commanders oversee Patrol, Investigations and other units. The
Commanders serve as part of the overall leadership team and are assigned tasks in
support of overall operations. The Commanders serve as the second in command and
oversee policy development, grants and sergeants.
As noted above the Confidential Executive Assistant handles many tasks for the Chief
and some tasks are one time while others may be handled as needed. The Executive
Assistant coordinates the Chief's schedule, files confidential department correspondence
and serves as point of contact for the Chief.
The Public Information Officer (PIO) responds to significant events, coordinates the
department media response to incidents or information that is disseminated to the public.
They also handle media enquiries. The PIO also manages the department's social media
activity. The department has the following major social media accounts:
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populationPercentage
Estimated of
Number of Population
FollowersReport Type Following*
Facebook 6,967 54,758 12.7%
Twitter 9,617 54,758 17.5%
*Not all followers are necessarily Tigard residents
The above table indicates the department is active on social media and is successfully
reaching online population. The department is also on "Nextdoor" which is a specialized
targeted social media application for residents of the city. The department reaches
approximately 8,000 residents on the platform. Social media is an important aspect of
public outreach as the number of people who get their information online is increasing.
The Community Engagement Program Coordinator is responsible for department's
outreach to the community. The coordinator organizes several annual events such as
National Night Out, the Department Open House and the National Prescription Drug Take
back. The Coordinator also arranges officer attendance at many community and
neighborhood events. The department has attendance at the Tigard Festival of Balloons,
Trick or Treat on Main Street as well as conducts safety classes for kids and self-defense
for young women. An important aspect of this position is that it helps build community
trust of the police which is a pillar in 21 st Century policing.
The Business Manager has overall responsibility for developing the budget, completes
financial reports, handles accounts payable and receivable, grants, and asset forfeiture.
The Business manager coordinates with City Budget office on daily, weekly basis to
manage the department budget and reporting.
The Chief's Administration and Command Staff are able to handle the daily tasks of the
department administration.
Recommendation 46: Maintain current Administration staffing levels.
B. OPERATIONS DIVISION.
This initial section of the chapter focused on data and analysis associated with the
workload associated with the Operations Division and subsequent staffing requirements.
Patrol Operations consists Patrol, Tri-Met, Traffic Enforcement and Community Safety
Officers. Patrol Operations is led by a Commander who is supported by two Lieutenants.
This section of the report will focus on data and analysis associated with the workload
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associated with Patrol and subsequent staffing requirements.
1. Analysis of the Police Patrol Unit Workload
There are many factors that impact the workload associated with any law enforcement
agency. The nature of work for most law enforcement agencies, especially for officers
responsible for responding to community generated calls for service, fluctuates greatly.
This section of the report will analyze the community generated workload.
(1) Calls for Services Analysis
Our project team has calculated the community-generated workload of the City of Tigard
Police Department by analyzing incident records in the computer aided dispatch (CAD)
database, for 2018. For incidents to be identified as community-generated calls for
service and included in our analysis of patrol, each of the following conditions needed to
be met:
• The incident must have been unique.
• The incident must have involved at least one Officer assigned to patrol, as
identified by the individual unit codes of each response to the call.
• The incident must have been originally initiated by the community.
After filtering through the data using the methodology outlined above, the remaining
incidents represent the community-generated calls for service (CFS) handled by Tigard
patrol officers.
(2) Call Distribution by Time of Day
As to be expected, the CFS volume fluctuates by the time of day. The following graph
presents the CFS volume throughout the day.
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Calls for Service by Hour
a 6a 9a 12p 3P 5p 9p
CFS is the lowest during the early morning hours, then steadily increase throughout the
day, peaking at 3pm. After 10pm CFS steadily decline.
Additionally, the project team analyzed the CFS workload by hour and day of week. The
following table presents the CFS by hour and day.
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Calls for Service by Hour and Weekday
Hour ae Wed I I mat Total
12am 105 ff 50 58 59 61 . 52 76 461
lam 68 R 44 46 43 61 50 62 374
2am 61 M 46 30 34 MMIM 47 65 316
3am 45X34 39 28 ■' 27 44 235
at
4am I MIL6 IIID 22 EMM
31 171
5am "WIMIENIMMINNINIMM
204
6am 34 53 610 46 55 54= 331
lam EP 76 96 73 80 72 65 503
8am 63 135 143 108 124 97 99 769
9am 86 144 125 119 134 129 119 856
10am 130 165 148 140 120 126 125 954
Ilam 123 175 158 164 130 119 129 998
12pm 154 153 159 128 168 148 142 1,052
1 pm 141 182 194 147 166 179 149 1,158
2pm 186 . 174 190 193 209 166 1,344
3pm 178 jj� 199 Md 206= 205 179 1,427
4pm 150M 2040204 202% 224 169 1,390
5pm 175 in 203 198 189l 209 163 1,355
6pm 125 181 168 176 165 182 165 1,162
7pm 133 159 145 151 143 145 162 1,038
8pm 128 144 122 146 135 140 150 965
9pm 117 129 119 107 133 136 155 896
10pm 106 98 100 109 126 130 156 825
llpm 74 80 77 71 81 88 109 580
Total 2,470 3,016 2,832 2,702 2,796 2,814 2,734 19,364
Note: Green indicates fewer calls per hour while red indicates higher calls per hour.
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The CFS workload by day of week is fairly stable throughout the week but peaks on
Friday. Furthermore, the most CFS peaked around mid to late afternoon each day.
However, noting that the largest single time for CFS was on Monday between 4pm and
5pm.
In total, Tigard Patrol Officers responded to a total of 19,364 community generated CFS
during a one-year period, with workloads varying significantly by time of day. The total
number of calls for service for a community the size of Tigard is within the expected range
based on current demographics in a suburban area.
(3) Calls for Service by Month
The following table displays CFS totals by month, showing seasonal variation as a
percentage difference from the quarterly average:
Calls for Service by Month
Month #of CFS Seasonal +/-
Jan 1,542
Feb 1,285 -7.9%
Mar 1,630
Apr 1,619
May 1,780 +4.9%
Jun 1,677
........ ......... ......... ......... ........._
Jul 1,747
Aug 1,663 +2.4%
Sep 1,545
Oct 1,629
Nov 1,580 +0.7%
Dec 1,667
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As expected, the CFS workload varies throughout the year. The CFS by month begins
to increase in March and peaks in May; though the summer months are the busiest. The
following graph provides a graphic illustration of CFS by month:
CFS by Month
2,000
1,800
1,600
1,400
1,200
1,000
800
600
400
200
0
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
(4) Most Common Types of Calls for Service
The following table provides the ten most common incident categories of CFS handled by
patrol officers over the last year, as well as the average call handling time (HT)' for each.
Please note the darker the shade of blue indicates the more frequent the timeframe.
Handling time (HT) is defined as the total time in which a patrol unit was assigned to an incident,
as identified by its dispatch and clear time stamps recorded in the CAD data.
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Most Common CFS Incident Types and Distribution by Time of Day
Incident Type #CFS HT 8p
ASSIST PERSON 1,886 22.6
WELFARE CHECK 1,379 31.6
THEFT COLD 1,120 38.9
SUSPICIOUS PERSON 922 27.0 ,
SUSPICIOUS CIRCUM 814 26.1 ,
FOLLOW UP 761 25.3
MESSAGE 744 23.0
ALARM AUDIBLE 689 18.2 ,
SUSPICIOUS VEHICLE 688 24.5
UNWANTED 686 32.8
All Other Types 9,675 37.3
Total 19,364 32.3
The ten most common CFS represent 50% of the call types received by the Department.
These types of call types represent a wide variety of workload with Assist Person
representing the most frequent call type (9%) followed by Welfare Check (7%). The
majority of the CFS peaked during the late afternoon/early evening hours.
2. Analysis of Net Availability and Proactivity
The following sections build upon the initial analysis of patrol CFS to determine patrol
service levels based on current workloads and net availability of patrol officers.
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(1) Purpose of Calculating Patrol Proactivity
Analysis of the community generated calls for service workload handled by patrol units
provides the basis for patrol staffing needs. Developing an understanding of where,
when, and what types of calls are received provides a detailed account of the service
needs. Additionally, measuring the time used in responding and handling these calls, the
staffing requirements for meeting the community's service needs can then be determined.
In addition to responding to CFS, patrol officers provide other services that impact the
community as a whole. Providing a high-level of service, patrol officers work proactively
to address community issues, conduct problem-oriented policing, and perform other self-
directed engagement activities within the community. As a result, patrol staffing needs
are calculated not only from a standpoint of current resources to handle CFS workload,
but also their ability to provide a certain level of service beyond responding to CFS. In
Tigard, officers spend significant time on self-initiated activity such as vehicle stops,
business checks and pedestrian stops.
These needs are determined by measuring the proactivity of patrol, or the uncommitted
time that patrol units have outside of handling call for service workloads and
administrative duties, which is expressed as a percentage of the total time that they are
on-duty and available to handle workloads. With this focus in mind, the following sections
examine the process used by the project team to determine patrol resource needs based
on current workloads, staff availability, and service level objectives.
(2) Patrol Officer Net Availability
Schedules provide a roster of assigned staff; the number of personnel that are actually
on-duty and available to work at any given time varies greatly. For example, an officer is
assigned to work a total of 2,080 hours annually. However, a significant percentage of
scheduled time, is not actually spent on-duty and available in the field, for a variety of
reasons. As a result, it is important to understand the amount of time officers are available
to staff their post and analyze the data associated with time away. This analysis and
calculation is referred to as net availability - the amount of time that an officer is available
to actively patrol and respond to calls for service.
As a result, it is critical to understand the amount of time that officers are on leave —
including vacation, sick, injury, personal, military, comp time, or any other type of leave —
as well as any hours dedicated to on-duty court or training time, and all time spent on
administrative tasks such as attending shift briefing. The impact of each of these factors
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is determined through a combination of calculations made from the Tigard Police
Department data and estimates based on the experience of the project team, which are
then subtracted from the base number of annual work hours per position.
