This survey is to be completed by the City of American Canyon employee who received an invitation. Your responses will be kept anonymous and no identifying information will be shared.
1. Please rate each of the following aspects of quality of life in American Canyon.
Don’t
Excellent Good Fair Poor know
American Canyon as a place to live.................................................................... 1 2 3 4 5 American Canyon as a place to work ................................................................ 1 2 3 4 5 The overall quality of life in American Canyon............................................. 1 2 3 4 5
2. How likely or unlikely are you to recommend LIVING in American Canyon to someone who asks? Very likely Somewhat likely Somewhat unlikely Very unlikely Don’t know
3. Please rate the following categories of American Canyon government performance.
Don’t
Excellent Good Fair Poor know
The overall direction that American Canyon is taking .............................. 1 2 3 4 5 Generally acting in the best interest of the community ............................ 1 2 3 4 5 Overall confidence in American Canyon government................................ 1 2 3 4 5 The overall quality of the services provided by the City of American Canyon 1 2 3 4 5
4. Please rate the extent to which you agree or disagree with the following statements about your job working for the City of American Canyon.
Strongly Somewhat Somewhat Strongly Don’t
agree agree disagree disagree know
Overall, I am satisfied with my job.................................................1 2 3 4 5 I plan on working for this organization a year from now.....1 2 3 4 5 I see a career path for me at City of American Canyon..........1 2 3 4 5 I gain satisfaction from my current job responsibilities .......1 2 3 4 5 I feel positively challenged in my current job ...........................1 2 3 4 5 I have the opportunity to do what I do best every
day at work..........................................................................................1 2 3 4 5 My values match or fit with the values of this
organization............................................................................................1 2 3 4 5 I have good friends at work..............................................................1 2 3 4 5 Overall, I feel positive about working for the
City of American Canyon....................................................................1 2 3 4 5 The mission and vision of the City of American Canyon make me feel my job is important..........................................................................1 2 3 4 5
5. How likely or unlikely are you to recommend WORKING FOR the City of American Canyon to someone who asks?
Very likely Somewhat likely Somewhat unlikely Very unlikely Don’t know 417
The National Employee Survey
™ • © 2001-2023 National Research Center, Inc.
6. As an employee of City of American Canyon, how would you rate the job the organization does at each of the following?
Don’t
Excellent Good Fair Poor know
Availability of necessary materials, resources and equipment to do the job effectively....................................................................................... 1 2 3 4 5 Providing individual and group work spaces to do the job effectively.. 1 2 3 4 5 Access to technology that helps employees do their job effectively .... 1 2 3 4 5 Compensation (salary, benefits and incentives/bonuses) compared with similar opportunities ................................................................................ 1 2 3 4 5 Benefits overall (vacation, sick leave, health care, retirement plan, etc.)... 1 2 3 4 5 Work-life balance...................................................................................................... 1 2 3 4 5 Work schedule flexibility ....................................................................................... 1 2 3 4 5 Maintaining a work environment that is free of violence or harassment......................................................................................................... 1 2 3 4 5 Maintaining a work environment that is free of drug or alcohol abuse... 1 2 3 4 5 Protecting employees from health and safety hazards on the job........ 1 2 3 4 5 Providing a clear vision for our organization................................................ 1 2 3 4 5 Communicating information that helps employees understand the problems and issues facing the City....................................................... 1 2 3 4 5 Speed of response to important issues or change ....................................... 1 2 3 4 5 Collaboration between departments (e.g., transportation, planning, etc.).... 1 2 3 4 5 Openness to new ideas and initiatives ............................................................. 1 2 3 4 5 Valuing creativity...................................................................................................... 1 2 3 4 5 Making all employees feel welcome.................................................................. 1 2 3 4 5 Helping new employees feel connected and integrated............................ 1 2 3 4 5 Fostering a respectful atmosphere.................................................................... 1 2 3 4 5
7. How would you rate the job the organization does at each of the following? Don’t
Excellent Good Fair Poor know
Demonstrating respect for employees of different cultures and belief systems ......................................................................................................... 1 2 3 4 5 Respecting individual cultural beliefs and values ....................................... 1 2 3 4 5 Attracting employees from diverse backgrounds........................................ 1 2 3 4 5 Recruiting diverse people into positions of organizational leadership.... 1 2 3 4 5 Promoting workplace diversity........................................................................... 1 2 3 4 5 Applying policies and procedures equally to all employees.................... 1 2 3 4 5 Providing equal employment opportunities to employees of all backgrounds...................................................................................................... 1 2 3 4 5 Providing a safe and secure environment for employees of all backgrounds...................................................................................................... 1 2 3 4 5 Clarity of staff roles and responsibilities......................................................... 1 2 3 4 5 Accuracy of performance evaluations .............................................................. 1 2 3 4 5 Connection between compensation and performance.............................. 1 2 3 4 5 Showing employee appreciation ........................................................................ 1 2 3 4 5 Supporting continual learning and development........................................ 1 2 3 4 5 Availability of opportunities for employees to develop
knowledge and skills ............................................................................................. 1 2 3 4 5 Opportunities to develop a career path........................................................... 1 2 3 4 5 The overall skill set of staff ................................................................................... 1 2 3 4 5 The work being done at the City of American Canyon overall ............... 1 2 3 4 5 418
The National Employee Survey
™ • © 2001-2023 National Research Center, Inc.
The City of American Canyon 2023 Employee Survey
8. Please rate each of the following aspects of your WORK GROUP (people you work closest with).
Don’t
Excellent Good Fair Poor know
Communication among all staff in my work group..................................... 1 2 3 4 5 The working relationships in my work group............................................... 1 2 3 4 5 Collaboration among all staff in my work group.......................................... 1 2 3 4 5 Overall staff morale in my work group............................................................ 1 2 3 4 5 Effectiveness of meetings in my work group................................................. 1 2 3 4 5 The quality of work being done in my work group..................................... 1 2 3 4 5
9. Please rate each of the following aspects of your SUPERVISOR’S performance.
Don’t
Excellent Good Fair Poor know
Communicating information in a timely manner......................................... 1 2 3 4 5 Welcoming employee involvement in decision-making ........................... 1 2 3 4 5 Encouraging an environment where employees feel comfortable to raise issues and concerns that are important to them........................... 1 2 3 4 5 Encouraging employees to come up with innovative solutions to problems ............................................................................................................. 1 2 3 4 5 Encouraging employees to use their own judgment to get
the job done............................................................................................................. 1 2 3 4 5 Promoting a positive working relationship among work
group members...................................................................................................... 1 2 3 4 5 Fostering an atmosphere of mutual trust and confidence ....................... 1 2 3 4 5 Treating employees with respect....................................................................... 1 2 3 4 5 Valuing employees from diverse backgrounds............................................. 1 2 3 4 5 Treating all employees fairly................................................................................ 1 2 3 4 5 Providing specific, constructive feedback that helps improve employee performance........................................................................................... 1 2 3 4 5 Communicating expectations of employees................................................... 1 2 3 4 5 Working together with employees to set goals ............................................ 1 2 3 4 5 Recognizing high-performing employees ....................................................... 1 2 3 4 5 Providing recognition for doing good work................................................... 1 2 3 4 5 Applying discipline fairly and consistently .................................................... 1 2 3 4 5 Managing low-performing employees.............................................................. 1 2 3 4 5 Providing opportunities for employees to learn and grow...................... 1 2 3 4 5 Coaching or mentoring employees .................................................................... 1 2 3 4 5
10. Please rate your overall level of confidence in the leadership of:
Very Moderately Slightly Not Don’t
confident confident confident confident know
Your supervisor.......................................................................................... 1 2 3 4 5 Senior staff/leadership............................................................................ 1 2 3 4 5 Council/elected officials.......................................................................... 1 2 3 4 5 419
The National Employee Survey
™ • © 2001-2023 National Research Center, Inc.
