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HomeMy WebLinkAboutCAO-002-17CAO Report If this information is required in an alternate accessible format, please contact the Accessibility Coordinator at 905-623-3379 ext. 2131. Report To: General Government Committee Date of Meeting: March 6, 2017 Report Number: CAO-002-17 Resolution: File Number: By-law Number: Report Subject: Service Delivery Review Approach Recommendations: 1.That Report CAO-002-17 be received and; 2.That Council approve the recommendations set out in this report. Municipality of Clarington Report CAO-002-17 Page 2 Report Overview This report outlines the proposed approach to undertaken service delivery reviews of the Municipality’s 145 services including: the criteria for selecting services for review, questions to be answered by reviews, frequency of reviews, number of reviews per year and who would undertake them. It suggests how priorities should be determined for services to be reviewed for this and future years to ensure an ethos of evaluation in delivery of municipal services. 1. Background Report CAO-003-15, “Implementing the 2015-18 Strategic Plan” indicated that to implement Strategic Plan item 2.2, staff would, in 2017: (1) Review best practices by municipalities in service delivery reviews, (2) Develop an evaluation process including (a) criteria for selecting services for review, (b) questions to be answered by reviews, (c) frequency of reviews, (d) number of reviews per year and (e) who would undertake them, (3) Determine priorities for services to be reviewed. 1.2 These types of reviews are one of three types that the Interim CAO will be putting in place. As noted in earlier reports, including his December 9, 2016 presentation and discussion with Council and repeated at paragraph 4.5 of FND-001-17 (the 2017 Budget Report) the other reviews include Customer Service Improvement Initiatives by each department and a deep review of the land development approval process. As their name implies, these reviews have a different purpose and are not designed to answer the 10 questions of Service Delivery Reviews - explained in 2.4 below. 2. Proposal Best practices for these types of reviews was researched and identified in Report CAO-006-13 (Attachment 1). A quick scan of literature and practice since then would suggest this widely researched and used process referenced there – “A Guide to Service Delivery Reviews” (which was developed jointly by the Municipal Finance Officers, the Ontario Municipal Administrators Association, the Association of Municipal Managers, Clerks and Treasurers and the then Ministry of Municipal Affairs and Housing) remains the most suitable, feasible and acceptable process for these reviews. Most of the items that the Strategic Plan Implementation called for to be developed – item (2) of paragraph 1.1 above – have been presented to Council in the past, but are Municipality of Clarington Report CAO-002-17 Page 3 detailed and consolidated here so that the complete approach to service delivery reviews can be seen in one place. While not addressed in the earlier report, the best practices guide referenced above addresses (a) the criteria for selecting services for review. In summary, it suggests these include services that may be: 1. Frequently over-budget or 2. The subject of an inordinate number of complaints or 3. Consistently unable to meet customer demands or 4. Consistently scoring lower than industry norms on customer service surveys or 5. Frequently unable to meet quality standards, industry/legislative standards or 6. Unable to attract or retain qualified staff/contractors or 7. Not likely to be competitive with alternative providers or 8. Putting at risk the ability to meet a strategic or business plan priority or 9. Materially constrained in its ability to: meet current accepted industry practices or use available technologies or respond to shifts in demographics or trends in service demands. The Interim CAO would add a 10th and 11th criteria: 10. Those services where a department requested staffing for the service and the Interim CAO responded indicating that the request would be first subject to the service undergoing a service delivery review. In this case, for the 2017 requests this included Animal Shelter services or 11. Those services where the Department responsible for the service has asked that the service be reviewed. Importantly another issue to be resolved is the definition of the “service”. It is important to be clear about the scope of a service when deciding a “service’ will be reviewed. Rarely would a “service” be the same as a “Department”. (And where an