The result represents the total net available hours of patrol officers, or the time in which
they are both on-duty and available to respond to calls for service and other activities in
the field. The following table summarizes this calculation process, displaying how each
individual net factor contributes to the overall net availability of patrol officers. Factors that
have been estimated by the project team are shown with an asterisk:
Breakdown of Officer Availability
Base Annual Work Hours 2,080
Total Leave Hours — 279
On-Duty Training Hours — 60
On-Duty Court Time Hours — 20
Administrative Hours — 270
Net Available Hours Per Officer = 1,450
Number of Officer Positions x 31
Overall, officers are available for a combined 44,955 net available hours per year,
representing the total time in which they are on duty and able to respond to community-
generated incidents, and be proactive. The net hours above show the total hours per
year that officers are available to respond to calls for service or conduct self-initiated
activity. These hours are calculated irrespective of actual calls for service hours that are
detailed later in this report.
(3) Overview of Call for Service Workload Factors
Previous sections of this chapter examined various trends in patrol workloads, including
fluctuations by time of day and of week, common incident types, and other various
analytics. The following section builds on this preliminary analysis, detailing the full extent
of resource demands that these incidents create for responding patrol officers.
Each call for service represents a certain amount of workload, much of which is not
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captured in the handling time of the primary responding unit. Some of these factors can
be calculated directly from the data provided by the Department, while others must be
estimated due to limitations in their availability or measurability.
The following table details factors that must be considered in order to capture the true
workload associated with community-generated workload:
Factors Used to Calculate Total Patrol Workload
Number of Community-Generated Calls for Service
Data obtained from an export of CAD data covering a period of an entire year that has been analyzed
and filtered in order to determine the number and characteristics of all community-generated activity
handled by patrol officers.
The calculation process used to develop this number has been summarized in previous sections.
Calculated from TPD data:19,364 community-generated calls for service
Primary Unit Handling Time (multiplied by the rate)
The time used by the primary unit to handle a community-generated call for service, including time
spent traveling to the scene of the incident and the duration of on-scene time. For each incident, this
number is calculated as the difference between `call cleared' time stamp and the `unit dispatched'
time stamp. At 32.3 minutes, the average handling time for TPD units is in the typical range for most
agencies.
Calculated from TPD data:32.3 minutes of handling time per call for service
Number of Backup Unit Responses
The total number of backup unit responses to community-generated calls for service. This number
often varies based on the severity of the call, as well as the geographical density of the area being
served. This number can also be expressed as the rate of backup unit responses to calls for service
and is inclusive of any additional backup units beyond the first. This information was calculated based
on secondary units responding to calls for service from the CAD data.
Calculated from TPD data:0.75 backup units per call for service
Backup Unit Handling Time (multiplied by the rate)
The handling time for backup units responding to calls for service is calculated using the same
process that was used for primary units, representing the time from the unit being dispatched to the
........................ ....................
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unit clearing the call.
Estimated:24.2 minutes of handling time per backup unit
I Number of Reports Written
The total number of reports and other assignments relating to calls for service that have been
completed by patrol units, estimated at one report written for every three calls for service. This
includes any supporting work completed by backup units. In the absence of report data, the project
team estimated one in three calls for service requires an incident report.
Estimated:0.33 reports written per call for service
I Report Writing Time (multiplied by the report writing rate)
The average amount of time it takes to complete a report or other assignment in relation to a call for
service. Without any data detailing this specifically, report writing time was estimated based on the
responses provided in the employee survey. Results of the survey analysis result in an estimated 45
minutes are spent per written report, including the time spent by backup units on supporting work
assignments.
Estimated:45 minutes per written report
I Total Workload Per Call for Service
The total time involved in handling a community-generated call for service, including the factors
calculated for primary and backup unit handling time, including jail transport/booking time, and report
writing time. This number represents the addition of the previous factors, relative to their rates (e.g.,
45 min. of report writing time is added to approximately 0.33 of all calls for service). The total number
of workload hours for the year is then divided by the number of calls, producing an average per
incident.
Calculated from previously listed factors:65.5 total minutes of workload per call for service
Each of these factors contributes to the overall picture of patrol workload — the total time
required for patrol units to handle community-generated calls for service, including
primary and backup unit handling times, report writing time, and jail transport time.
These factors are summarized in the following table:
Summary of Patrol Workload Factors
The total number of committed hours for patrol officers responding to the community-
generated workload for 2018, the last complete year of data provided was approximately
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21,131 hours. The total committed hours can be altered depending on whether officers
clear from calls prior to writing reports or whether officers indicate they are out of service
to write reports. Due to this, the project team subtracts an average of 45 minutes per
written report to more accurately reflect actual available time which is based on numerous
previous studies. The table below shows the report writing time included in the calculation
of call workload. It should be noted that officers often write reports while indicating they
are clear and available for a call. This is due to prevailing police culture of"being available
for the next call" even when they are not completely clear from a previous call.
Value %
Total Number of Calls for Service 19,364 49%
Avg. Primary Unit Handling Time (min.) 32.3
Backup Units Per CFS 0.75 28%
Avg. Backup Unit Handling Time (min.) 24.2
Reports Written Per CFS 0.33 23%
Time Per Report (min.) 45.0
Avg. Workload Per Call (min.) 65.5
Total Workload Hours 21,131
(4) Calculation of Patrol Proactivity
Equally important to understanding the time associated with responding to the
community-generated workload, is the amount of proactive or unassigned time of patrol
officers. Proactive time is important in any community, especially for communities such
as Tigard which emphasis strong public relations and interactions between the Police
Department and citizens.
Patrol proactivity is calculated by comparing the total call-driven workload handled by
patrol against the resources available to handle it. This is done by subtracting the total
net available hours that patrol officers spend on duty against total workload hours:
Total Net Available Hous. — rotal CFS Workload Hou.
Total Net Available Hours
With net availability and call-driven workloads having been calculated previously in the
analysis, overall proactivity for patrol officers can be calculated as follows:
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Overall Patrol Proactivity
Total Patrol Net Available Hours 46,406
Total Patrol Workload Hours - 21,131
Resulting # of Uncommitted Hours = 25,275
Divided by total net available hours - 46,406
An overall proactivity level of 54.5 indicates some proactive capabilities of patrol officers;
however, most of the proactive time for Tigard occurs after 11 pm and before lam when
there are less community engagement opportunities and fewer community contacts
possible. For a community the size of Tigard and its engaged citizenry, a proactive goal
of 60% or greater would be considered an effective target. It should be noted that
available proactive time does not mean the officers are not active when they are not on
community generated calls for service. Tigard officers are engaged in self-initiated activity
when not on calls for service, as noted previously.
(5) Proactivity and Deployment Effectiveness
As discussed previously, the community-generated workload fluctuates throughout the
day. Based on the current deployment of minimum staffing of 3 patrol officers on day
shift (7am to 5pm), minimum staffing of 4 patrol officers on afternoon shift (2pm to
Midnight) and minimum staffing of 3 patrol officers on night shift (10pm to 8am) the
following table presents proactivity by weekday in four-hour time blocks:
Percentage of Proactivity Time Available by Hour and Weekday
Time S M T W Th F Sa Overall
tam-ham low=U- Mmm 84%
6am-10am :'. 60%
10arn-2pm 22% -5% -3% 14% 8% 13% 26% 11%
2pm-6pm W 32%MMM 35% 46%
6pm-10pm W 34%=MM 35% 35% 38%
10prn-2am 76%
Overall 54%
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As seen in the table, patrol proactivity is very robust and well above benchmark targeted
ranges of over 54%. However, the table indicates that there is a net negative proactive
time available between 10am and 2pm on Mondays and Tuesdays. This means there
are generally more calls for service than dedicated patrol staffing can effectively handle.
(6) Use of Proactive Time
The effective use of proactive time relies on the front line supervisor's ability to direct the
time so that it used to best serve the community. With 54%overall proactive time available
to the department, there is the ability to be proactive; however, it is limited since most of
the proactive time occurs during overnight time hours when there are fewer opportunities
to be proactive (Traffic and Pedestrian activity decreases).
Sergeants need to be actively involved in identifying problems in the community that
would benefit from more proactive emphasis, the deployment of field patrol staff to
address those problems and making them accountable for resolution.
In Tigard, officers are engaged in more proactive enforcement and community
engagement activities between 11 pm and lam. The table bellows shows self-initiated
activities by hour and weekday.
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Self-Initiated Incidents by Hour and Weekday
Hour Sun Mon Tue Wed Thu Fri Sat Total
12am 195 156 120 137 171 190 1,193
lam 208 117 119 95 140 161 1,051
2am 133 113 101 87 150 102 132 818
3am 77 53 69 48 117 60 103 527
4am 32 40 25 23 50 64 41 275
5am 54 40 40 28 70 53 57 342
6am 86 61 60 57 53 80 90 487
7am 39 37 44 23 31 25 31 230
8am 29 126 Mk 15 26 29 35 183
9am 51 30 44 34 30 48 38 275
10am 40 MW 39 29 33 45 38 246
iiam 39 36_ 31 35 43 39 243
12pm 38 27"Rr' 20 21 33 33 194
ipm 23 17 28 48 32 34 34 216
2pm 54 46 60 55 40 54 68 377
3pm 88 87 76 66 58 105 119 599
4pm 78 92 62 47 67 88 115 549
5pm 81 81 44 46 52 74 82 460
6pm 90 72 61 37 44 72 89 465
7pm 41 56 44 42 35 62 61 341
8pm 50 44 19 54 47 65 62 341
9pm 72 58 38 80 54 80 90 472
10pm 91 83 54 67 101 123 136 655
11 pm 121 151 123 173 1882.53� 1,267
Total 1,810 1,545 1,335 1,342 1,645 1,943 2,186 11,806
Note: Green indicates low self-initiated activity while red indicates more self-initiated
activity.