Support Services
11. Please rate the QUALITY of each of the following support services in American Canyon.
Excellent Good Fair Poor Don’t know
Custodial cleaning services.............................................................................................. 1 2 3 4 5 Maintenance and repair services .................................................................................. 1 2 3 4 5 Facilities management services overall ..................................................................... 1 2 3 4 5 Fleet maintenance services overall.............................................................................. 1 2 3 4 5 Recruitment services.......................................................................................................... 1 2 3 4 5 Benefits administration..................................................................................................... 1 2 3 4 5 Training services.................................................................................................................. 1 2 3 4 5 Human resources services overall................................................................................ 1 2 3 4 5 Radio systems........................................................................................................................ 1 2 3 4 5 Telephone systems.............................................................................................................. 1 2 3 4 5 Network services ................................................................................................................. 1 2 3 4 5 Application services............................................................................................................ 1 2 3 4 5 Desktop / Help Desk services......................................................................................... 1 2 3 4 5 General information technology (IT) services overall......................................... 1 2 3 4 5 Purchasing services overall............................................................................................. 1 2 3 4 5 Finance services overall.................................................................................................... 1 2 3 4 5 Risk management services overall............................................................................... 1 2 3 4 5 Overall City internal services.......................................................................................... 1 2 3 4 5 Diversity and Inclusion
12. Please rate how welcoming the City of American Canyon is for:
Very Somewhat Not Don’t
welcoming Welcoming welcoming welcoming know
People with disabilities ......................................................................1 2 3 4 5 People who identify as lesbian, gay, bisexual, or
other non-straight sexual identities .........................................1 2 3 4 5 People who identify as transgender .............................................1 2 3 4 5 Men..............................................................................................................1 2 3 4 5 Women ......................................................................................................1 2 3 4 5 People who are Arabic or Middle Eastern..................................1 2 3 4 5 People who are Asian, Asian Indian or Pacific Islander .......1 2 3 4 5 People who are Black or African American ...............................1 2 3 4 5 People who are Hispanic ...................................................................1 2 3 4 5 People who are American Indian or Alaskan Native .............1 2 3 4 5 People who are White ........................................................................1 2 3 4 5 People whose first language is not English................................1 2 3 4 5 People who are not U.S. citizens.....................................................1 2 3 4 5 People of Christian faith.....................................................................1 2 3 4 5 People of Islamic faith ........................................................................1 2 3 4 5 People of Jewish faith .........................................................................1 2 3 4 5 People of other faiths .........................................................................1 2 3 4 5 People who are agnostic or atheist...............................................1 2 3 4 5 People who are liberal........................................................................1 2 3 4 5 People who are conservative ..........................................................1 2 3 4 5 People who are veterans or military personnel .....................1 2 3 4 5 People who are older ..........................................................................1 2 3 4 5 People who are younger ....................................................................1 2 3 4 5 People who are of lower income....................................................1 2 3 4 5 420
The National Employee Survey
™ • © 2001-2023 National Research Center, Inc.
The City of American Canyon 2023 Employee Survey
13. Please rate the extent to which you agree or disagree with the following statements about your job working for the City of American Canyon. Strongly Somewhat Somewhat Strongly Don’t agree agree disagree disagree know
It would take a lot to get me to leave the City of
American Canyon...........................................................................................1 2 3 4 5 Given the opportunity, I tell others great things
about working here. .....................................................................................1 2 3 4 5 I am inspired to do my best work at the City of
American Canyon...........................................................................................1 2 3 4 5 The City of American Canyon motivates me to
contribute more than is normally required to
complete my work.........................................................................................1 2 3 4 5 I rarely think about leaving the City of American Canyon to work somewhere else. ...........................................................................1 2 3 4 5 I am comfortable seeking feedback and raising issues
with my manager...........................................................................................1 2 3 4 5 In my team, employees take ownership and
accountability for their deliverables. ....................................................1 2 3 4 5 The City of American Canyon provides a culture
of open and honest communication. .....................................................1 2 3 4 5 My manager and I have established a clear path
for my development. ....................................................................................1 2 3 4 5 Our last questions are about you. Again, all of your responses to this survey are completely anonymous and no identifying information will be revealed or shared. Completing this information will help us better understand employees’ experiences working for the City.
Employee Information
D1. In which City agency or department do you work?
(Please choose one.)
Administration (City Manager, City Clerk, Human
Resources)
Community Development
Finance
Maintenance & Utilities
Parks and Recreation
Public Safety
Public Works
D2. What is your management status?
Manager
Non-manager
Don’t know
D3. What is your exemption status?
Exempt (not eligible for overtime)
Non-Exempt (eligible for overtime)
Don’t know
D4. Are you employed full time or part time?
Full time
Part time
Demographic Information
D5. Do you live in American Canyon?
Yes
No
D6. Are you of Hispanic, Latino/a/x, or Spanish origin? No Yes
D7. What is your race? (Mark one or more races to
indicate what race you consider yourself to be.)
❑ American Indian or Alaskan Native
❑ Asian
❑ Black or African American
❑ Native Hawaiian or Other Pacific Islander
❑ White
❑ A race not listed
D8. What is your gender?
Woman
Man
Identify in another way→ go to D8a
D8a. If you identify in another way, how would you
describe your gender?
Agender/I don’t identify with any gender
Genderqueer/gender fluid
Non-binary
Transgender man
Transgender woman
Two-spirit
Identify in another way
D9. In which category is your age?
20 years or younger 41-50 years
21-30 years 51-60 years
31-40 years 61 years or older
D10. How many years have you worked for the City of
American Canyon?
0 to 5 years
6 to 10 years
11 to 15 years
16 to 20 years
More than 20 years
421
February 2024
City of American Canyon
Review of the Public Works and Maintenance and
Utilities Departments
422
423
BAKER TILLY • 1730 MADISON ROAD • CINCINNATI, OH 45206 • 513 861 5400 • FAX 513 861 3480 • BAKERTILLY.COM February 5, 2024
Mr. Jason Holley, City Manager
Ms. Maria Ojeda, Assistant City Manager
City of American Canyon
4381 Broadway Street, Suite 201
American Canyon, CA 94503
Dear Mr. Holley and Ms. Ojeda:
Baker Tilly is pleased to transmit the attached report summarizing our assessment of the Public Works and Maintenance and Utilities departments.
Our team conducted a thorough assessment of the departments to take a fresh look at the organization structure and identify ways of improving operations and effectiveness.
This evaluation concluded that changes or improvements are warranted in seven topical areas, as follows.
• Organization structure. Combine departments into an expanded Public Works Department.
• Capital Improvement Program. Expand the design and project management capacity of the Capital Improvement Program (CIP).
• Technology. Improve technology by implementing new systems and training. • Staffing. Address staff gaps and study future staffing levels once workload data become available.
• Succession planning. Build resilience through succession planning and training. • Strategic plan. Establish strategic direction, goals, and objectives through a strategic plan. • Performance measurement. Create a program focused on performance measurement.
These and other related issues are detailed in our report, and we look forward to discussing them with you at your convenience.
Sincerely,
Carol Jacobs
Managing Director
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Review of the Public Works and Maintenance and Utilities Departments Table of Contents Baker Tilly
i
Table of Contents
Executive Summary .................................................................................................................................. 1 Background ................................................................................................................................................ 7 Project Approach..................................................................................................................................... 10 Information Gathering and Review............................................................................................. 10 Interview Themes........................................................................................................................... 11 Employee Survey ........................................................................................................................... 12 Organization Structure............................................................................................................ 13 Management System ................................................................................................................ 13 Communication......................................................................................................................... 13 Morale and Climate .................................................................................................................. 14 Focus Groups .................................................................................................................................. 15 Peer Comparison............................................................................................................................ 16 Functional Alignment .............................................................................................................. 17 Staffing Alignment ................................................................................................................... 18 Observations and Recommendations ................................................................................................. 19 Organization Structure .................................................................................................................. 19 Relocation of Functions ................................................................................................................. 21 Design Capacity for Capital Improvement Program................................................................ 22 Investment in Technology............................................................................................................. 23 Staffing Gaps................................................................................................................................... 25 Succession Planning and Training............................................................................................... 28 Strategic Direction.......................................................................................................................... 29 Performance Measurement........................................................................................................... 30 Conclusion................................................................................................................................................ 33 Attachment A – List of Recommendations......................................................................................... 34 Attachment B – Employee Survey Results ......................................................................................... 35 Attachment C – Organization Charts for Peer Cities ....................................................................... 44 426
Review of the Public Works and Maintenance and Utilities Departments Table of Contents Baker Tilly
ii
Tables
Table 1. Focus Group Themes on What Works Well and Where Organizational Challenges Exist ...................................................................................................................................... 15 Table 2. Comparable Peer Agencies................................................................................................ 17 Table 3. Department Placement of Maintenance Services and Engineering and Utility Management............................................................................................................................................. 17 Table 4. Peer Agency Comparisons: Public Works Department Leadership/Managerial/Analytical Support ...................................................................................... 18 Table 5. Employee Turnover in Public Works and Maintenance and Utilities Departments, from FY 2021-22 to FY 2023-24............................................................................................................... 28 Figures
Figure 1. Functional Organization Chart of the Existing Public Works Department............... 8 Figure 2. Functional Organization Chart of the Existing Maintenance and Utilities Department................................................................................................................................................. 8 Figure 3. Functional Organization Chart of the Proposed Public Works Department........... 21 427
Review of the Public Works and Maintenance and Utilities Departments Executive Summary Baker Tilly
1 Executive Summary
The City of American Canyon engaged Baker Tilly to examine the organization structure and operations of the Public Works and Maintenance and Utilities departments. The City’s goal was to take a fresh look at the departments and develop a roadmap for optimizing these functions in the future.
Our approach included compiling and analyzing numerous documents and data provided by the City, conducting numerous interviews, facilitating four focus groups, deploying an employee survey of both departments, and preparing a comparison of peer cities with regard to organization structure and alignment of functions.