entire Department would be reviewed using the definition of review used here, the allocation provided in the 2017 Budget would be insufficient except in the case of a very small Department.) This was addressed in Report CAO- 004-14 where a Service Inventory detailing the 145 services provided by Clarington was established. Appendix 2 of that Municipality of Clarington Report CAO-002-17 Page 4 report listing these services and categorizing them by purpose is attached (Attachment 2). This essentially took a recognized framework used in many Canadian municipalities and established by IBM/KMPG/MISA of organizing and naming services based on their purpose. Staff looked in detail at each Department’s services classifying them according to this best practice inventory. It is from this list of 145 services that one would choose services to be reviewed. A few changes have occurred in the responsibility for service delivery since this inventory was completed in 2014 and these have been updated in this table. Of course, there are a range of services where, within the service, its complexity and nature may have changed (e.g., increased number of regulations in the accessibility area, new standards affecting cemeteries) but this does not constitute a new “service”. Item (b) in1.1 above - questions to be answered – were noted and discussed in the CAO’s Dec 9, 2016 report at Council’s Special Meeting. These 10 questions repeat what is addressed in Report CAO-006-13 which are derived again from the best practices guide referenced earlier. For ease of reference, again, these 10 questions are: 1. Do we really need to continue to be in this business/service? 2. What do citizens expect of the service and what outcomes does Council want for the service? 3. How does current performance compare to expected performance? 4. Do the activities logically lead to the expected outcomes? 5. How is demand for the service being managed? 6. What are the full costs and benefits of the service? 7. How can benefits and outputs of the service be increased? 8. How can the number and costs of inputs be decreased? 9. What are the alternative ways of delivering the service? 10. How can a service change best be managed, implemented and communicated? Item (c) frequency of reviews is not specifically addressed in earlier reports or best practice guides, but it can be reasonably concluded that it is important to frequently monitor factors noted in1.3 and ensure services are reviewed where they consistently display one or more of these characteristics or have significant risks to the corporation if not addressed. Various discussions in the sector over time suggest that regardless of any other factors, a service should be thoroughly reviewed at least once every three council terms, i.e., 12 years. This does not mean that 12 services would be reviewed each year in order to get through the 145 services in 12 years. Instead, some services may be grouped together for review purposes because they are interrelated. In other instances other types of significant reviews may be undertaken that means a service delivery review is not suitable, e.g., the upcoming Planning and Engineering Municipality of Clarington Report CAO-002-17 Page 5 Development process review. And, of course, some reviews are much smaller in scale than others simply because some services are smaller in scale than others, Item (d), number of reviews per year, is largely a function of: - need (as set out in 1.3 and 1.6 above) - complexity of the service being reviewed - resources available to undertake the reviews. Council decided in its 2017 Budget that it would make $40,000 available for reviews in 2017. Clarington is not in the position of Whitby as an example that allocated some $147,000 to undertake reviews in 2016. Interestingly some of the key items suggested in that review, i.e, IT planning, enhancing strategic planning/business planning, office space planning and talent management planning are all items that Clarington’s Interim CAO has recommended. Arguably a service delivery review is not required to determine common modern management processes and systems like this that need to be in place to ensure municipal efficiency. Item (e) – who would undertake the reviews is a key item of discussion in Report CAO-006-13 attached. There are four key considerations noted at 3.0 of that report in deciding whether to do these reviews in-house or contract them: impartiality, expertise, time and cost. External reviews are much more likely to deliver stronger scores on the first three considerations. In-house can cost less, but may not deliver these benefits of impartiality, expertise and timeliness. Regardless, current resources could not accommodate these reviews without dropping or deferring important internal audit activity or other activities undertaken by the internal auditor who in Clarington also performs a range of other finance functions. 