The most common type of self-initiated activity in Tigard is traffic stops followed by Extra
Patrol and then Subject Stops. The following table shows the top 10 self-initiated activity
by type:
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Self-Initiated Incident Types
Incident Type #CFS HT 12a 14a 8a 12p 4p 8p
TRAFFIC STOP 4,451 12.3 .
EXTRA PATROL 1,719 14.9 .
SUBJECT STOP 1,654 14.6 .
FOLLOW UP 737 35.7 . .
OUT W/SUSP 707 9.7 ■
VEH Eli
PREMISE CHECK 522 11.0 -
SUSPICIOUS 356 11.5 ■
VEHICLE
DETAIL 259 154.3 . . .
FOLLOW 227 33.8 .
MOTORIST 153 7.8
ASSIST
All Other Types 1,021 33.6
Total 11,806 19.5
The table indicates that Tigard patrol officers spend significant time on self-initiated
activity when not on a call for service.
3. Analysis of Patrol Staffing Needs
Staffing needs can be calculated for certain targeted levels of proactivity, with each officer
position representing 1,450 net available hours per year. The typical proactivity ranges
utilized to calculate staffing needs for larger agencies are between 35% to 45%.
However, in small to mid-sized departments there tends to be a much higher level of
proactive time as is the case in Tigard at 54%. The above proactive time levels are
achieved by a minimum staffing of 3 officers and a supervisor on day shift, 4 officers and
a supervisor on afternoon shift and 3 officers and a supervisor on night shift. Tigard's
current proactive range of 54% is achieved by lower calls for service levels after 11 pm
until about 7am the next day.
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Staffing of police operations must consider the normal operating environment and then
allow for proactive time. In Tigard, drive time, road networks, geography and time for
back up must also be considered to provide for effective call response times and officer
safety. Tigard covers approximately 11 square miles. In calculating the patrol officer
needs for Tigard, we note that the busiest time for calls is between 4pm and 5pm on a
Monday at 237 calls for the year occurring on that day and time. Since there are 52 weeks
in a year we know that approximately 4.5 calls on average will occur on any given Monday
between 4pm and 5pm. Though this is shift overlap time, 3 of the 7 officers on shift will
be ending their shift at 5pm which means there is a high likelihood that all officers will be
assigned to a call at some point during that hour. Additionally, this is a heavy vehicle
commute time which will slow patrol response times.
While available proactive time is an important factor in determining appropriate staffing in
a department the size of Tigard, it is critical to consider call response time as well. In
Tigard the call response time increased 20% between 2012 and 2017 (latest data
available) from an average of 5.18 minutes to 6.23 minutes. The following tables show
the breakdown of call response by priority, call handling time and response time in 2018:
Response Time Distribution by Priority Level
Priority # US % Avg. HT Response Time (min.)
0 10 20 30 40 50 60
1 113 1% 75.9
2 3,987 21% 43.2
3 5,579 29% 31.2
4 5,645 29% 31.4
5 4,038 21% 22.4
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As the table indicates, priority 1 calls represent approximately 1% of all calls and call
response time averages above 5 minutes. Priority 2 calls represented approximately 21%
of calls for service and average response was above 7 minutes. The department has a
goal of responding to Priority 1 and 2 calls in 5 minutes or less. Many larger agencies
have a call for service response time goal for priority 1 and 2 calls at between 5 and 7
minutes. However, many departments similar to Tigard, have a goal of a 5 minute
response to these calls. The size of a city, road networks and geography can greatly
impact call response time. Priority 1 and 2 calls are the most serious calls for service and
typically mean a crime is in progress or there a life-threatening incident occurring.
In order to achieve an approximately 5-minute response time, additional officers would
be needed. The current average response time of 6.23 minutes would need to be lowered
by approximately 20% (5 - 6.23/6.23 x 100% _ -19.74%).
Current minimum staffing requires 10 officers per day (3 —Day Shift, 4 Afternoons and 3
Night Shift). Adding 1 officer to each shift would require 13 officers per day to be assigned
to work, however, with vacation and other absences, each officer works approximately
1 ,450 hours per year. To add 1 additional officer per shift to cover 365 actually requires
approximately 2.5 officers per shift as the table below indicates.
neededCurrent 1W Hours
average
work hours
per off icer . .
Totalper year average Personnel
Shift hours Shifts per .
per day. year needed per year shifts X 2.5)
10 365 3,650 1,450 2.51 7.55 (8)
This increase would represent a net 25% to 33% increase in minimum staffing. This
would increase the likelihood that an officer is available for a call and also increase the
likelihood that an officer is closer to the call for service using current zone and deployment
structure.
Patrol also consists of two K9 officers who work routine patrol with a K9 partner. This
arrangement adds additional resources to patrol without creating a dedicated unit. K9
reported the following statistics for 2017:
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Personnel
Hours needed divided bAverage
average work hours per year shifts X 2.5) month
2.51 7.55 (8) 12
.4
1
1.9
1.7
Assists 8 .6
Though the activity levels are low for a two-person K9 unit, their primary duty is to respond
to calls for service. The addition of tracking and searching provided by the K9 units, offer
patrol and the City of Tigard a safer, more efficient approach to apprehending suspects.
Many of the captures may not have taken place without the added ability K9 units provide.
Staffing of patrol with current resources is matched to the workload with more officers
assigned during the busier portions of the day.
Recommendation 47: Add 8 additional Officers to achieve higher minimum
staffing to achieve stated goal of 5 minute response to priority 1 and 2 calls for
service. Staffing should be 4 Officers on Day Shift, 5 Officers on Afternoon Shift
and 4 Officers on Night Shift.
Recommendation 48: Maintain current staffing of two K9.
4. Patrol Supervisory Staffing
Patrol supervision is a critical component to effective policing for a community. Patrol
supervision sets the tone for what type of policing will be delivered and what patrol
expectations are for officers in the field. Patrol supervisors should support the direction
of the command staff and work to implement their policing priorities. The lack of effective
patrol supervision can lead to morale issues, failure to adequately serve the community,
poor investigative follow up and increased liability for the department and the City. The
following is a list of some of the basic requirements that encompass effective field
supervision:
• Supervisors should monitor priority calls and respond quickly.
• Supervisors should help resolve critical incidents.
• Supervisors should instill the department vision on subordinates.
• Sergeant should mentor officers.
• Supervisors should properly assess officers for performance evaluations.
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• Supervisors should help officers work within policy and address problems.
• Supervisors should direct patrol activities during proactive times.
• Supervisors should help officers address community related problems.
Having well trained and professional patrol supervisors in the field can help reduce liability
for the department by providing frontline supervision and addressing performance issues
as they arise.
The Tigard Police Department has 1 sergeant minimum staffing assigned to each patrol
shift (2 sergeants assigned per shift with opposite days off). During our interviews the
project team was informed that patrol supervision is effective. Sergeants respond to all
critical incidents are available to take calls for service when needed.
The current ratio of sergeants to officers is 5.5 officers to 1 sergeant. This is an
appropriate ratio for the City of Tigard. The ratio allows close supervision and assistance
for officers.
Recommendation 49: Minimum Staffing should be Sergeant on duty at all times.
5. Tri-Met
The Tri-met unit consists of 1 Sergeant and 2 officers who are assigned full time to a
multi-agency transit enforcement function. Though the officers and sergeant are supplied
by Tigard, the unit is fully funded by the transit agency. This unit was not analyzed as
part of this study as performance measures for this unit are not directly tied into operations
of the police department.
6. Community Safety Officer (CSO)
The community safety officer is a uniformed non-armed/non-sworn position that assists
with low level calls for service where suspect contact is highly unlikely. These include,
theft, vandalism, parking and assisting on traffic crashes. The CSO assists with many
tasks that are administrative in nature such as phone and radio inventory. The CSO
also performs delivery of evidence and paperwork to the District Attorney. There were 2
CSOs.
The CSO performs many tasks that would have to be done by sworn personnel if the
CSO position did not exist. The CSO is a less expensive option for delivery of non-
emergency police services. Many agencies around the United States are employing
CSOs to perform tasks that do not require full sworn training to conduct. This frees up
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officer time for investigations and follow up. Adding a CSO could reduce overall costs
for functions that do not require law enforcement training.
Recommendation 50: Fill 2nd CSO position for a total of two CSOs.
7. Traffic
The Traffic Unit consists of 1 sergeant and two officers who provide enhanced traffic
safety enforcement to the City of Tigard. They also respond to vehicle crashes and
perform investigations. In 2017, there were 1 ,700 crash calls with 2 fatalities and 112
with a reported injury. This represents almost 5 crashes per pay. Patrol does respond to
crashes as well, but if there is serious injury, the traffic unit will respond. In 2018, the
traffic unit issued 296 traffic infraction warnings and 2,925 traffic citations for a total of
3,221 traffic related contacts. The following tables indicates workload per hour for just
traffic enforcement.
Work houri7 Approximate
unit (includes Contacts contacts per
Sgt.) per year work hour
4,350 3,221 .75
As the table indicates the traffic unit makes nearly 1 traffic contact per hour even though
they also respond to crash investigations and perform other duties. Though specific
hours for traffic investigations and other duties are not tracked, we know from previous
studies that when time from those investigations and other duties are subtracted, the
traffic unit is likely making more than one traffic related contact per hour when dedicated
to that activity. This is within a general target range for traffic enforcement.
Recommendation 51 : Maintain current staffing.
C. SUPPORT SERVICES DIVISION.
This section of the report will focus on data and analysis associated with the workload of
the Support Operations Division and subsequent staffing requirements. Investigations
consists of Investigations, Records, Property and Evidence, Crime Analysis, and School
Resource Officers. Support Services is led by a Commander who is supported by a Crime
Analyst, an Administrative Specialist, two Sergeants and a Records Supervisor.