Staff feedback. There were various reactions from staff about the prior separation of the functions into the current two-department structure, though it is clear this change resulted in communication gaps and less collaboration.
The employee survey showed more support among the Maintenance and Utilities Department employees for maintaining the two-department structure than among Public Works employees. However, more than half of the Maintenance and Utilities Department employees noted that there are staffing or functional misalignments. This suggests that, while they prefer the two-department structure, the Maintenance and Utilities Department staff do see a need for changes related to staffing or how functions are aligned. Baker Tilly believes this reaction is in part due to the physical relocation of staff to the water and wastewater treatment plants.
The physical relocation of water and wastewater staff to their respective plants, which are located several miles from the corporation yard, remains controversial among staff members. For example, staff noted the change constrained their ability to share equipment and resources as compared to when the functions were organized at the corporation yard and under a single department.
Staff members in both departments expressed concern about the need for better technology, including the need for new software, mobile access, more integration of systems, greater capability regarding work orders, timekeeping, and asset management. Supervisors and managers also 428
Review of the Public Works and Maintenance and Utilities Departments Executive Summary Baker Tilly
2 understand the current state of technology does not provide the types of detailed reports and data they need to manage operations, though many anticipate that implementation of a Computerized Maintenance Management System (CMMS) will be a leap forward for the organization.
Staff members were also concerned about the rate of turnover in American Canyon. They noted a need for better succession planning and acknowledged that there are limited career ladder opportunities in the organization. They believe this factor leads good employees to seek other jobs. Some staff members also believe staffing levels are insufficient in key areas such as in parks maintenance and within the water function.
Peer comparison. Baker Tilly conducted a high-level comparison of peer cities to study their organization structures and how functions are aligned. This was important because organization structure is one of the key issues under consideration in American Canyon. Our review showed that only one of the four peer cities has separate public works and utilities departments, while two of the four peer cities structure their maintenance, engineering/capital improvement, and utility functions within a single department. The remaining comparator incorporates utilities in its Public Works Department but splits maintenance services between Public Works and Parks and Recreation.
Observations and recommendations. This report includes 16 recommendations for change and improvement. A list of these recommendations is also provided in Attachment A. Highlights of key areas or topics are outlined below.
Organization Structure
Based on the staff feedback, our review of peer city organization structures, and our own experience conducting similar analyses for cities, Baker Tilly believes American Canyon should return to a single department structure for its public works, maintenance, and utility functions.
The organization is not overly large or different from other cities to warrant a two-department structure. A combined Public Works Department will provide clearer direction, better communication, and will help in breaking down the silos which have formed in the last few years. This approach will foster greater collaboration and sharing of equipment and other resources. In addition, this proposed change will provide additional opportunities for cross-training and potential career advancement, as addressed in the Observations and Recommendations section of this report.
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Review of the Public Works and Maintenance and Utilities Departments Executive Summary Baker Tilly
3 Combining the functions under the Public Works Department will require the City to recruit and hire a deputy director with specialized expertise in the water and wastewater functions.
Capital Improvement Program
We also found that improvements to the Capital Improvement Program (CIP) function are necessary to improve efficiency and capacity. This can be accomplished with simple changes such as elevating the visibility and inclusivity of the program to ensure guidelines and criteria for what constitutes a CIP project are uniformly applied/understood and defining when such projects will be designed using in-house staff versus external design consultants.
This should be relatively easy to address since the City has existing agreements with various external design consultants.
Technology
Most of the functions in the two departments have inadequate technological systems. This constrains their work and their ability to provide detailed reports on operational matters. Some functions continue to use paper or outdated workarounds to meet day-to-day needs. Furthermore, the existing technology systems are not integrated into other legacy systems, nor do they meet the varied needs of staff or customers.
Fortunately, the City is aware of these challenges and has established a goal in the FY 2023-24 budget to procure and implement a Computerized Maintenance Management System (CMMS).
Baker Tilly believes the City should also prepare or update a technology needs assessment to ensure the requirements of the various functional areas are understood and addressed.
Staffing
A detailed analysis of staffing levels was not possible because the City lacks the systems to provide detailed workload data. Nevertheless, it was reported by staff that staffing levels are insufficient in the parks maintenance and water functions in the Maintenance and Utilities Department.1 Baker Tilly was not able to corroborate these concerns 1 The City has contracted certain landscape maintenance services for several years, but staff indicated that parks were added during this timeframe (along with increases to service 430
Review of the Public Works and Maintenance and Utilities Departments Executive Summary Baker Tilly
4 given the lack of data. This is one (among many) tangible examples where implementing new technology systems would provide the organization with the information it needs to manage operations.
Baker Tilly did note two areas where staffing gaps are apparent. For example, there is a need for a management analyst to focus on the data, reports, and other information required to oversee the various functions. We recommend later in this report that the department recruit and hire a management analyst for these areas, as well as assist with budget preparation, rate studies, and performance
measurement.
Another staffing gap relates to the fleet maintenance function where the organization has one mechanic position to maintain the City’s fleet. This position is responsible for coordinating departments, moving vehicles to different locations, ordering and driving to obtain parts, and other miscellaneous duties. This single-classification position also means that services in the organization are curtailed when the mechanic is out of the office for any period. Many organizations address situations like this by hiring an apprentice or establishing a maintenance worker position as a “rover” to help with fleet and other support duties at the corporation yard. We believe American Canyon would benefit by adding a resource to assist with these duties, provide greater depth of staffing resources, and provide succession planning opportunities.
Further, though not part of our review, we note that lack of redundancy in the purchase of vehicle parts can present an internal control issue if an effective inventory management system is not in place (fleet purchases are considered a high-risk area for the occurrence of waste and fraudulent activity).
Succession Planning and Training
There has been an almost 11% turnover (excluding retirements and probation releases) in the Public Works and Maintenance and Utilities departments in each of the last two years. Employees advised us this is an ongoing issue in American Canyon, i.e., that the City often serves as a training ground for employees who leave for various contracts) without a corresponding increase in in-house maintenance resources. The City Manager’s Office has indicated that workload for the additional parks has been addressed through the contracts.
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Review of the Public Works and Maintenance and Utilities Departments Executive Summary Baker Tilly
5 reasons such as career advancement, better compensation, or opportunities closer to home.
This pace of turnover accentuates the need for succession planning and training. This need is especially important given the small, flat department structure. We believe combining the departments will help, in part, by providing more opportunities for cross-training but more succession planning effort by the City will be necessary.
These efforts should identify the core skills required in the various functional areas and provide focused training that will broaden the capabilities of the department staff by preparing them for future opportunities. The City may also need to review the maintenance worker series (knowledge, skills, and abilities as well as total compensation) since these classifications are where the highest turnover has been occurring.
Strategic Direction
The new Public Works Department will need a clear roadmap for the future and a unified group of employees who are committed to providing excellent public services. Baker Tilly’s experience is that the best way to reestablish the department and position it for success would be to prepare a department-level strategic plan with a five-year horizon. Preparing a strategic plan would allow the department to collaborate with its employees in establishing the future direction, goals, and objectives.
A secondary advantage of preparing a strategic plan would be to address concerns among staff members about communication and decision making. For instance, many employees felt that both communication and decision making were overly controlled and restrictive during the tenure of the former director of the Maintenance and Utilities Department. These concerns left staff not always knowing what to do, and the concerns have had a lingering effect on the organization. Preparing a strategic plan would be one effective approach for establishing goals and objectives related to communication and decision making.
Performance Measurement
Most work conducted by public works, maintenance, and utility functions can and should be measured to track efficiency, effectiveness, and workload. Performance measurement refers to the compilation of various points and the system for analyzing this 432
Review of the Public Works and Maintenance and Utilities Departments Executive Summary Baker Tilly
6 information to provide insights, i.e., to “tell the story” about the departments’ work. Examples are provided in the Observations and Recommendations section of our report.
The Public Works and Maintenance and Utilities departments have limited performance measures or metrics at present. This is clearly related to the lack of technology systems and associated practices for compiling data and tracking work.
More than any other single recommendation in this report, investing in technology and instituting a robust program of performance measures and metrics has the potential to dramatically improve operations in the public works, maintenance, and utility functions because it will provide leaders, managers, and staff with the information they need to assess operations. This report outlines different types of performance measures which the City should consider in instituting a performance measurement program.
The remainder of this report is organized in the following four sections:
• Background
• Project Approach
• Observations and Recommendations
• Conclusion
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Review of the Public Works and Maintenance and Utilities Departments Background Baker Tilly
7 Background
The City of American Canyon engaged Baker Tilly to examine the structure and operations of its Public Works and Maintenance and Utilities Departments. The purpose of this review was to take a fresh look at both departments, review their structures, and provide an analysis of best practices.
American Canyon is a city in Northern California, located at the southern end of Napa County. Incorporated in 1992, American Canyon plays an important role in the Napa Valley wine industry with growth in wine logistics, making, storage, and distribution services.