3. Determining priorities for services to be reviewed. 3.1 It is proposed that the Audit Committee determine the priorities for services to be reviewed. To do this, the Committee would use the 11 criteria set out at 2.3 of this report and, applying those criteria to the 145 services, determine which services would be most suitable to review. 3.2 Carefully using the 2017 funding allocation, the Interim CAO would then issue RFPs for external reviews (using the review process as set out in this report) of priority services. The Internal Auditor would work with the external reviewers to organize this work inside the organization and with existing resources may directly undertake a small number of reviews of non-technical services. Municipality of Clarington Report CAO-002-17 Page 6 3.3 Once Clarington has some experience with choosing services for review and testing the market for the cost of these reviews and key factors affecting these costs, the CAO should return to Council. The CAO should report on lessons learned about the process and propose what would be an effective annual allocation for service delivery reviews to implement the approach set out in this report as part of an ethos of evaluation in delivery of municipal services. 3. Conclusion The Municipality has an opportunity, in the words of its Strategic Plan, to “demonstrate good governance and value for the taxpayer” by undertaking service delivery reviews as part of an ethos of evaluation in delivery of municipal services. How to undertake these reviews and the questions they should answer has been widely studied and the approach from other municipalities’ experiences, it is recommended, should be adopted by Clarington. Using these approaches, the Audit Committee will select services for external review. These will be managed by the Internal Auditor with CAO Office authorized RFPs issued based on the Audit Committee’s decisions. Experience with selecting services for review, including costs of such reviews, will be reported back to Council with a recommended annual allocation for service delivery reviews in future years. 4. Strategic Plan Application The recommendations contained in this report conform to the Strategic Plan. Submitted by: Curry Clifford, MPA, CMO Interim CAO Staff Contact: Curry Clifford, Interim Chief Administrative Officer, 905-623-3379 ext. 2002 or cclifford@clarington.net There are no interested parties to be notified of Council’s decision. Attachment 1 – Report CAO-006-13 “Value Added Service” Audit Attachment 2 – Appendix 2 to Report CAO-004-14 Table of Programs and Services MUNICIPALITY OF CLARINGTON ATTACHMENT 2 TO REPORT TABLE OF PROGRAMS AND SERVICES CAO-002-17 LAST REVISED: 01/03/2017 Page 1 of 11 # Service Service Delivery Mode Departments Involved Discretionary (D) or Mandatory (M) Leisure and Culture Programs 1. Recreational Instruction- Seniors programs Contracted out Community Services D 2. Recreational Instruction- Children’s dance, some children sports Contracted out Community Services D 3. Recreational Instruction- other Direct delivery Community Services D 4. Recreational Programming Direct delivery Community Services D 5. Recreational Facility- Booking Direct delivery Community Services D 6. Recreational Facility- Food and Beverage Direct delivery Community Services D 7. Sportsfield Booking Direct delivery Operations D 8. Community Grant Funding Administration- direct delivery; Service delivery- Community groups Community Services D 9. Volunteer organizational develop. and training Direct delivery Community Services D 10. Playground/Splash Pads- planning, design and construction Contracted-out Engineering D 11. Playground/Splash Pads inspection & maintenance Direct delivery Operations D 12. Parks - Planning and Design Direct delivery with some contracting out Engineering Planning Services D 13. Parks Maintenance Direct delivery with some contracting out Operations D 14. Trails - Planning and Design Direct delivery with some contracting out Engineering Planning Services D 15. Trails Construction Contracted out Engineering D 16. Trails Maintenance Direct delivery with some volunteers in several areas, e.g., Valleys 2000 and some contracting-out Operations D MUNICIPALITY OF CLARINGTON ATTACHMENT 2 TO REPORT TABLE OF PROGRAMS AND SERVICES CAO-002-17 LAST REVISED: 01/03/2017 Page 2 of 11 # Service Service Delivery