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1. Investigative Analysis
The evaluation of staffing levels in investigations requires a different approach because,
unlike field services, qualitative determinants of workload and work practices are more
important. Patrol services have the benefit of several quantitative measures, such as calls
for service, response time and proactive time, to assist in the evaluation of staffing
requirements. Investigative services, given the nature of this work, have fewer such
reliable measures. Investigative staffing requirements need to be examined from a variety
of perspectives in order to obtain an overall portrait of staffing issues, case handling
issues and operational philosophies.
Investigative workload can employ a series of indicators to determine the extent to which
core investigative staffing is adequate and general workload is appropriate. Performance
against these metrics can ultimately influence staffing requirements for detectives. The
Matrix Consulting Group has devised an approach where staffing is based on how
investigative resources are used and how the caseloads are managed now and could be
managed in the future. The approach used is unique for each law enforcement agency
under study.
2. Detective Staffing
The Tigard Police Department Investigations consists of two distinct units: Criminal
investigations Unit (CIU) and the Commercial Crimes Unit (CCU). CIU investigates all
serious crime follow up with a focus on person crimes while CCU focuses on property
related crimes (Organized Retail Theft). CIU is staffed with 1 sergeant and 5 Detectives
(3 full time and 2 on rotation) and CCU is staffed with 1 sergeant and 4 detectives (1 is
assigned full time to the DEA).
3. CIU Caseload Information
The project team was provided partial year's stats since the department has transitioned
to a new RMS system and older caseload information was not available. The project
team reviewed partial year caseload and compared it to the 2017 caseload (last full year
available). CIU reported average of 6 new cases assigned per month for the first three
months of 2019. This is equals just over one new case per investigator per month.
The table below shows the case load for 2017:
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2017 CIU Caseload
AverageEnv Average
number per per
Number of Total cases detective Detective
detectives for the year er year Month
5 140 28 2.3
As the table above indicates CIU detectives averaged 2.3 new cases per month.
4. CCU Caseload Information
The project team was provided partial year's stats since the department has transitioned
to a new RMS system and older caseload information was not available. The project
team reviewed partial year caseload and compared it to the 2017 caseload (last full year
available). CCU reported average of 4 new cases assigned per month for the first three
months of 2019. This is equals just over one new case per investigator per month.
The table below shows the case load for 2017:
2017 CCU Caseload
Averagenumber per per
Number of Total cases detective Detective
detectives for the year per year Month
3 99 33 2.75
As the table above indicates CCU detectives averaged 2.75 new cases per month.
5. Analysis of Investigative Staffing
When reviewing caseloads for police departments the project team uses benchmarks
from other departments and available research as summarized below. These
benchmarks include investigative tasks such as writing search warrants, conducting
interviews, submitting evidence to the property room or lab, conducting surveillance,
writing reports and other common investigative tasks. Investigations are complex and
require resources and time to complete.
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Comparative Measures Detective Workload Expectations
Active cases assigned to "generalists" 12 to 15 active cases per month based on a survey of
Detectives. dozens of law enforcement agencies performed by the
Matrix Consulting Group over many years. Recent
research by our firm suggests this range has been
reduced to 8-12 cases as the complexity of evidence
collection and testing has increased the overall time
required to investigate a case.
As shown by the data above, average caseloads that could be assigned to a detective
would be within the recommended caseload for a generalist investigator. In reviewing the
caseloads for CIU and CCU the project team found the investigative caseloads were well
below workload expectations.
In 2017 there were a total of 2,620 Part 1 person or property crimes reported, but
detectives were only assigned 239 total cases or just 9% of cases were assigned. This
appears to be a low level of case follow up. It is common for cases to receive little to no
follow up based on the lack of workable leads or victim cooperation, however, this study
did not review actual case files to determine why the low case issuance occurs. In order
to increase detective caseloads, the department should review its case screening process
to ensure all cases that have leads are assigned. If all workable cases are currently
assigned there are more detectives than needed.
Recommendation 52: Review case screening process.
Recommendation 53: If all workable cases are currently assigned, the department
should eliminate two detective positions.
6. ANALYSIS OF PROPERTY AND EVIDENCE.
Property and Evidence consists of personnel. The unit is overseen by the Records
Supervisor. The property room reported the following work metrics for 2018:
AZ ' _
Property In 6,358
Items Destroyed 3,745
Returned to Owner 721
Items Incinerated 764
Auctioned 456
Purged 4,998
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The property room is located within the police department with an additional storage area
for larger items. Evidence is stored appropriately and to best practice. Some large items
are stored in secondary storage, this is due to facilities issues and limited size of the
property room(s). All items are documented, barcoded and entered into the property
management software. The property room took in 6,358 items in 2018. This is an
average of 530 items per month. At 10 minutes per item this represents approximately
1 ,060 hours of work per year just to process items taken in. It takes approximately 20
minutes per item to return, destroy or sell unneeded items. There were a total of 4,998
items purged, sold or returned to the owner in 2018.
7. Analysis of Property Room/Evidence Staffing
When reviewing workloads for property /evidence, the project team uses benchmarks
from other departments and the International Association For Property & Evidence Inc.
(TAPE) standards and available research as summarized below. These benchmarks
include tasks such as data entry, barcoding, storing in appropriate areas, releasing to
officer/ owner/court, paperwork processing to destroy or sell. Not included in these
workload measures are annual and quarterly audits, transfer and return of items to lab,
answering phones or correspondence with other agencies. Property room and evidence
management is complex and requires exact documentation and accountability for all
items. Also, not included in the workload analysis is the need to have operational hours
for staff and community member contact.
The table shows the workload hours associated with property and evidence activities:
processAzerage
time to lqotal time t
processin processin
Activity V WNumber item (Mins) minutes Hours
Property In 6,358 10 63,580 1,059
Items Destroyed 3,745 20 - -
Returned to Owner 721 20 - -
Items Incinerated 764 20 - -
Auctioned 456 20 - -
Purged 4,998 20 99,960 1,666
Total Work hours for all Processes 2,725
There is minimum of 2,725 work hours associated with property room activities. With two
personnel assigned to this function, the property and evidence unit is at or near capacity.
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Recommendation 54: Maintain current staffing, but use the recommended
benchmarks to re-evaluate staffing on an annual basis to determine when more
property/evidence staff is needed.
8. Analysis of Records
Records serves as the depository for all departmental records. Subsequently, records
staff are responsible for the filing, storage, distribution, and disposal of departmental
records and reports. Additional tasks include responding to public records requests and
producing reports. Each police report must be checked for errors and when errors are
found the report must be sent back to officers for corrections.
The records unit is comprised of a Records Supervisor and five Records Specialists
Records reported the following processing statistics for 2018:
process*Report Type Number processed Avg. per Avg mins to Total time Total time
month
Incidents 7,091 590 15 106,365 1,772
Arrests 1,408 117 20 28,160 469
Total 8,499 708 WA 134,525 2,242
"Average processing times are estimates based on our interviews, observations or the work process
and the result of our work with other clients. These estimates fluctuate on the software used or actual
process. Actual processing time is typically not captured as a performance measure.
The above data indicates it takes approximately 2,242 hours to process all incident
reports and arrests. The unit also answered 10,828 phone calls in 2018. This is only a
portion of the work performed by records as they process other documents, and customer
walk-ins, process public records requests including video, but these performance metrics
are not tracked. Not included in the above workload measures is that records is staffed
24 hours a day to serve patrol officers.
Every report that is written by officers are first reviewed and approved by supervisors as
mentioned above before they are forwarded to the records unit. Each report is then
reviewed by records staff to make sure there are no NBIRS coding errors. Many of the
reports must be sent back for corrections. The records unit is under tight time
requirements to file cases where a suspect has been charged. Staff must process all
felony cases with the DA's office.
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The Tigard Police Department recently switched to a new RMS which has required
training and time to learn the new system. The records unit is able to keep current on
report processing.
Recommendation 55: Maintain current staffing.
9. Analysis of Crime Analyst
The Crime Analyst produces all statistical reports, assists with investigative cases and
helps put case folders together. The Crime Analysts produces daily, weekly and monthly
reports and responds to statistical requests for information. The analyst also uses
investigative databases in support of detectives. Day to day performance measures are
not tracked for this function, however, through the course of project team interviews it was
learned that at times the analysts has more requests for assistance and support than they
are able to accomplish which requires prioritization of tasks. The Tigard police
department is using data driven decision making to utilize limited resources in the most
efficient manner possible. Additionally, the department spends significant effort to track
data in order to address crime and livability issues. To accomplish these goals takes a
well-trained analyst and time to organize and analyses data. It also requires the
development of reports so that the information can be shared.
There is only one analyst to perform these additional tasks in support of the department,
in addition to the tasks assigned to support detectives.
Recommendation 56: Add an additional analyst in the next 1 to 3 years.
10. Analysis of the Police Services Administrative Specialist
The Police Services Administrative Specialists- maintains records and performs assigned
tasks. There are no performance metrics for this position, however, the position has
numerous daily and weekly tasks. In addition, the position supports the division by
providing a constant point of contact for the division.
Recommendation 57: Maintain current staffing.
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11. Analysis of School Resource Officers (SRO)
The School Resource Unit consists of 2 SROs. The unit responds to calls for service at
local schools, conducts meetings, teaches classes and assists with providing school
security. Members of the unit work with staff, students and parents with the goal of
assisting to provide a safe learning environment. SROs also attend after school events
for safety and security.
There are no performance metrics for the SRO unit, though it is typical to have one SRO
assigned to high schools with a student population over 1 ,000 and 2 for schools with a
population over 2,000. The Tigard High School has an approximate student population
of 1 ,954. There are two public middle schools also located within the City of Tigard with
student populations of approximately 805 and 1 ,061.