Encompassing six square miles, American Canyon is a city of 21,338 residents and plans for a population of 25,000 by 2025. American Canyon is a general law city and operates under a Council/City Manager form of government.
Police services are provided under a contract with the Napa County Sheriff’s Office, and the American Canyon Fire Protection District provides fire response to a 15-square mile area, including the City.
The City Council is comprised of a directly elected mayor and four elected City Council members. The City Council also serves as the Board of Directors for the American Canyon Fire Protection District.
The City’s General Fund expenditure budget for Fiscal Year (FY) 2023-24 is $33,864,159. It employs approximately 114 full-time equivalent (FTE) employees, including 13 FTEs in the Public Works Department and 37 FTEs in the Maintenance and Utilities Department.2 Functional organization charts for these two departments are provided in Figures 1 and 2. 2 The City’s FY 2023-24 adopted budget shows 12 authorized positions for Public Works and two different headcounts for Maintenance and Utilities: one summary table shows 34.10 and another shows 38. The staffing numbers for Public Works (13.0 FTE) and Maintenance and Utilities (37 FTE) that we cite here were provided by staff when the functional organization charts were prepared (see Figures 1 and 2).
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Review of the Public Works and Maintenance and Utilities Departments Background Baker Tilly
8 Figure 1. Functional Organization Chart of the Existing Public Works Department Director of Public
Works
13 FTE, 1 vacant*
Development Engineering
Division
Senior Civil Engineer
1 FTE
Streets and Traffic
Division
Maintenance Supervisor
5 FTE
Maintenance Worker III
Maintenance Worker I (3)
Functions
Maintain, construct, and improve
transportation infrastructure
Traffic calming
Implementation of Local Roadway
Safety Plan
CIP Division
Senior Civil Engineer
4.5 FTE
Functions
Capital project design and delivery
Implementation of major physical
improvements
Engineer II
Civil Engineering Technician II
Engineering Technician I
Temporary Management Aide
(.5 FTE)
Administrative Technician Temporary Office Assistant
(.5 FTE)
Functions
Ensure that private development
complies with City standards
Ensure that infrastructure meets
goals, policies, standards, and
engineering best practices
*Maintenance Worker I (Streets and Traffic Division)
Figure 2. Functional Organization Chart of the Existing Maintenance and Utilities Department Director of
Maintenance and
Utilities
37 FTE, 3 vacant*
Wastewater Division
Wastewater Operations
Manager
9 FTE
Functions
Environmental compliance
Stormwater pollution prevention
Implementation of NPDES Permit
Integrated waste management
Monitor creeks, wetlands, and open
space
Water conservation
Environmental Specialist II (2)
Environmental Specialist I (1)
Environmental Services
Division
Environmental Services
Manager
4 FTE
Water Systems Division
Water Systems Manager
12 FTE
Maintenance Supervisor (1)
Maintenance Worker II (1)
Maintenance Worker 1 (2)
Plant Operator III (2)
Plant Operator II (1)
Plant Maintenance Mechanic (1)
Functions
Effective wastewater collection,
treatment, and water recycling
Production of recycled water
Compliance with NPDES Permit
Public education and outreach
Fleet and Facilities
Division
Public Works Superintendent
10 FTE
Functions
Maintain Civic Facilities
Manage City’s vehicles and
equipment fleet
Environmental stewardship of
creeks, wetlands, and open space
Manage parks and maintain open
space
Administrative Clerk II (1)
Maintenance Supervisor (1)
Fleet Mechanic (1)
Building Maintenance Worker (1)
Senior Maintenance Worker (1)
Maintenance Worker I (4)
Functions
Operate and maintain water
treatment plan
Production of potable water
Water quality and source control
monitoring programs
Maintenance Supervisor (1)
Maintenance Worker III (1)
Maintenance Worker I (4)
Plant Operator III (1)
Plant Operator II (1)
Plant Operator I (2)
Plant Maintenance Mechanic I
(1)
Administrative Technician
1 FTE
*Department Director, Maintenance Worker I (Fleet and Facilities Division), and Maintenance Worker I (Water Systems Division)
Prior to Fiscal Year (FY) 2020-21, the Public Works and Maintenance and Utilities functions were housed in one department, the Department of Public 435
Review of the Public Works and Maintenance and Utilities Departments Background Baker Tilly
9 Works. In FY 2020-21, the City created the Maintenance and Utilities Department in an effort to align functions in water distribution and water collection, and to increase efficiencies. City leaders engaged Baker Tilly to review this alignment of functions and make recommendations on this structure.
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Review of the Public Works and Maintenance and Utilities Departments Project Approach Baker Tilly
10 Project Approach
Baker Tilly obtained information through various means to perform our analysis and inform the recommendations in this report, as described below.
Information Gathering and Review
1. Conducted a project kickoff meeting with the City Manager, Assistant City Manager, and the Director of Public Works to ensure mutual understanding of the scope of the project, its objectives, and the schedule.
2. Reviewed a range of requested documents to help inform our analysis, as follows:
a. Workload and other data collected by the Public Works and Maintenance and Utilities Departments for the past 36 months that is not reported in the budget
b. Applicable labor agreements for City staff
c. Current department organization charts showing reporting relationships
d. Prior classification/staffing studies
e. Policies and procedures that impact the work provided by City staff
f. 2022 community survey results (The National Community Survey (NCS)
g. Other documents including the City’s budget and content housed on the City’s website.
3. Interviewed 19 City employees including members of the Executive Team, managers, supervisors, superintendents, and clerical staff.
4. Developed and deployed an employee survey to employees of the Public Works and Maintenance and Utilities departments, along with a limited number of other staff invited by City leaders.
5. Facilitated four onsite focus groups at four City facilities with approximately 40 non-management staff, identified by American Canyon.
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11 6. Conducted peer agency comparisons of four cities of like size, functions, and location to identify similarities and differences in organizational structure and alignment of functions.
Interview Themes
As noted above, Baker Tilly conducted interviews with 19 staff members representing City and departmental leadership. The purpose of the interviews was to learn about the organization, understand what is and is not working well, and identify areas that could be improved.
Below are the key themes representing input provided by interviewees.
Presenting these themes, however, does not imply concurrence from Baker Tilly.
• Issues regarding the split of Public Works: Concerns were raised that the Maintenance and Utilities function splitting from Public Works has impacted response times, is inefficient, and has led to some communication gaps between departments. Prior to the
reorganization, teamwork and collaboration was stronger and communication between supervisors was better when all staff were at the corporation yard.
• Staffing Concerns: There is a general sentiment that there is not enough staff to keep pace with the current workload, which can feel overwhelming; more in-house staff are desired rather than contractors.
• Recruitment and retention issues: Interviewees expressed several concerns, including:
o Recruitment is difficult due to cost of living and geography, o There is difficulty finding people with experience from larger cities,
o Due to limited career ladder opportunities, the City is a training ground and people leave for more
money/opportunities in other organizations,
o There is high turnover among maintenance workers; and o Better succession planning efforts are needed given upcoming retirement eligibility.
• Technology needs: Mobile access is desired for several systems; the City lacks an asset management system and work order system, administrative forms (leave slips, overtime requests) are outdated and timesheets should be made available on an application instead of shared computer terminals; technology in many departments is lacking, i.e., Community Development uses a legacy version of 438
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12 TRAKiT; multiple systems exist but they do not interact with each other so staff is entering data in multiple systems.
• Concerns about the Director position: Concerns were expressed that the former MUD director controlled decision making and the flow of communication, and this has had lingering impacts on how staff make decisions and communicate. On the other hand, the new public works director is well liked, and staff expressed confidence in her management style.
Employee Survey
As part of this project, a confidential survey was deployed between October 2 and 20, 2023 to give respondents a chance to identify the strengths and opportunities that exist in the Public Works and Maintenance and Utilities departments. Survey questions and associated answer choices were contained in the following topic areas:
• Organization Structure
• Management System
• Communication
• Morale and Climate
The survey included questions requesting numeric responses (1=strongly disagree, 2=disagree, 3=agree, 4=strongly agree) as well as questions that invited written responses. Forty-nine of fifty-five employees responded to the survey, a response rate of 89%. Responses were solicited from the Public Works and Maintenance and Utilities departments and from “other departments.”3
The complete survey responses, response breakdowns by position, tenure with the City, and summary of written comments are contained in Attachment B to this report. Key observations from the survey are summarized below.
3 The survey was provided to a total of 55 employees from Public Works, Maintenance and Utilities, and other city departments. Forty-six of the 49 respondents were from Public Works and Maintenance and Utilities, with three respondents from Finance (1), Parks and Recreation (1), and one unidentified department. Observations associated with the three respondents from the other departments are noted in Attachment B to the report. The summaries provided in this report section focus on responses from the Public Works and Maintenance and Utilities Departments.
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13 Organization Structure
Questions in this topic area centered on functional alignments in organization structures and staffing.