Mode Departments Involved Discretionary (D) or Mandatory (M) 17. Municipal Special Event Support Direct delivery, e.g., programming, communications, operational and facilities; Community groups Corporate Services Community Services Operations D 18. Non-Municipal Special Event Support Community groups and some with direct delivery All Depts D 19. Heritage Building Designation Heritage Committee supported by staff Planning Services Municipal Clerk’s M 20. Heritage Programming and Awareness Heritage Committee, Clarington Museum supported by staff Planning Services D 21. Arts & Culture Local Boards, e.g. Museum and Archives Board, BIAs; other local entities, e.g., Visual Arts Centre; direct delivery, e.g., communicating and promoting community events, sponsoring Heritage Week, Mayor’s Gift of Art Community Services Corporate Services Planning Services Operations D Environment Program D 22. Storm Water drainage ponds- design Direct delivery with some contracting out Engineering D 23. Storm Water drainage ponds - maintenance Direct delivery Operations D 24. Storm Water drainage to pond - design Direct delivery with some contracting out Engineering D 25. Storm Water drainage to pond - maintenance Direct delivery Operations D 26. Weed Control Direct delivery Operations M 27. Litter collection- parks, valley lands Direct delivery Operations D MUNICIPALITY OF CLARINGTON ATTACHMENT 2 TO REPORT TABLE OF PROGRAMS AND SERVICES CAO-002-17 LAST REVISED: 01/03/2017 Page 3 of 11 # Service Service Delivery Mode Departments Involved Discretionary (D) or Mandatory (M) 28. Port Granby Project Direct delivery (project mgt) with some contracting out Planning Services D 29. Priority Green Project Direct delivery Planning Services D D Economic Development Program D 30. Business Retention and Expansion Support Contracted-out to CBOT Planning Services and Engineering facilitate changes to land-use, road servicing, building approvals to enable and follow through on BR&E D 31. New Business Attraction Contracted-out to CBOT As above D 32. Physician Recruitment Contracted-out to CBOT N/A D 33. Tourism Promotion Direct delivery with planning assisted by CTMB Corporate Services D 34. Visitor Information Direct delivery Corporate Services D 35. Land-Use Planning Policy Development Direct delivery with some special studies contracted- out Planning Services Engineering Legal Services M 36. Site Plan Approval Direct delivery with some special studies contracted- out Planning Services M 37. Official Plan Amendment Approval Direct delivery with some special studies contracted- out Planning Services M 38. Rezoning Approval Direct delivery with some special studies contracted- out Planning Services M MUNICIPALITY OF CLARINGTON ATTACHMENT 2 TO REPORT TABLE OF PROGRAMS AND SERVICES CAO-002-17 LAST REVISED: 01/03/2017 Page 4 of 11 # Service Service Delivery Mode Departments Involved Discretionary (D) or Mandatory (M) 39. Subdivision Plan Approval Direct delivery with some special studies contracted- out Planning Services Engineering Legal Services M 40. Condominium Plan Approval Direct delivery with some special studies contracted- out Planning Services M 41. Street Naming and Numbering Direct delivery Planning Services M 42. Committee of Adjustment Appointed Committee supported by staff Planning Services M 43. Community Improvement Program Direct delivery with Advisory Committee Planning Services D 44. Development Enquiries Direct delivery Planning Services D Transportation Program D 45. Transportation Planning Direct delivery with some contracting-out Engineering D 46. Road Construction- Design Direct delivery with some contracting-out Engineering D 47. Road Construction- Delivery Contracted-out Engineering D 48. Road Maintenance- Non-winter Direct delivery with some contracting-out Operations M 49. Road Maintenance - Winter Direct delivery Operations M 50. Seniors Snow Clearing Program Contracted- out Operations D 51. Sidewalk Construction Contracted-out Engineering D 52. Sidewalk Inspection Contracted-out Engineering D 53. Sidewalk Maintenance Direct delivery with some contracting- out Operations Engineering D MUNICIPALITY OF CLARINGTON ATTACHMENT 2 TO REPORT TABLE OF PROGRAMS AND SERVICES CAO-002-17 LAST REVISED: 01/03/2017 Page 5 of 11 # Service Service Delivery Mode Departments Involved Discretionary (D) or Mandatory (M) 54. Sidewalk Maintenance- Winter in case of by- law violation Contracted -out Municipal Clerk’s D 55. Bicycle Path – Design Direct delivery with some contracting out Engineering D 56. Bicycle Path – Marking Contracted-out Engineering D 57. Bicycle Path - Maintenance Direct delivery Operations D 58. Parking