The Tigard Police Department had four SROs, but two of the positions were eliminated
due to staffing reductions. There is a need to fill one of the positions to maintain proper
staffing based on typical call loads for large suburban high schools and middle schools.
Recommendation 58: Maintain current staffing; but add one additional SRO in the
next 1 to 3 years.
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8 Public Works
The following chapter explores the engineering, administrative, and parks maintenance
divisions of the Tigard Public Works Department. The following sections provide analysis
and recommendations regarding issues which the Department faces on its way to best
meeting the needs of the community, including technology utilization, workload tracking
and performance measures, and capital project planning,
While this chapter focuses on changes that the Department can make to improve the way
it operates, the following points should be noted as particular strengths of the department
in the functions reviewed as part of this study.
• The department has five detailed system master plans, one for each of the major
infrastructure systems in Tigard. These plans project the anticipated future
capacity needed in each system, outline the City's planned investment in each
system, and provide a basis for capital planning.
• The department takes a strategic approach to parks maintenance. Even without
an asset management system, the Parks Maintenance Division has a detailed
report on parks including the type and classification of each park and its acreage.
Maintenance standards and frequencies are established for each classification of
park. The Division also uses a master spreadsheet tool to project the hours needed
for routine and preventive maintenance tasks at each park, by month.
• The department has a strong capital planning approach: The CIP extends six
years, and it is developed based on existing system master plans, as well as a
quantitative scoring system from staff and citizen advisory committees. Goals,
priorities, and expected impacts are established for each of the systems included
in the CIP.
The following sections address changes to technology, organizational structure, and
operational practices which the Department should make in order to become more
efficient, responsive, and data driven.
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(1) The Department Should Adopt a Routine Cycle of Performance
Measurement and Reporting.
The City's FY 2018-19 budget contains three performance measures on pg. 127-128 for
the Department of Public Works. These are shown here:
Achieve ongoing required level of service for infrastructure while accommodating growth
of those various systems.
Ensure city infrastructure is resilient against natural disaster, security breaches and
degradation due to aging.
Ensure Tigard's streets are in fairly good condition. The city's annual Pavement
Condition Index (PCI) meets or exceeds an overall value of 67.0 for the streets system.
The PCI measure is an excellent example of a useful metric which can be used to
determine levels of service and make decisions about resource allocation. The other two
measures lack a level of detail or relevance that is sufficient to drive decision-making
based on strategic goals.
The importance and benefits of performance measurement is addressed elsewhere in
this report. It is worth reiterating, however, the steps which the Department should take
in order to institute a consistent performance measurement cycle.
1 . Determine the level of service that the Department is committed to providing in
each of its divisions and functional areas.
2. Select metrics that specifically measure the Department's success in meeting
established levels of service.
3. Establish target benchmarks against which the Department's performance can be
measured, and which can serve to inform decision-makers of whether performance
levels are acceptable or not.
The chapter of this report focusing specifically on performance measures endeavors to
complete Steps 1 and 2 of this process by identifying metrics which distill the core
elements—or at least accurate indicators—of departmental performance into quantifiable
data. Specific performance measure recommendations for the Public Works Department
can be found in that chapter.
In the Public Works Department, the ability to collect and report on some of the data
needed for performance measurement will depend on implementation of new technology
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systems or upgrades to existing systems. For example, the development engineering
group should measure plan review volume and turnaround times, but this will require the
ability to generate workload reports from Accela, the permitting software used by the
Community Development Department. Similarly, other software capabilities will be
necessary to produce useful performance metric reports for other divisions of the Public
Works Department. Those needs are discussed in dedicated sections later in this chapter.
As the Department begins to implement a performance measurement cycle, the selected
performance measures and their results should be published annually in the budget in
clear language for the public to understand. This should include a brief definition of the
metric and the established benchmark, an explanation of why it is important or how it
indicates the effectiveness of Department operations, and finally the result of that
measure for the most recent year.
Recommendation 59: The Department should establish a routine cycle of
measurement, review, and action based on their selected performance metrics.
Recommendation 60: Performance measures and their results should be
published each year in the annual budget.
(2) The Department Should Implement an Asset Management System Which
Will Enable Efficient, Transparent, and Data-Driven Asset Management.
Highly effective public works departments take a holistic, lifecycle-centered approach to
the maintenance, repair, and capital replacement of the infrastructure and assets for
which they are responsible. At its core, this approach involves the use of three
components:
• A complete asset inventory, which includes all of the City's infrastructure. Each
catch basin, sign, mile of pavement, bridge, city-owned tree, etc. should be given
an asset number and entered into a database.
• A lifecycle costing system, which projects the estimated lifecycle of each asset, the
cost to replace it, and the typical maintenance costs involved in upkeep. Lifecycle
costing is used to help develop capital and operating budgets for public works.
• A work order system which is integrated with the asset inventory and allows
preventive maintenance tasks, proactive repairs, and citizen requests to be
translated into work orders, assigned to the appropriate asset, and recorded in
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order to gather information about the labor, vehicle usage, and costs associated
with maintaining each asset.
Asset management allows an organization to optimize efficiency and effectiveness by
budgeting accurately for the likely cost of maintenance and repairs, staffing appropriately
for the projected workload, and using a preventive maintenance program to ensure assets
do not deteriorate to an unacceptable level. The primary tool for asset management is a
computerized maintenance management system (CMMS) or dedicated asset
management software with an integrated work order system.
Tigard currently uses MaintStar as its CMMS and work order system. This software has
a number of shortcomings for the Department's needs.
• It integrates poorly with the City's GIS system. The Department is not able to tie
individual assets within the system or work orders to geographical locations in
GeoCortex map layers.
• It integrates poorly with the City's financial management system, Springbrook. This
eliminates the possibility of effectively tracking costs associated with work orders.
• It does not easily produce reports on workload or efficiency, so while work orders
can be tracked and completed, data on past work orders cannot be efficiently
obtained. This eliminates the possibility of using the system for performance
measurement or decision-making about resource allocation.
• It does not have mobile capabilities, which means that staff are not able to receive,
view, and update work orders in real time as they work in the field.
As a result of these issues, MaintStar does not provide the City with the platform
necessary to geographically locate assets and work orders, pull useful data for
performance measurement and resource planning, or adopt a data-driven, lifecycle cost
approach to asset management. The Department has recognized these needs and
intends to replace this software with a new system in the coming year. The following table
provides a listing of useful features and capabilities that the Department should seek to
obtain in its new system.
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Essential Function Description/Explanation
Asset Management The software should allow the City to upload a complete and classify a
completed listing of infrastructure assets. This would include each block or
segment of road,drainage structure,traffic light,sign,catch basin,turf field,
and drinking fountain. It should allow each asset to be classified by its
category and type and assigned to an "owner"department and/or division.
Lifecycle Costing The software should allow each asset to be assigned a construction or full
replacement cost, as well as an anticipated lifecycle and depreciation
schedule. This information is vital for capital budgeting.
GIS Integration The software should be compatible with the City's GIS system, which
means that each stationary infrastructure asset can be assigned a specific
location in one of the public works GIS layers. The City's software should
allow this capability so that the geographical location of any asset or work
order can be quickly searched, and GIS layers can display information
about, and link to, the assets populating them.
Work Order Management The software should be able to manage a work order system which
provides the basis for a Department-wide preventive maintenance
program, detailed reporting, and staffing allocations. Work orders should
be comprehensive enough to project labor needs based on historical
workload volume.
Public Portal The software should provide one of the following two functionalities: It
should a) offer a public portal feature which integrates with the software's
work order system, or b) be compatible with the City's existing service
request portal and be able to convert these requests into work orders. In
either scenario, the system should allow citizen requesters to log in and
view(and receive updates on)the status of their request as it is scheduled,
updated, and completed.
Field Access The software should include access to a mobile application which can be
used by staff in the field to look up work orders, identify their geographic
location, read prior status updates for them, record labor hours and
vehicle/equipment use against work orders, and update work orders'status
or mark them complete. Staff in the field should be able to access this
application on mobile devices to update the system in real time.
Reporting The software should be able to produce detailed reports from the work
order system, as well as the program's asset management module.
Examples of reports may include a)the total depreciation of sidewalks over
a selected time period, b) the total maintenance and replacement cost of
signs in FY 2017,c)the total labor hours spent on non-routine maintenance
of drainage culverts over the past 18 months, e) the total number of work
orders requested for the pavement of a particular block or road segment.
A software system with these capabilities will allow the Department to become more
strategic, transparent, and efficient in the way it manages its workload, maintains the
City's infrastructure and public assets, and measures performance.
Recommendation 61: The City should ensure that the selected asset management
system replacing the existing work order system has the capabilities necessary to
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foster an efficient, transparent, and data-centric approach to infrastructure
maintenance and workload management.
(3) The Department Should Seek to Maximize the Use of Work Orders In Its
Asset Management System.
One of the primary components in a functional asset management program is a work
order system which is integrated with the asset inventory. The Department's current
system allows work orders to be assigned to a parks or infrastructure asset, which is an
important feature, but it also has several crucial shortcomings as outlined earlier in this
chapter.
When a new asset management and work order system is implemented, the Department
should focus on capturing as much of their staff's activities as possible. Citizen-requested
service requests, preventive maintenance work, and regularly scheduled tasks such as
mowing should all be tracked using work orders in the system. Each work order should
capture the source (preventive maintenance, citizen request, etc.), the type of work, the
corresponding asset, and the dates received, scheduled, and completed.
When work is completed, the labor and vehicle time used to execute the work order
should be recorded. For example, a work order composed of completing a scheduled day
of mowing fields would consist of 7-8 hours of staff time. A work order for pothole repairs
would include the time spent by each laborer, as well as any time for the hot mix trailer or
other equipment used.
With intensive data collection in the work order system, the Department will be able to
begin reporting on data such as the timeliness of completing work orders of different
priority levels, hours of staff time spent working on different assets, and the percent of
proactive vs. reactive activity. These are important metrics for measuring performance,
identifying infrastructure which may need replacement, and assessing Department
workload.