• Respondents in both departments generally agree that the functions in each department maximize efficiency and effectiveness. • There was disagreement along department lines about whether the departments should remain separate; Maintenance and Utilities felt stronger than Public Works on keeping the departments separate. • Communication, collaboration, and coordination was better when the departments were combined. They can remain separate if
improvements are made.
• Most respondents from Public Works felt there were not many misalignments; respondents from Maintenance and Utilities and other departments were split on this issue.
Management System
This topic area focused on the performance measurement and technology systems in use by the departments and throughout the City organization.
Answer choices covered a range of topics such as understanding of job responsibilities and expectations, strategic direction, performance measurement, available resources and business systems, clarity of policies and procedures, training, empowerment, and use of judgment, recruiting and onboarding, and employee retention.
• Respondents from all departments agreed they have a clear understanding of how their job contributes to fulfilling the mission of the organization.
• Maintenance and Utilities respondents rated the management system slightly higher than respondents from Public Works.
• Open-ended responses cited concerns about low pay and associated turnover, prior and current issues with department management, and the lack of technology.
Communication
Answer choices in this topic area focused on clear, open, timely, and effective communication.
• All respondents felt that communication within individual divisions/departments is good and that the information the City provides to the public meets community needs.
• Generally, respondents from Maintenance and Utilities report higher levels of satisfaction with communication than respondents from Public Works.
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14 • Open-ended responses included the following general comments:
o Respondents expressed appreciation for the new Public Works director’s communication style and how it is helping to resolve issues with the former Maintenance and Utilities director’s control of communication flow.
o Staff would appreciate periodic site visits by the city manager to the Corporation Yard, Water Treatment Plant and Water Reclamation Facility to provide updates or answer questions. o Communication between the maintenance divisions is
improving.
o Communication between departments can be improved to
ensure timely information is shared.
Morale and Climate
This topic area focused on organization culture issues such as inclusion, recognition, and whether employees feel valued; supervisory support; teamwork; trust; and sense of fulfillment.
• Generally, respondents from Maintenance and Utilities report higher levels of satisfaction regarding morale and climate than Public Works respondents.
• Morale is highest among respondents from Maintenance and Utilities, followed by Public Works respondents, and then by other department respondents.
• Both groups feel that teamwork is good, they are supported by their supervisors and are treated as valued team members by other employees and are proud to work for the City.
• Open-ended responses on ways the City may improve morale included the following:
o Better communication and team building among departments o More training
o Appreciation/recognition/clear communication/respect by management
o Empowering employees in decision making
o Management competence
o Pay and workload equity and balance
o Creating/filling positions with the right employees
o Career growth opportunities
o Better programmatic approach to project planning and
delivery
The last survey question gave respondents the opportunity to offer additional comments on organization structure and operations to help inform our review. These comments are summarized in the following themes:
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15 • The City does not need two separate departments that can be managed under a director and deputy director.
• All Public Works operations should be at the same location; it is costly and less productive to have outlier locations like Water Distribution located at the Water Treatment Plant seven miles out of town. • With the change in leadership, there is a sense that work is less stressful and there are signs of improvement.
• Whether the two departments remain separate or are combined, better teamwork is needed.
• Adopting modern technology is needed to improve customer service. • The City is poorly structured with employees in the wrong positions, and better facilities such as break rooms and restrooms are desired. • Maintenance workers are underpaid relative to other positions at City Hall and cannot afford to live near the City.
• Efforts by City leaders to engage Baker Tilly are appreciated.
Focus Groups
Baker Tilly facilitated four focus groups with American Canyon staff on October 18 and 19, 2023. Participants were asked a series of questions designed to obtain feedback on a variety of topics, including what is working well and what challenges the departments are facing; suggestions to improve efficiencies; potential changes to the way either department is organized and staffed that would lead toward more effective service delivery; and to identify redundancies or gaps in service delivery.
The focus groups were conducted at American Canyon’s Water Treatment Plant, City Hall, Water Reclamation Facility, and Corp Yard, and included approximately 40 non-management staff from the Public Works and Maintenance and Utilities departments.
Focus group participants were asked about what works well and to identify major organizational challenges, summarized in Table 1. Despite noted challenges, participants provided encouraging feedback about the organization.
Table 1.Focus Group Themes on What Works Well and Where Organizational Challenges Exist Works Well Organizational Challenges
Communication and teamwork
• Methods and frequency of communication between
line staff is good; there is sharing of knowledge and
know how
• There is cohesiveness and camaraderie within work
units
Communication
• Communication at higher levels of the organization
does not seem to be happening
• There is a lack of understanding in the departments
about the full scope of the Capital Improvement
Program
• Communication and collaboration among multiple
departments could be improved and getting things
done outside of work units can be challenging
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16 Works Well Organizational Challenges
Work product
• There is a willingness to work/take the initiative on the job and help one another
• There are opportunities to learn new skills from coworkers • Staff at the Corporation Yard enjoy helping with
other areas of work
Technology
• The organization is slow to adopt new technology
needed for daily operational and administrative
work tasks, which slows down processes and
reporting
• Many processes are manual and paper heavy
• There is no computerized maintenance management
system
Leadership
• Managers support the workers and are
approachable
• Staff are comfortable asking questions
Tools and equipment
• There is a sense of frustration among staff members
regarding difficulties in obtaining funding for
equipment and systems needed for efficient
operations
• Equipment is old or lacking
• There is no map of the City’s water system
• There are concerns about limited space at city
facilities, and these concerns are exacerbated by
projected growth
Organizational Culture
• The culture emphasizes professional conduct and
places a high priority on safety
• Staff care about the work they do and its importance
to American Canyon citizens
• The working environment is inclusive
Staffing and workload
• There are concerns that basic maintenance tasks are
not being completed due to inadequate staffing
• There is a perceived lack of upward mobility
• Some staff may not be qualified to perform work
required by their respective position classifications
• Turnover has led to a loss of institutional knowledge • Management is perceived to lack knowledge of
water systems or understand maintenance and
operational issues in the field
• There are concerns about pay equity, position
classifications and how work is divided among fulland part-time staff Peer Comparison
American Canyon requested that Baker Tilly conduct peer comparison research, which consisted of compiling and analyzing publicly available information associated with the organization structures and alignment of functions of the peers as compared to American Canyon.
Baker Tilly used selection criteria, including population, general fund revenue, and proximity to American Canyon to identify potential comparators and ultimately selected the cities of Benicia, Dixon, Millbrae, and Windsor (Table 2). It is interesting to note that American Canyon serves a population size approximately 8.5% lower than the peer average of 23,300, but its General Fund revenue is 21.25% below the peer average and its General Fund revenue per capital is nearly 14% lower than the peer agencies. 443
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17 Table 2.Comparable Peer Agencies
Jurisdiction Name County
Total
Population1
Square
Miles
General Fund
Revenue
General Fund
Revenue Per Capita
American Canyon Napa 21,338 6.0 $28,949,416 $1,357
Benicia Solano 26,180 15.7 $54,580,765 $2,085
Dixon Solano 19,018 7.1 $29,041,312 $1,527
Millbrae San Mateo 22,487 3.26 $39,694,000 $1,765
Windsor Sonoma 25,560 7.3 $23,730,004 $ 928
Peer Agency Averages: 23,300 8.3 $36,761,520 $1,576
Functional Alignment
Reviewing the peer cities’ organization structures and how functions are aligned was an important aspect of our high-level analysis because organization structure is one of key issues under consideration in American Canyon.
Our research focused on the departmental placement of
operations/maintenance, engineering and capital improvement program (CIP) management, and utility management. As shown in bold text in Table 3, most of these functions in the peer cities are placed in a public works department. The organization charts for the peer cities are provided in Attachment C.
Table 3.Department Placement of Maintenance Services and Engineering and Utility Management Jurisdiction
Facility
Maintenance
Fleet
Maintenance
Park and
Landscape
Maintenance
Street
Maintenance Engineering/CIP
Utility
Management
American
Canyon
Maintenance
and Utilities
Maintenance
and Utilities
Maintenance
and Utilities
Public Works Public Works Maintenance
and Utilities
Benicia1 Public Works Public Works Public Works Public Works Public Works Public Works Dixon Public Works Public Works Public Works Public Works Engineering and Utilities
Engineering and
Utilities
Millbrae Public Works Public Works Public Works Public Works Public Works Public Works Windsor Parks and
Recreation
Public Works Parks and
Recreation
Public Works Public Works Public Works
1 As a cost savings measure, Benicia reorganized in October 2023 to move its facility and park maintenance functions from the Parks and Community Services Department to the Public Works Department.
It is worth noting that the only peer city with a separate Utilities Department is Dixon (which combines engineering), while the cities of Benicia and Millbrae provide maintenance, engineering/CIP management, and utility management under their Public Works Departments. The fourth comparator, Windsor, is similarly aligned, except for facility and parks maintenance which is provided by the Parks and Recreation Department. 444
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18 Although it is not uncommon for larger cities to have separate Public Works and Utilities departments, in our experience it is somewhat atypical to separate the departments in smaller jurisdictions such as American Canyon.