enforcement - on street Direct delivery Municipal Clerk’s D 59. Parking enforcement - off street on municipal land Direct delivery Municipal Clerk’s D 60. Right-of-way Management Direct delivery with some contracting out Engineering Operations D 61. Traffic Control Direct delivery with some contracting with the Region Operations Engineering M Community Health Program 62. Mosquito Control (West Nile Virus Program) Direct delivery with some contracting with the Region Operations M Community Safety Program 63. Building and Plumbing Permission and Inspection Direct delivery Engineering M 64. Provincial Offences Prosecution Contracted out Municipal Clerk’s D 65. Fire Safety Public Education Direct delivery Emergency & Fire Services M 66. Fire Safety Inspection Direct delivery Emergency & Fire Services M 67. Fire Rescue Direct delivery Emergency & Fire Services M 68. 911 Call Taking and Dispatching 911 Call taking- Region; Fire dispatch – contracted out Emergency & Fire Services D/M 69. Emergency Operations Centre Management Direct delivery Emergency & Fire Services M 70. Disaster Data Recovery Management Direct delivery Corporate Services D MUNICIPALITY OF CLARINGTON ATTACHMENT 2 TO REPORT TABLE OF PROGRAMS AND SERVICES CAO-002-17 LAST REVISED: 01/03/2017 Page 6 of 11 # Service Service Delivery Mode Departments Involved Discretionary (D) or Mandatory (M) 71. Emergency Shelters Direct delivery with some contracting-out, e.g. Red Cross Community Services D 72. Defibrillator program Direct delivery with some contracting-out Community Services Operations Emergency & Fire Services D 73. Storm Clean-up Direct delivery with some contracting-out to deal with peaks in demand or where specialized equipment req’d Operations D 74. Street Lighting Maintenance Contracted out Operations D 75. School Crossing Guards Direct delivery Planning Services M 76. Animal Licensing Direct delivery with some contracting-out (door-to- door sales) Municipal Clerk’s D 77. Animal Sheltering Direct delivery with some volunteers Municipal Clerk’s D 78. Animal Enforcement Direct delivery Municipal Clerk’s D 79. Animal Adoptions Direct delivery with some contracting-out Municipal Clerk’s D 80. Animal Education Direct delivery Municipal Clerk’s D 81. Livestock Evaluation Appointed livestock evaluators Municipal Clerk’s M 82. By-law enforcement – regulatory by-laws: e.g., zoning, property standards, noise, snow clearing, nuisances, site alteration Direct delivery Municipal Clerk’s D 83. Event Permitting - e.g., fireworks, special events, liquor events, exotic animal entertainment events) Direct delivery Municipal Clerk’s D MUNICIPALITY OF CLARINGTON ATTACHMENT 2 TO REPORT TABLE OF PROGRAMS AND SERVICES CAO-002-17 LAST REVISED: 01/03/2017 Page 7 of 11 # Service Service Delivery Mode Departments Involved Discretionary (D) or Mandatory (M) 84. Business Licensing: e.g., Taxi Driver, Body Rub Parlour, Refreshment Vehicle, Fireworks Vendors, Hawker & Peddler, Dog Kennel Direct delivery Municipal Clerk’s D 85. Lottery Licensing Direct delivery Municipal Clerk’s D Personal Rights Program 86. Death Registration/Burial Permit Issuance Direct delivery Municipal Clerk’s M 87. Marriage Licensing Direct delivery Municipal Clerk’s M 88. Wedding Ceremonies Direct delivery Municipal Clerk’s D 89. Municipal Elections Management Direct delivery with contracted staffing to assist at election polls Municipal Clerk’s M 90. Cemetery – Burial Direct delivery Operations Municipal Clerk’s M 91. Cemetery- Perpetual Care Direct delivery Operations Municipal Clerk’s M 92. Cemetery - Sales/transfers Direct delivery Municipal Clerk’s M 93. Accessibility planning Direct delivery with some contracting-out and with guidance from an Advisory Committee Municipal Clerk’s M 94. Accessibility Standards implementation Direct delivery All Depts M Governance Program 95. Council and Committee Meeting Administration Direct delivery Municipal Clerk’s M 96. Mayor and Council Administrative Support Direct delivery CAO’s Office D 97. Advisory Committee Admin and Support Direct delivery – secretariat service to 11 committees Clerk’s, Planning Services, Operations, CAO’s Office D 98. Public Policy Development Direct delivery All Depts D/M MUNICIPALITY OF CLARINGTON ATTACHMENT 2 TO REPORT TABLE OF PROGRAMS AND SERVICES CAO-002-17 LAST REVISED: 01/03/2017 Page 8 of 11 # Service Service Delivery Mode Departments Involved Discretionary (D) or Mandatory (M) 99. Public Communications, Consultation and Engagement Direct delivery Corporate Services develops overall policy; all depts involved in delivery D/M 100 Volunteer recognition Direct delivery and facilitate nominations to