Recommendation 62: The Department should track all field work — proactive and
reactive — using work orders within the asset management system.
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(4) Parks Staffing Should Be Based on Labor Projections from a Preventive and
Routine Maintenance Calendar.
To determine the number of staff needed, the Parks Maintenance Division uses a "master
spreadsheet" which shows all of the parks and acreage within the City of Tigard. The
spreadsheet shows the number of hours per month required for each park element, and
it totals the number of hours needed across all parks to produce a month-by-month labor
needs assessment. The Division's use of this master spreadsheet to project labor needs
is a good practice and forms the basis of a preventive maintenance calendar.
With the establishment of a work order system that enables reporting on past workload
and scheduling of maintenance tasks, the content of the master spreadsheet should be
imported into the asset management system. With this, the Division will have the
information resources needed to adopt a more long-range staff planning approach.
1 . The Division should estimate the labor required for the preventive and routine
maintenance and upkeep tasks on its calendar in order to project the number of
days needed for that work and the dates when it should occur. The existence of
the parks master spreadsheet will make this exercise fairly straightforward.
2. To this baseline schedule, the Division should add additional time for responding
to citizen requests or management directives, based on historical workload volume
for the season in question.
It will only be possible to anticipate reactive workload volume (part 2) when a year's worth
of work order data is available, so initially the only scheduled work may be preventive
maintenance.
The Division should use the resulting labor requirements from this exercise to determine
the number of full-time and seasonal staff required to accomplish the preventive and
routine maintenance calendar. The routine maintenance calendar should form the basis
of the Division's staffing plan, with reactive workload volume factored in as the data
collected makes that workload more apparent.
Recommendation 63: The Department should develop a preventive and routine
maintenance calendar for the Parks Maintenance Division in the asset management
system and use this tool as the basis for calculating staffing needs.
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(5) The Department Should Seek to Implement a Fully Functional Capital
Project Management System.
One of the most important functions of the Public Works Department is the oversight of
capital project construction. The management of construction projects involves a
significant amount of documentation and paperwork, including bid documents, contracts,
plans, permits, specifications, invoicing, accounting, and grant management. To
streamline this work, many municipalities utilize dedicated project management software.
In Tigard, the City's organization-wide financial management system, Springbrook, is
used for capital project management. This system is not suited for project management,
and leaves the Department looking for workarounds in a number of areas:
• The system does not allow changes to project budgets to be made easily and
cannot allocate revenues associated with a specific project (such as grant funding)
to that project.
• The software is not able to track funding encumbrances beyond one fiscal year,
which presents significant difficulty because most construction contracts extend
beyond one year.
• The system has a timekeeping module in which staff enter their time, but hours
cannot be allocated to specific projects in the system. This prevents it from being
effective as a project cost accounting tool.
In order to manage the necessary functions involved in project management without the
help of an effective software system, the Department's staff use a myriad of excel sheets
as workaround solutions. The image below shows an in-progress project report generated
by engineering staff using Excel in order to accurately account for project revenues and
expenditures.
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95047 Hunziker Industrial Core/Wall Street
Total Project Cost: 4,713,000
Remaining
Total Project 2018
Actual 2018 Revised Estimated Actuals Budget
through Adopted Supplemental 2018 Actuals 2018 IEstimated-
2018 Budget or Other Budget 2018 as of 2/1719 Actual]
EXPENSES
Internal Expenses
Construction Inspection 18,664 18,664 {18,664}
Project Management 272,464 60,000 60,00D 75,000 75,880 880
Total internal 291,128 60,000 - 60,000 75,000 94,544 {19,544}
External Expenses
Land/Right of Way Acquisition 373,961 - 400,000 373,961 26,039
Design and Engineering 647,314 550X00 550,000 445,000 331,681 113,319
Construction 1,021,965 2,300'000 2,300,000 1,900,000 1,021,965 878,035
Contingency 514A00 514,000 537,098 537,098
Total External 2,043,240 3,364A00 - 3,364,000 3,282,098 1,727,607 1,554,491
Total Project Expense 2,334,368 3,424,000 - 3,424,000 3,357,098 1,822,151 1,534,947
REVENUES
Revenue Funding Source
200-Ga5 Tax Fund 92,554
Total Revenue Funding 92,554 - - - - - -
Other Revenue Source
Other-Develaper Contri6. 722,685 1,378,000 1,378X00 1,378,000 676,551 701,449
Other-FederalEDAGrant 722,684 1,860,000 1,860,000 1,770,000 676,551 1,093,449
Other-State Earmark 651,520 186,000 186,000 186,000 398,411 212,411
Total Revenue Funding 2,096,889 3,424,000 - 3,424,000 3.334,000 1,751,513 1,582,487
Total Revenues 2,189,4433,424,000 - 3,424,000 3,334,000 1,751,513 1,582,487
Likewise, the image below shows allocations of engineering time developed by staff using
excel due to Springbrook's difficulty with this function.
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DIVISIONENGINEERING • TO 1
FOUR ADMIN POSITIONS 100%• •D ALL ENGINEERING STAFF INCLUDING FOURADMIN
■CIP a CIP
■Sys.Infrastructure ■Sys.Infrastructure
■Private Development ■Private Development
■Light Rail ■Light Rail
■Engineering Standards ■Engineering Standards
/ 2%
■Overhead 1% , ■Overhead
Z1% ■Out of Office ■Out of Office
DIVISIONENGINEERING •UR(LATEST PAY PERIOD ENDING1
FOUR ADMIN POSITIONS 100%• AD ALL ENGINEERING STAFF INCLUDING FOURADMIN
■CIP ■CIP
■Sys.Infrastructure ■Sys.Infrastructure
■Private Development ■Private Development
■Light Rail ■Light Rail
■Engineering Standards ■Engineering Standards
■Overhead 1%/ ■Overhead
1% ■Out of Office ■Out of Office
Producing updates on project budget and status, and accounting for staff time spent on
projects, should be straightforward tasks for a strong capital project management
software. While the Department currently has no option but Springbrook, the system is
nearing the end of its useful life and is slated for replacement in the next two to three
years. When this occurs, the Department should work with the Finance Department to
ensure that the selected system has the ability to facilitate capital project management. If
this cannot be arranged, the Department should implement its own project management
software in order to eliminate the need for multiple workaround tools and improve the
efficiency of project management staff.
Recommendation 64: The City should ensure that the system which replaces
Springbrook has a robust project management module or invest in a separate
software specifically designed for capital project management.
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(6) The Department Should Adjust Its Approach to Making System Master Plan
Updates.
The Public Works Department maintains a series of system master plans for the five major
infrastructure systems in Tigard. These are the water, wastewater, stormwater, streets,
and parks systems. These master plans outline the Department's planned investment in
each system over a ten-year period; they are used as part of the capital planning process
and provide technical background for planned or considered projects, ensuring that each
system is able to meet the needs of the community. These plans take the place of a
Department strategic plan, which would be a 5+ year document outlining the vision and
mission of the department and the steps planned toward realizing them. The system
master plans are able replacements, and have the ability to focus in more detail on the
specific nature of each infrastructure system; this is a benefit since streets, parks, and
utilities each have different public perceptions, capacity needs, funding mechanisms,
stakeholder groups, etc.
The master planning system can be improved in two ways:
1 . Currently, the system master plans are updated every 10 years. The Department
should shift to a staggered 6-year update cycle instead. This will provide more
continuity between master plan updates, prevent the plans from becoming
outdated, and allow the Department to focus on one master plan update per year.
2. The system master plans should include some discussion about the purpose of
the infrastructure system and how the master plan supports the vision and goals
of the Department and the City of Tigard. While these documents will remain
primarily technical, the addition of some strategic context will help these
documents become more relevant to the City as a whole and more accessible to
the public.
Recommendation 65: The Department should seek to update each system master
plan once per six years on a rotating basis.
Recommendation 66: The Department should include some strategic discussion in
the master plans of the systems' purpose for the community and how the plan
supports the goals of the Department and the City.
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(7) The Department Should Provide Additional Engineering Help in the
Development Engineering Group.
The development engineering group is led by a Principal Engineer who oversees 4 Senior
Engineering Technicians and one Engineering Tech II. All six of these staff conduct
design review of plans submitted with permit applications, but only one of them — the
Principal Engineer — is a professional engineer. Without the credentials or experience
that come with P.E. certification, Engineering Technicians are limited in the types of
determinations they can make, and they cannot develop conditions of approval.
These technical engineering responsibilities fall exclusively to the Principal Engineer.
When the Principal Engineer is unavailable - on vacation or other types of leave, the
responsibility for leading the more complex engineering functions of the group falls to the
Assistant City Engineer, who oversees the Principal Engineer.
To better support the development engineering function, the Department should ensure
that a backup protocol is in place to address the need for P.E. oversight and involvement
in instances when the Principal Engineer is not available or when workload requiring the
attention of that position exceeds capacity. This should include the use of other P.E.'s in
the Engineering division as necessary in order to avoid potential bottlenecks.
Recommendation 67. The Department should provide development review backup
for the Principal Engineer, including the use of other P.E.'s in the Engineering
Division.
(8) The Seasonal Influx of Parks Maintenance Staff is Excessive for the Existing
Organizational Structure.
The Parks Maintenance Division uses many seasonal staff during the spring, summer,
and fall months. These staff all report to the Parks Supervisor during their time with the
City. The organizational chart below depicts this structure.
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Division
Manager
Recreation Parks
Environmental Coordinator Supervisor
Pro.
SeasonalStaff
An appropriate span of control for the Parks Supervisor would be no more than 8-10 staff.
During the winter months, the Division's staffing falls well under that threshold. When
seasonal staff arrive, however, the Parks Supervisor is often tasked with directly
overseeing 18 or more staff. This span is excessive and prevents the supervisor from
giving sufficient attention and oversight to staff.