The peer comparison supports this observation.
Staffing Alignment
As noted in this report, the City would benefit from greater staffing capacity in its Public Works Department, particularly in the areas of analytical support and fleet maintenance. Also as noted, if the City combines public works and utilities functions in one department, the reorganization would need to include a deputy director position (which could be funded by the existing utilities director position).
During our research, we learned that three of the four peer cities, Benicia, Millbrae, and Windsor (the same agencies most like American Canyon’s public works structure) have deputy director positions in Public Works, as well as analytical support (Table 4). We note that Benicia and Windsor have three deputy director positions and two analytical support positions.
While we were unable to discern the number of fleet mechanics in the four peer cities, it is apparent from budget documents that Benicia and Millbrae fund at least two mechanic positions.
Table 4.Peer Agency Comparisons: Public Works Department Leadership/Managerial/Analytical Support Jurisdiction Assistant/Deputy Director Analytical Support American Canyon No No
Benicia1 Yes
Deputy Director (3.0)
Yes
Management Analyst II (2.0)
Dixon No No
Millbrae2 Yes
Deputy Director (1.0)
Yes
Management Analyst (1.0)
Windsor3
Yes
Deputy Director (3.0)
Yes
Management Analyst (1.0)
Public Works Analyst (1.0) 1Benicia’s deputy directors oversee Engineering, Operations, and Utilities. 2In addition to the deputy director, Millbrae has established a city engineer position. 3Windsor’s deputy directors oversee Engineering, Operations, Utilities. 445
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19 Observations and Recommendations
The Public Works and Maintenance and Utilities departments provide the community with essential public services, as illustrated by the scope of functions shown in the organization charts (Figures 1 and 2).
These City services directly impact the community’s quality of life by ensuring that the community is provided effective utility and public works services such as clean and safe water and wastewater systems, well maintained streets and drainage systems, quality maintenance of the City’s parks and facilities, and professional environmental and engineering services. In addition, the effective and efficient delivery of these services is a fundamental part of the organization’s stewardship over City resources and the environment.
Organization Structure
The separate Public Works and Maintenance and Utilities departments were established during a restructuring in 2020. The previous structure placed each of their various functions under the Public Works Department.
After this restructuring, the water distribution and wastewater collection functions were physically relocated from the corporation yard to their respective treatment plants, which for wastewater is about six miles away.
We understand the reasons for this physical relocation were to establish synergies among the enterprise programs, e.g., consolidate the water treatment and distribution functions, and consolidate sanitary sewer collections and sewage treatment.
However, according to feedback provided during the interviews and focus groups, and from the employee survey, these restructuring and relocation changes had ramifications including impacts to response times related to the location of the water treatment plant, inefficiencies due to the lack of sharing equipment and resources, and gaps in communication between staff in the two departments. Some shared training for general subjects such as safety also became inefficient due to the split locations.
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20 The views of staff about department structures are split. Some staff members suggested keeping the departments separate, while others suggested combining them and delegating more responsibility to managers and supervisors. Further, more than a few staff members explained during the interviews and focus groups that the previous structure (consolidated Public Works Department) provided greater flexibility by allowing employees to collaborate and share resources for special events and needs.
Employees also reported that communication and coordination among midlevel and management staff was better under the combined structure. If the departments were recombined, employees noted the need to provide management expertise in maintenance and plant operations.
Employees in the Maintenance and Utilities Department tend to favor keeping the departments separate while employees in the Public Works Department showed substantially more support for a single department.
Baker Tilly believes the key to successfully recombining the departments, as noted by employees, lies in providing management expertise in maintenance and plant operations.
Baker Tilly also studied the placement of functions in peer cities. Our analysis showed that only one city (Dixon) separates its public works and utilities functions into two departments, while two of the four peer cities structure their maintenance, engineering/capital improvement, and utility functions within a single department (Benicia and Millbrae). The remaining comparator (Windsor) incorporates utilities in its Public Works Department but splits maintenance services between Public Works and Parks and Recreation.
Generally, our experience is that separating departments of this type is more common in large or highly specialized organizations where the number of employees and the scope of work warrants having a separate leadership structure and manageable spans of control. While the wastewater treatment function requires staff with expertise and training, our work with other cities indicates that this can be accomplished within a public works structure that is more efficient and less expensive given that it does not require a separate department head.
The organization size and composition in American Canyon, like the peer cities we studied, is conducive to having one department. To ensure the City maintains proper expertise, however, a new deputy director with specialized experience should be hired to oversee the water and wastewater functions. 447
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21 This would ensure an appropriate level of leadership and experience for the water and wastewater treatment plants.
In addition to being more efficient, consolidating the two departments would have other benefits for the functions and their service delivery. For instance, having one department will help to break down silos and improve communication between the various functions. It can also provide a comprehensive structure with a broader range of staff, equipment, and resources with which to serve the community.
Recommendation 1. Consolidate the Maintenance and
Utilities Department within the Public Works Department.
Recommendation 2. Recruit and hire a deputy director of public works who possesses expertise in water, wastewater, and maintenance services.
The consolidated organizational structure is shown in Figure 3.
Figure 3. Functional Organization Chart of the Proposed Public Works Department Director of Public
Works
52 FTE
Wastewater Division
Wastewater Operations
Manager
9 FTE
Functions
Environmental compliance
Stormwater pollution prevention
Implementation of NPDES
Permit
Integrated waste management
Monitor creeks, wetlands, and
open space
Water conservation
Environmental Specialist II (2)
Environmental Specialist I (1)
Environmental Services
Division
Environmental Services
Manager
4 FTE
Water Systems Division
Water Systems Manager
12 FTE
Maintenance Supervisor (1)
Maintenance Worker II (1)
Maintenance Worker 1 (2)
Plant Operator III (2)
Plant Operator II (1)
Plant Maintenance Mechanic (1)
Functions
Effective wastewater collection,
treatment, and water recycling
Production of recycled water
Compliance with NPDES Permit
Public education and outreach
Functions
Operate and maintain water
treatment plan
Production of potable water
Water quality and source control
monitoring programs
Maintenance Supervisor (1)
Maintenance Worker III (1)
Maintenance Worker I (4)
Plant Operator III (1)
Plant Operator II (1)
Plant Operator I (2)
Plant Maintenance Mechanic I
(1)
Administrative Technician (2)
Management Analyst*
3 FTE
Development Engineering
Division
Senior Civil Engineer
1 FTE
CIP Division
Senior Civil Engineer
4.5 FTE
Functions
Capital project design and
delivery
Implementation of major physical
improvements
Engineer II (1)
Civil Engineering Technician II
(1)
Engineering Technician I (1)
Temporary Management Aide
(0.5)
Temporary Office Assistant
(0.5)
Functions
Ensure that private development
complies with City standards
Ensure that infrastructure meets
goals, policies, standards, and
engineering best practices
*Recommended position additions
Deputy Director of Public
Works*
36.5 FTE
Fleet and Facilities
Division
Public Works Superintendent
11 FTE
Functions
Maintain Civic Facilities
Manage City’s vehicles and
equipment fleet
Environmental stewardship of
creeks, wetlands, and open
space
Manage parks and maintain
open space
Administrative Clerk II (1)
Maintenance Supervisor (1)
Fleet Mechanic (1)
Building Maintenance Worker (1)
Senior Maintenance Worker (1)
Maintenance Worker I (4)
Mechanic Apprentice (1)*
Streets and Traffic
Division
Maintenance Supervisor
5 FTE
Maintenance Worker III (1)
Maintenance Worker I (3)
Functions
Maintain, construct, and improve
transportation infrastructure
Traffic calming
Implementation of Local
Roadway Safety Plan
Functions
Monitor and analyze department
operations
Assist with annual budget
preparation and utility rate
setting
Relocation of Functions
As discussed previously, the water and wastewater functions were consolidated at the water plant and wastewater treatment plant respectively, and this has impacted staff and operations in various ways. For example, the wastewater treatment plant is located approximately six miles from the 448
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22 corporation yard and the water treatment plant is located approximately seven miles from the corporation yard. Driving between the facilities takes time due to traffic and it is inconvenient and inefficient for staff. The physical separation has also impacted communication between the work groups, transfer of institutional knowledge and cross-training between the work groups, and limited the sharing of equipment and resources.
Baker Tilly also learned that the City is considering moving its corporation yard to a new site. This effort is in the preliminary stages as the City reviews site suitability and determines its space needs. Nevertheless, it presents another opportunity for reevaluating the work location for the water and wastewater program staff.
Collocating these functions once again, particularly under one department, would strengthen teamwork and improve collaboration. It may also provide opportunities to provide short-term backup for staff during absences and vacations. Under this scenario, water and wastewater field staff would move back to the corporation yard with operations staff remaining at the respective treatment plants.
Recommendation 3. Evaluate the feasibility of moving
water and wastewater field staff back to the corporation yard.