external agencies offering recognition awards Municipal Clerk’s D Corporate Management Program 101 Corporate level leadership, planning and monitoring Direct delivery CAO’s Office D 102 Department level planning, procedural development and monitoring Direct delivery All Depts D 103 Internal Communications Direct delivery Corporate Services D 104 Corporate Policy Development Direct delivery CAO’s Office D 105 Emergency Measures Planning Direct delivery Emergency and Fire Services All Depts M 106 Contract/Agreement Management Direct Delivery All Depts D 107 Legal Support Direct delivery with some contracting for specialized matters, e.g., HR Legal Services D 108 By-law development and administration Direct delivery Municipal Clerk’s M 109 Risk Management Direct delivery with some contracted legal assistance Finance All Depts D 110 Customer Support Direct delivery All Depts D 111 Corporate Training and IT training Direct delivery with some contracting- out Corporate Services D 112 Occupation Specific Training Contracted out All Depts M Human Resources Management Program MUNICIPALITY OF CLARINGTON ATTACHMENT 2 TO REPORT TABLE OF PROGRAMS AND SERVICES CAO-002-17 LAST REVISED: 01/03/2017 Page 9 of 11 # Service Service Delivery Mode Departments Involved Discretionary (D) or Mandatory (M) 113 Compensation Management Direct delivery Corporate Services M 114 Benefits Management Direct delivery Corporate Services D 115 Health, Safety and Wellness Direct delivery Corporate Services M 116 Human Resources Recruitment Support Direct delivery Corporate Services D 117 Labour Relations Direct delivery with some contracting-out on legal matters Corporate Services D Corporate Asset Management Program 118 Facility Management- Municipal Administrative Centre Direct delivery with some contracting out for design, architecture, major changes in building systems Operations D 119 Facility Management – Operations buildings Direct delivery with some contracting-out for building cleaning, design, architecture, major changes in building systems Operations D 120 Facility Management - Community Halls Local Boards (5); local entities (8) Operations D 121 Facility Management – Animal Services Direct delivery Operations D 122 Facility Management – Recreation facilities, incl project mgt Direct delivery with some contracting out for design, architecture, major changes in building systems Community Services D 123 Sportsfield management Direct delivery Operations D 124 Real Property Acquisition, Disposal & Management Direct delivery Planning Services Legal Services D 125 Real Property lease mgt Direct delivery Corporate Services D MUNICIPALITY OF CLARINGTON ATTACHMENT 2 TO REPORT TABLE OF PROGRAMS AND SERVICES CAO-002-17 LAST REVISED: 01/03/2017 Page 10 of 11 # Service Service Delivery Mode Departments Involved Discretionary (D) or Mandatory (M) Operations Community Services Planning Services 126 Fleet Management Direct delivery with some contracting- out Operations D 127 Energy Management Direct delivery Community Services for recreation facilities, Operations for all other purposes M 128 Linear Property management Direct delivery with some contracting-out Engineering D Information Management Program 129 Geographic Information Direct delivery Planning Services Corporate Services D 130 Business Solution Implementation and Integration Direct delivery Corporate Services D 131 Information Technology Infrastructure Management Direct delivery Corporate Services D 132 User Support Direct delivery Corporate Services D 133 Maintenance Management and Support Direct delivery Corporate Services D 134 Telecommunications Infrastructure Mgt Direct delivery Corporate Services D 135 Records Management Direct delivery Municipal Clerk’s M Financial Management Program 136 Financial Planning and Budget Monitoring Direct delivery All Depts M 137 Financial Reporting Direct delivery All Depts M 138 Accounting Direct delivery Finance M 139 Accounts Payable Direct delivery Finance M MUNICIPALITY OF CLARINGTON ATTACHMENT 2 TO REPORT TABLE OF PROGRAMS AND SERVICES CAO-002-17 LAST REVISED: 01/03/2017 Page 11 of 11 # Service Service Delivery Mode Departments Involved Discretionary (D) or Mandatory (M) 140 Purchasing Direct delivery Corporate Services M 141 Debt/Investment Management Direct delivery Finance M 142 Billing and Collection of Fees, Fines and Charges Direct delivery Finance Community Services Operations Municipal Clerk’s Emergency & Fire Services M 143 Cash Handling Direct delivery Finance Community Services Operations Emergency & Fire Services M 144 Internal Audit Direct delivery Finance D 145 Assessment Base mgt Direct delivery Finance D