To address this, the Department should structure the seasonal workforce so that many of
the workers report to another employee other than the Parks Supervisor. This may be an
Assistant Supervisor position which replaces one of the Senior Utilities Worker positions,
or one of the Senior Utilities Workers acting as a supervisor during the seasonal months.
The following chart shows how this revised structure would look.
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CoordinatorDivision
Manager
Environmental Recreation Parks
Prog
Seasonal Staff L_ Assistant
(4+) Supervisor
LSeasonal Staff
Adding this level of stratification will reduce the management burden on the Parks
Supervisor and allow more effective oversight of seasonal staff.
Recommendation 68: The Department should adjust the organizational structure
to narrow the Parks Supervisor's span of control and allow more effective
oversight of seasonal staff.
(9) The City Engineer's Span of Control Should Be Narrowed.
The City Engineer's position requires management of many staff in disparate roles. The
position is responsible for managing the development and coordination of Tigard's CIP,
overseeing the funding, design, and construction of capital projects, coordinating grants
for the construction of capital projects, working around the functional shortcomings of the
Department's available software, and supervising the Assistant City Engineer. As the
following chart shows, this involves management of 8 employees in varying functions.
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City En meer
Capital Management Admin. Assistant City
.rovement Analyst Specialist 11 En ineer
:
• ..
• .
ject Senior.Project Project
.. .
Project Principal En ee ing
Development
En neering
Coup
For positions with high-stakes responsibilities such as delivering an $18,000,000 capital
improvement plan, and those charged with supervising a wide range of responsibilities, a
narrower span of control with no more than 6-7 staff is appropriate. The Department plans
to work with another consultant to specifically assist them with an analysis of their
department structure. In this effort, the Engineering Division will be evaluated with one
intended outcome being a reduction in the span of control for the City Engineer.
Recommendation 69: The Department should adjust the organizational structure
to narrow the City Engineer's span of control and provide oversight assistance to
project management staff.
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9 Performance Measures
The City of Tigard is preparing for the implementation of a more data-informed decision-
making framework, as discussed in the chapter on City Management. By collecting,
analyzing and utilizing data regarding service provision, the City can improve decision-
making and education of the public regarding City performance. This will work well with
the current Mayor and Council's goal of ensuring "sound, transparent decision-making".
Ideally, the City will identify a small number of critical performance metrics for each
department with the City's performance in meeting these measures widely reported —
both to the City Council and the public — and published in a dashboard approach on the
City's website. Where ever practical, the City should attempt to identify performance
metrics that report on outcomes achieved from the services provided and which are linked
to the overall adopted strategic goals of the City as adopted by the City Council in the
City's strategic plan.
The following sections provide sample recommended performance measures for each
operational area of the City's organization. It is important to note that in many cases, the
City does not currently have data available necessary to report on preferred measures
and staff will need to start capturing this data before the measures can be reported on. It
is likely to take several years to fully implement a robust performance measurement
program and embed into the organizational culture a data-informed approach to
management and policy decisions. Notwithstanding this data limitation, there are many
measures that can be implemented immediately, or as interim measures, until the data
becomes available to implement the desired measures.
An effective and robust performance measurement program is designed to meet many
organizational needs. Some common aspects include:
• Serving as a tool to assist in the evaluation of the quality and effectiveness of
operations. It is accomplished by collecting, analyzing, and reporting performance-
related data.
• Measures can be based on inputs (resources used), outputs (activities performed),
efficiency measures (ratio between inputs and outputs), or outcomes (results
achieved). Efficiency and outcome measures are often the most difficult to
effectively measure or quantify but provide more useful data than simple input/
output counts.
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• Government accountability is often a driving factor in local government use of
performance measurement. Effective use of performance measures can enhance
transparency and public trust.
• Measures should ideally be aligned with adopted strategic goals. Is progress being
made toward the highest-level goals? What has the greatest effect on the people
served?
• The performance measure should be easily understood by the general public.
Overly complicated or obscure measures, even if providing great data on
performance, will not be effective if the public cannot understand what it is
showing? Some measures are more important for use by managers to make
decisions, but aren't appropriate for public reporting.
• A department may monitor more performance measures than those reported as
part of the City's dashboard. Public facing measures should be ones that inform
on overall service outcomes, when possible, and that provide insight to the public
and policy makers regarding City performance. Additional measures may be
utilized internally, only by the City Manager and Department Heads, as indicators
of staff or process efficiency and/or effectiveness.
Ideally, the performance measures would be provided on the City's website with frequent
updating (to maintain relevancy) at least quarterly or monthly. The following sections
provide recommended measures for each operational department.
1 . CITY MANAGEMENT
Data Suggested
Measure Intent Requirements Benchmark
City Manager's Office
% of respondents Indicator or public perception of Requires annual 80%
feeling City is well- overall city operations. survey to be
managed conducted to provide
data.
Annual work plans Ensures annual workplan n/a 100%of
developed for each developed by each department to departments.
department with guide work efforts. A quarterly
quarterly review review should be conducted by the
conducted. City Manager with one semi-annual
update to Council.
Human Resources
Annual turnover rating Measures staff turn-over. Over Data currently exists <10%
time, this could be established as to measure this. annually
two separate measures: (1)
involuntary; and (2) voluntary.
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Data Suggested
Measure Intent Requirements Benchmark
%of recruitments To maintain fast moving Data is/or can easily <45 days for
completed within recruitment processes to attract be captured in entry level
established targets and acquire best quality NeoGov. positions;
candidates. <60 days for
professional
positions;
<90 days for
executive
positions.
%of recruitments with Data currently >95%of
qualified applicants available to measure. positions
from underrepresented filled.
groups.
%of employees still Measure of effectiveness of the Data is currently >95%
employed 1 year after recruitment process to represent available to measure
hire. both qualified candidates and this though not
those that fit the organizational complied.
culture.
%of Staff rating Measure to evaluate quality of the Surveys will need to >90%
training courses as training provided to employees. be conducted after
providing valuable each training session.
content.
Workers' Measure of effectiveness of Date currently <1
Compensation workers'compensation program. available.
Modification Factor Industry standard is 1 —any factor
below one represents city program
is more cost effective than industry
standard.
2. CENTRAL SERVICES
Measure Intent Date Suggested
Requirements Benchmark
Design & Communications
Percent of social media The City's goals include diversity, The City will collect >_3%
followers who identify equity, and inclusion. This metric data from Facebook,
their primary language shows if the City is connecting to a Twitter, and Instagram
as other than English. more diverse population group with on how many of the
its social media outreach efforts. followers on those
platforms identify their
primary language as
other than English.
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Measure Intent Date Suggested
Requirements Benchmark
Communication's This is an output measure related The City will need to >_98% are
published written to effective communication of record any errors error free
material written material provided or discovered post-
reviewed by Central Service's publication.
communication's team. Error free
messages are highly important.
Social Media w/tracking This is an efficiency measure. The Data of"likes"or >_5% annual
ability (Facebook, etc.) goal is to encourage staff to be people following the increase
shows an increase in innovative in ensuring a specific city's posts will need from the
people liking or growth measures are achieved with to be obtained from prior year
otherwise following the the outcome measure of each social media site
city's posts. transparency. utilized by the City.
Number of articles The City is in the process of The City will record ;2t
published about the updating its Strategic Plan. Getting the number of publications
City's Strategic Plan. information to the public about publications it puts out annually
those updates and about the regarding its Strategic
overall Plan is important. Plan
Percentage of design This is an efficiency measure Before starting a >_80%of
projects completed by designed to assist with the design project, design projects are
the agreed upon evaluation of project staff staff will communicate completed
deadline. efficiency. with the requestor of by the
the work and come up agreed upon
with an agreed upon deadline.
deadline.
Municipal Court
Defendants The outcome is theoretical in that The City will continue >_85%
successfully comply you are "connecting"with offenders to compare the
with court orders prior in a way that is successful enough number of compliance
to a suspension being to get them to comply with court matters compared
issued. orders. with those that require
additional court action.
Case clearance rate Clearance rates measures a court's Total incoming cases >_97%
ability to dispose of incoming and total cleared
cases. The goal is to dispose of as cases must be
many cases as are received, or as recorded.
close to this amount as is
reasonable. This is a measure of
court operations efficiency and
could indicate staffing deficiencies.
Case load aging The goal is to clear cases in a The date when a case >_60%of
timely manner. enters the court and cases are
the date when the cleared
case is resolved within 90
(excluding cases that days.
go to warrant) are
recorded.
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Measure Intent Date Suggested
Requirements Benchmark
Property Management
Workorder completed Measures whether staff are being Work order data is >_80%or
as scheduled. scheduled effectively. maintained that shows greater start
scheduled versus when
actual start date scheduled.
The number of re-work When maintenance staff do a job Work order data is <_5%of total
workorders required but have to come back to do it maintained that shows work orders
again because something was not whether the work is is "re-work"
completed correctly or as "re-work".
expected, that can be a measure of
the quality of work they are
providing their customers.
The percentage of Measures whether the City is Total work orders <_ 10%of
outsourced excessively contracting out repairs. completed with city work is
maintenance work to This could be an indication of staff compared with outsourced
in-house work on a maintenance issues that need to total work orders
project basis be addressed or a matter of having outsourced to a
staff trained/certified to perform vendor.
repairs in-house.
Fleet Maintenance
The number of This measures the efficiency of the Total work orders with >_95%of
preventative City's fleet preventive maintenance preventive preventive
maintenance tasks program. maintenance work maintenance
performed on schedule showing a scheduled tasks are
start date are performed
compared with the on schedule
actual start date.
Fleet workorder"re- This is an indication of service Total work orders are <_5%of total
work" rate quality. compared to the work orders
number of re-work are re-work
workorders. orders
2. COMMUNITY DEVELOPMENT
Measure Intent Data Suggested
Requirements Benchmark
Building
Percent of residential Measures the Department's Accela can produce 95%
building plan reviews efficiency in quickly routing and these reports, but the
completed within 15 reviewing residential plans in order Department currently
business days to provide timely customer service. needs consultant help
to generate them.