Design Capacity for Capital Improvement Program
During the interviews and focus groups we learned that American Canyon does most of its CIP design work in-house with City employees, although there are some larger projects that the Director of Public Works has determined should be consultant-designed. Baker Tilly later confirmed this information with key staff members.
The extensive use of in-house design is unusual for a city the size of American Canyon and it can represent a chokepoint in a CIP by limiting the ability to move projects forward in a timely manner. Our experience is that larger cities, which have large CIP design teams, sometimes do much of their design work in-house, but this is impractical for smaller cities because their design staff is typically limited in size and capacity.
Fortunately, we also learned that American Canyon has agreements in place with various consultants who can assist with CIP design. Therefore, it should be a relatively straightforward shift to begin using external consultants when the scope and schedule of CIP projects warrants it. This should speed up the 449
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23 delivery of capital projects. It should also minimize other departments doing their own CIP work.
Baker Tilly also learned that the master planning work done by the water system staff is currently not prioritized as part of the CIP. We believe there may be a lack of understanding among the water staff about how the CIP process works. Having more capacity (using external design consultants) will allow departments to meet their core responsibilities and centralize efforts for greater oversight and effectiveness in the CIP process. This is another example of where combining the departments could improve effectiveness and efficiency of operations by ensuring greater collaboration between the CIP and water functions.
Our experience is that additional costs for outside engineering consultants for design as well as construction management4 are typically offset by fewer delays and faster project delivery, which minimize cost escalation. The best practice is to prepare guidelines that clarify expectations for the CIP program and establish criteria for when outside design consultants should be engaged.
Recommendation 4. Expand capacity of CIP design by
utilizing outside design and project management
consultants.
Recommendation 5. Ensure guidelines and criteria for CIP projects are uniformly applied/understood and when design work will be performed in-house and when external
consultants will be used.
Investment in Technology
There are a variety of investments in technology necessary in American Canyon. These include systems for time tracking, work order entry and tracking, maintenance management, and asset management. The departments currently use multiple tools, paper systems, or workarounds to manage and monitor various critical public works and maintenance functions. Because the departments use various approaches, it is difficult to coordinate efforts, which results in inefficiencies and, ultimately, a lack of information and effectiveness.
4 According to staff members, projects that are consultant designed are typically managed by a former (retired) employee, but in-house assistance is often required. The City may wish to consider adding a “support services during construction” task to its design contracts and/or separate contracts specifically for construction project management. 450
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24 American Canyon understands that it needs to procure and implement a system such as a computerized maintenance management system (CMMS), or multiple integrated systems if that is what best meets the City’s needs, to facilitate tracking, monitoring, and reporting on public works and maintenance operations. Fortunately, the City’s annual budget for FY 2023-24 already establishes goals for CMMS implementation, as well as an upgrade to the Supervisory Control and Data Acquisition (SCADA) system related to the wastewater treatment plant.
Baker Tilly’s experience is that, while the choice of the technology vendor(s) is important, ensuring staff from all relevant functions are involved and trained in the new system(s) is essential. Staff in all relevant functions must also use the system(s) regularly for the technology to be effective. In other words, the City must discontinue other technology workarounds, e.g., Excel spreadsheets, paper-based systems, and practices which are not fully integrated with the new systems to be implemented in the public works, maintenance, and utilities context.
The new integrated system(s) should accommodate the various public works, infrastructure, utility, and maintenance responsibilities in American Canyon.
For example, this might include features ranging from a public-facing reporting system for maintenance requests to a module for mobile device timecard entry for staff.
The technology will be critical to the City’s ability to implement other recommendations contained in this report, will provide the data to support these and future recommended changes, and will be the foundation for producing reports and data for the City Council, community, and the City Manager’s Office.
Recommendation 6. Update the City’s technology needs
assessment to ensure all necessary capabilities are
understood and documented.
Recommendation 7. Procure and implement a new
technology system(s) consistent with the needs assessment.
Recommendation 8. Discontinue outdated workaround
systems, procedures, and practices.
Implementing these technology solutions will also require the City to invest in at least one analytic staff position, which will be essential for tracking, analyzing, and producing regular reports for City leaders. While American Canyon has historically been quite lean in the areas of analytic staff, this represents a staffing gap, and it should be reconsidered. A continuation of 451
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25 this discussion about staffing gaps, and recommendations for addressing them, follows in the next section.
The City may also need to consider whether it has sufficient information technology staffing (in-house or contract) to implement and maintain the new technology referenced in this report. Assessing these potential staffing issues was beyond the scope of Baker Tilly’s review.
Recommendation 9. Assess the capacity of existing
information technology resources and make necessary
adjustments.
Staffing Gaps
The Public Works Department requires filling staffing gaps in key areas. For instance, the department does not have analytic staff in critical positions to effectively monitor and analyze department operations. This should include assisting the director with the preparation of the department’s annual budget. More specifically, there is a need for a management analyst position that can translate data into intelligence so department and City leaders can make resource decisions and provide updates to the City Council and community. Such a position would also be critical in the context of studying utility rates in the combined department recommended in this report.
Recommendation 10. Recruit and hire a management
analyst.
There is also a need for more fleet support.5 For instance, the current mechanic position is responsible for moving and delivering vehicles, ordering and obtaining parts, managing work orders, and coordinating with departments. There are two alternatives the City could pursue to address this need. First, in our experience, many of these tasks can be performed more efficiently by an apprentice who may also be available to assist with other support duties at the corporation yard. Additionally, because there is only one mechanic position, the department has no depth or backup plan in the event of a vacancy or employee absence. For this reason, we believe an apprentice position may be the best fit because it could represent a succession option for the future.
5 Our recommendation for an additional fleet resource is based best operational practices and has no relation to the peer agency comparisons conducted as part of this engagement. 452
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26 An apprentice would work with the mechanic by picking up and delivering vehicles to City departments, assisting with ordering and obtaining parts, managing work orders, and coordinating with departments.
Alternatively, to address the need for occasional help for the mechanic and to address vacancies and vacations, as well as provide greater organizational depth, a new Maintenance Worker I could be added as a rover position to help in multiple areas of the yard.
Additionally, we note that the absence of redundancy associated with the purchase of vehicle parts can present an internal control issue if an effective inventory management system is not in place, i.e., fleet purchases are considered a high-risk area for the occurrence of waste and fraud in public agencies. This includes the purchase of parts and equipment for water and wastewater systems and other public works-related field operations.
Although an assessment of inventory management systems was not part of our scope, and we observed no problems in American Canyon, we flag the issue out of an abundance of caution.
Recommendation 11. Recruit and hire a mechanic apprentice or “rover” Maintenance Worker I position. This position can assist with procuring/monitoring parts purchases.
The remainder of this section includes areas of note where additional staffing may be necessary, but such determinations cannot be made until workload data is compiled and analyzed.
Parks maintenance staffing. Baker Tilly heard significant feedback during the interviews and focus groups about parks maintenance staffing levels being too low. Staff members suggested that additional staffing is necessary and pointed to the fact that the City has had the same number of maintenance staff for many years even though the number of parks has increased substantially.
In reviewing this issue, we learned that the City has, since 2017, maintained contracts with external vendors to maintain the additional parks with funding provided under a Landscape and Lighting Assessment District (LLAD). In theory, the additional staffing required by the expansion in the number of parks is provided by external vendors. Moreover, Baker Tilly was not able to assess staffing levels because the City does not have the necessary workload data. This discussion illustrates why there is a need for integrated technology enhancements such as a CMMS, asset management system, work order system, and timecard system discussed earlier in this report. 453
Review of the Public Works and Maintenance and Utilities Departments Observations and Recommendations Baker Tilly
27 Oversight of parks maintenance contractors. It may also be that the City would benefit from having an additional position to oversee the parks maintenance contractors, though such a determination would be guesswork without the supporting workload data discussed above.
Water and facility maintenance staffing. We heard similar comments during the interviews and focus groups about the need for additional maintenance staff related to the water function and for maintenance of facilities. Again, the lack of data makes it difficult to determine whether more staff are justified.
However, we did note that the department lacks a lead worker position in the Water and Wastewater Divisions.6 The absence of lead workers in the divisions may warrant further review to determine whether the depth provided by such a role is necessary and whether it would be warranted for operational effectiveness and succession planning purposes (it should be noted that the employee survey included several comments by respondents on the need for additional senior/lead maintenance positions). Neither department has a great deal of depth, and both are small and have relatively flat structures.