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Final Report of the Performance Audit Assessment TIGARD, OREGON
Measure Intent Data Suggested
Requirements Benchmark
Percent of commercial Measures the Department's Accela can produce 95%
building plan reviews efficiency in quickly routing and these reports, but the
completed within 20 reviewing commercial plans in order Department currently
business days to provide timely customer service. needs consultant help
to generate them.
Percent of submittals Measures the City's rate of Tracking this measure 50%
received electronically utilization for more efficient and will require full
technology-driven methods, as well implementation of
as the Department's effectiveness electronic document
in publicizing their availability. review, including
digital plans
submittals.
Land Use$
Percent of Type I Measures the Department's Accela can produce 90%
applications closed efficiency in quickly reviewing these reports, but the
within 30 days straightforward land use Department currently
applications and bringing them to a needs consultant help
resolution in a timely manner. to generate them.
Project tracking
spreadsheets are
being used in the
interim.
Percent of Type II and Measures the Department's Accela can produce 90%
III applications closed efficiency in reviewing more these reports, but the
within 90 days (date of complex land use applications and Department currently
complete application bringing them to a resolution before needs consultant help
received to date of the State-mandated deadline. to generate them.
decision, excluding Project tracking
appeals) spreadsheets are
being used in the
interim.
Inspections and Code Compliance
Percent of inspections Measures the Department's This measure can be 98%
completed within 1 efficiency in providing timely reported upon already
business day of request customer service and ensuring that using Accela.
building and code compliance
inspections occur without delay.
Average number of Measures the Department's This measure can 15
address stops per workload per inspector and ability to already be reported
inspector workday spread inspections effectively upon with Accela;
among inspectors. inspections data was
provided to the project
team.
8 Land use application cycle times are largely governed by State laws which dictate when an application may be deemed incomplete
and when it must be acted upon once submitted.
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Measure Intent Data Suggested
Requirements Benchmark
General
Percent of"satisfied" Measures the Department's overall This measure requires 80%
and "very satisfied" ability to meet customer implementation of a
responses to customer expectations customer survey tool.
survey
3. FINANCE
Measure Intent Data Suggested
Requirements Benchmark
Finance Administration
Credit rating The City is fiscally responsible and Earned credit rating Target AA1
impacts future borrowing costs from at least Moody's /AA+
or Standard & Poor's
rating services
General Fund Reserve The City is fiscally responsible and Financial statements >_ 16.67%
ensures sufficient reserves to showing the percent of General
weather economic downturn or unassigned general Fund
unexpected financial need of the fund reserves as a reserve
organization. percentage of the balance
City's total general
fund operating budget
Finance Operations
Fund balance budget This measure shows how accurate The City already <5%
versus actual city staff are at budgeting in maintains budget-to-
comparison to actual financial actual data. Analysis
performance will be completed on
the percentage
difference between
mid-year budget
projections and ending
actual numbers
Contracts & Purchasing
Purchase orders under With the City using a rebate The City will need to >_80%
$1,000 are made with a program for P-card purchases, the have its financial
rebate p-card or credit more department staff use those software record the
card. cards, the greater the city's rebate total number of
(considering payment on the cards invoices under$1,000
are made timely). and then identify the
total number of those
purchases made with
a P-card.
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Final Report of the Performance Audit Assessment TIGARD, OREGON
Measure Intent Data Suggested
Requirements Benchmark
Information Services
Server intrusion Identifying any attempt to penetrate Appropriate software Within 24
identification the City's computer network that monitors for hours of
system intrusion and occurrence
immediately reports
any suspected
attempts
Internal Phishing Reducing the risk of system The City will continue <5%
campaigns clickthrough intrusion caused from employees to employ an active
rates clicking on email links or opening phishing campaign
email attachments and keep records of
the total emails sent
and total emails that
were "clicked"or
otherwise had an
attachment opened
Helpdesk ticket This is measure of IT workorder IT will monitor total Within 4
response times ticket effectiveness and efficiency. workorder/tickets and hours for
record in the priority or
workorder system emergency
times of ticket creation incidents
and initial arrival time and within
in response to the 3 business
workorder/ticket. days for all
other
incidents.
Average cycle time for This measures the time it takes for IT will monitor and <3 days
open IT workorder IT staff to complete a workorder record workorder
tickets ticket. Cycle times will vary creation date with
depending on the difficulty of the workorder closure
repair, but if the average per ticket date.
is high, that could be indicative of a
need to determine the cause.
4. LIBRARY
Data Suggested
Measure Intent Requirements Benchmark
Collection turnover To ensure that the library is making Tracking circulation >5 times
above x%. the best use of space available and overall and by
meeting patron needs. program area.
Proportion of collection To keep the library current and Tracking circulation >5%of the
replaced per year. meeting patron needs for new overall and by collection.
materials. program area.
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Final Report of the Performance Audit Assessment TIGARD, OREGON
Data Suggested
Measure Intent Requirements Benchmark
Getting new materials To keep the library current and Technical services 3 days
into circulation. meeting patron needs for new tracking incoming
materials. orders and turnaround
time to shelves,
Programs attended do To keep programs current and fresh Patron surveys Depends on
not decline in in meeting patron needs; to ensure the program
attendance that staff are constantly using Monitoring attendance
patron feedback and monitoring trends
attendance to improve programs.
%of programs Ensure that full needs of the entire Tracking of the >10%of
provided to community are met by focusing number of programs programs
underserved patrons some efforts on underserved conducted by target (initially).
populations. audience category.
Overtime,
program
%ages
should be
reflective of
population
served.
%of participants To measure participant perception Will need to conduct >80% per
indicating satisfaction of program value. post program survey program.
with the program. to collect data.
5. POLICE
Date Suggested
Measure Intent Requirements Benchmark
Average response time To measure response time to calls Data available from Must be in
to calls for service (by based on priority (faster response to CAD system. alignment
priority) higher priority timeframes). with
staffing
levels
adopted.
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Final Report of the Performance Audit Assessment TIGARD, OREGON
Date Suggested
Measure Intent Requirements Benchmark
Annual Proactive Time To measure amount of time Data readily available 60%or
available for officers on street to from CAD data but will greater
interact and engage with the public need to be proactive
(excludes all training, coordinated with other target.
administrative, and call datasets regarding
response/handling time). Higher administrative time Must be
proactive time provides greater (training, report adopted in
opportunities for public writing, etc.) to get net alignment
engagement. available proactive with the
time. staffing
allocations
adopted.
Case clearance rate To measure percentage of cases Data readily available
cleared/closed over time. but will need to be
tracked consistently.
6. PUBLIC WORKS
Data Suggested
Measure Intent Requirements Benchmark
Development Review
Percent of engineering Measures the Department's Accela can produce 95%
plan reviews meeting consistency in providing timely these reports, but the
established cycle times service to facilitate sound Department currently
development. needs consultant help
to generate them.
Percent of engineering Measures the Department's This measure should 98%
inspections completed efficiency in providing timely be reported upon
within 2 business days customer service and ensuring that using Accela, but a
of request engineering inspections occur consultant may be
without delay. needed currently to
obtain this data.
Parks Maintenance
Percentage of parks Measures the division's ability to This will require an 90%
receiving a score of keep parks in a condition that is annual parks condition
"good"or"excellent" in appealing to residents. assessment.
an annual parks
condition assessment
Percentage of Measures the accessibility of This will require GIS 85%
households living within parkland and open space to City analysis to determine
'/z mile of a park. residents. the distance of
housing units from
parks and open
spaces.
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Final Report of the Performance Audit Assessment TIGARD, OREGON
Data Suggested
Measure Intent Requirements Benchmark
Park acres per 1,000 Measures the overall availability of This calculation can 10 (national
residents equals or parks and open space to residents already be conducted average)
exceeds national of Tigard. with available park
average. acreage and
population data.
Proportion of total work Measures the degree to which the This will require a 70%
orders (or labor hours) Department's focus is on routine functional asset
spent on routine tasks and preventive maintenance rather management and
and preventive than "putting out fires". Indicates the work order system
maintenance rather quality of park conditions. with reporting
than service requests capabilities.
Recreation
Percentage of residents Measures the recreation program's This will require an 75%
who consider the City's effectiveness in meeting the needs annual community
recreation programs to and expectations of Tigard's survey.
be "good"or"very residents.
good"
Percent of recreation Measures the cost efficiency and This metric can be TBD
programming costs value generated by recreation measured currently
recovered through user programming—a target cost using budget and
fees recovery level should be a policy recreation revenue
decision made by City leadership figures.
Percent of recreation Measures the City's effectiveness in This metric will require 80%
programs meeting reaching residents with appealing attendance counts at
minimum enrollment recreation offerings and limiting recreation
programs to those in which programming and the
residents have interest. establishment of
minimum enrollment
benchmarks.
Capital Planning
Percent of CIP projects Measures the City's ability to None, this data is 80%
which are completed accurately predict and effectively already readily
within 90 days of their manage the timing of capital project available.
initially planned progression.
completion date
Percent of CIP projects Measures the City's ability to None, this data is 85%
which are completed accurately scope and cost capital already readily
within the initially projects and manage project-related available.
planned budget expenses during the progression of
the project.
Percent of CIP projects Measures the City's ability to None, this data is 85%
with change orders manage change orders and their already readily
totaling less than 15% impact on costs over the life of the available.
of the initially planned project.
budget
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Final Report of the Performance Audit Assessment TIGARD, OREGON
Recommendation: The Departments should expand on their existing performance
measures by identifying and adopting additional performance and workload
measures to enlighten the public and internal stakeholders regarding the
Department's performance and accomplishments.
Matrix Consulting Group Page 133