Plant operations. The employee survey also included comments suggesting that a chief operator is needed. Again, the lack of available data precludes us from definitively recommending a position addition. We note that the Water and Wastewater divisions each have a maintenance supervisor, which is an exempt management position described as the “full supervisory level in the maintenance worker series.”7
The City does have five levels of maintenance worker classifications, which should represent career ladder opportunities. However, turnover appears to be highest among maintenance workers, and thus we recommend a review of this series of positions in the following section of this report. 6 The Maintenance and Utilities Department has a Senior Maintenance Worker in the Fleet and Facilities Division, a classification separate from the Maintenance Worker I/II/III series that is identified by Human Resources as the lead level in the series. In our experience, many cities establish the Maintenance Worker III as the lead without a separate senior job class. The City may wish to revisit these position classifications for clarity and continuity. 7 The Streets and Traffic Division in Public Works also has a maintenance supervisor position but no lead worker positions.
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28 Succession Planning and Training
Succession planning and a renewed focus on training have become critical factors in large and small cities across the country due to demographic changes, retirements, competition for talent, and escalation of compensation.
As discussed earlier in this report, American Canyon employees advised us during the interviews and focus groups that the City is considered to be a training ground for some employees, i.e., they obtain experience and training in American Canyon only to leave for other cities which may pay more or may be closer to home. Our analysis of data provided by the City tends to support this view. As shown in Table 5, the departments have been losing relatively young employees in the last two years. It should also be noted that the average tenure of the five non-retirement (regular) separations in 2023 was 1.8 years. In 2022, the average tenure was 1.5 years.
Table 5. Employee Turnover in Public Works and Maintenance and Utilities Departments, from FY 2021-22 to FY 2023-24
Year
Total Staffing
(FTEs)
Regular
Separations1
(FTEs)
Percentage
Regular
Separations
Average
Employee Age
for Regular
Separations
(Years)
Retirement
Separations
(FTEs)
Percentage All
Separations
2021 43.8 1 2.3% 49.0 3 9.1%
2022 46.1 5 10.8% 38.4 1 13.0%
2023 46.1 5 10.8% 37.3 1 13.0%
Source: City of American Canyon
1 Excludes probation releases
These turnover challenges are exacerbated by the relatively small and flat departments in American Canyon. We believe another benefit of combining the departments is to create a structure that has more depth and opportunities for backup, cross-training, and career advancement.
As noted previously, due to its small size, American Canyon has single position classifications (the fleet mechanic and building maintenance worker for park facility maintenance) which could disproportionately impact operations if an incumbent were to separate from the City. To be proactive, the City should determine which position classifications have the greatest 455
Review of the Public Works and Maintenance and Utilities Departments Observations and Recommendations Baker Tilly
29 potential for turnover. Based on the City’s data, the maintenance worker classifications have the greatest risk.8
The City should also identify core skills which are necessary in the departments, and develop targeted training surrounding these core skills. A focus on training is necessary to support employees in their efforts to grow, take on greater responsibilities, and prepare for advancement. It is also a crucial step in developing broader cross-training efforts that will help develop bench strength, ensure adequate operational redundancy, and enhance the potential for career advancement within the organization.9 Recommendation 12. Identify core skills and develop
training necessary to provide them.
Recommendation 13. Identify cross-training needs and
opportunities in public works and maintenance.
Recommendation 14. Evaluate the maintenance worker
series to determine if changes are warranted in the job descriptions, compensation, or other factors.
Strategic Direction
To be successful, the newly combined Public Works Department recommended in this report will need to establish realistic goals and objectives, set priorities, consider the resources it has and those it may still need to reach its goals, and to provide clear direction for the future. While establishing this direction will require additional short-term work for the City, we do not see this as a daunting task given American Canyon’s ongoing focus on strategic initiatives.
Some cities approach this need by preparing organization-wide strategic plans. This can be very effective for cities in transition, and where time and budgets allow. We see an equal number of cities who instead focus their strategic planning efforts at the department level. This would be a good model in American Canyon to ensure the newly combined Public Works Department has a clear roadmap going forward. This strategic planning 8 Data provided by staff indicate that 11 maintenance workers have left the City since 2018 consisting of 2 retirements, 3 probationary releases, 4 separations for career opportunities, and 2 resignations.
9 One example relates to the standby program. Concerns were shared by staff that some members of the program may not have sufficient knowledge/experience to address issues that may come up after hours.
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30 effort should be inclusive so that all members of the department have opportunities to participate in and shape the department’s direction.
Recommendation 15. Prepare and implement a strategic plan for the Public Works Department with a five-year horizon.
Improving communication and clarifying decision making. Including employees in the strategic planning process will provide many positive opportunities for the various staff members to collaborate and identify shared goals and objectives for the combined Public Works Department. It will also be an opportunity for the department to establish norms for communication and how decisions are made. These communication and decision-making factors were key concerns expressed by staff members during the feedback stage of this engagement (interviews, employee survey, focus groups).
Staff members want clear and robust communication from their leaders and each other. They also want to understand how decisions should be made under a new and more collaborative department structure.
Recommendation 16. Establish goals and objectives related to communication and decision making during the strategic planning process.
Performance Measurement
The two departments have a variety of goals which are incorporated in the City’s FY 2023-24 budget, but the performance measures (key performance indicators) are quite limited, as outlined below.
• Number of vehicles down more than two weeks;
• Trail miles maintained;
• Pavement condition index;
• Number of street miles provided;
• Linear feet of bicycle trails provided; and
• Linear feet of pedestrian paths provided.
Performance measurement is an essential requirement for the successful management of complex local government functions. However, even the best intended efforts at measuring performance are often thwarted by a lack of data and we believe this is the case in American Canyon. Fortunately, included in the City’s goals is an initiative to implement a CMMS and begin to track and report on performance measures.
It is useful to group performance measures by type. Incorporating various types of measures can provide broader insight and help managers and leaders as they assess operations. Three common types of measures are described below.
457
Review of the Public Works and Maintenance and Utilities Departments Observations and Recommendations Baker Tilly
31 Efficiency measures. These measures compare inputs and outputs, e.g., amount of work produced compared with the cost or staffing required to produce it.
Below are a few examples of efficiency measures in a public works or maintenance context.
• Number of street miles maintained per FTE
• Annual cost of trail maintenance per mile
• CIP projects completed on original schedule
• CIP projects completed within budget
• Cost to maintain parks per acre
• Average time spent on fleet maintenance by vehicle type • Number of fleet vehicles maintained per FTE
Effectiveness measures. These measures assess how well an organization performs, such as measuring the quality of services it delivers. Effectiveness measures look at outcomes and sometimes include feedback from internal and external customers. Below are a few examples of effectiveness measures in a public works or maintenance context.
• Percent of annual improvement in the Pavement Condition Index • Time required to complete routine service for a vehicle • Time to respond to work orders
• Time to complete work orders
• Annual number of complaints received from community members regarding park maintenance
• Quality of CIP projects based on public or operator surveys.
Workload measures. These measures focus on the amount of work produced and help to monitor workload fluctuations. Workload measures do not assess how efficiently or effectively work is performed (these issues are addressed through effectiveness or efficiency measures). Below are a few examples of workload measures in a public works or maintenance context. • Number of hours spent maintaining City facilities per facility type, or maintenance task
• Number of work orders submitted per year
• Number of street miles maintained
• Number of hours spent maintaining parks per acre
• Categories of parks maintenance performed per park facility The examples cited above are for illustrative purposes; they do not represent a comprehensive list. The City will need to develop a comprehensive list of the factors and data it wants to monitor in the future, and then ensure the 458
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32 CMMS and other technology platforms are capable of tracking and reporting on those data points.
Recommendation 17. Develop a comprehensive list of
performance measures and metrics.
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Review of the Public Works and Maintenance and Utilities Departments Conclusion Baker Tilly
33 Conclusion
The public works, maintenance, and utilities functions in American Canyon would operate more effectively and efficiently within a single-department structure, i.e., under an expanded Public Works Department.
In addition to changes to the organization structure, Baker Tilly identified six other areas where changes or improvements would result in greater effectiveness and efficiency and promote a more resilient workforce. These areas would affect or improve the following:
• Capital Improvement Program
• Technology
• Staffing
• Succession planning
• Strategic plan
• Performance measurement
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Review of the Public Works and Maintenance and Utilities Departments Attachment A – List of Recommendations Baker Tilly
34 Attachment A – List of Recommendations
Recommendation 1. Consolidate the Maintenance and Utilities Department within the Public Works Department.
Recommendation 2. Recruit and hire a deputy director of public works who possesses expertise in water, wastewater, and maintenance services.
Recommendation 3. Evaluate the feasibility of moving water and wastewater field staff back to the corporation yard.
Recommendation 4. Expand capacity of CIP design by utilizing outside design and project management consultants.
Recommendation 5. Ensure guidelines and criteria for CIP projects are uniformly applied/understood and when design work will be performed in-house and when external consultants will be used.
Recommendation 6. Update the City’s technology needs assessment to ensure all necessary capabilities are understood and documented.
Recommendation 7. Procure and implement a new technology system(s) consistent with the needs assessment.
Recommendation 8. Discontinue outdated workaround systems, procedures, and practices.
Recommendation 9. Assess the capacity of existing information technology resources and make necessary adjustments.
Recommendation 10. Recruit and hire a management analyst.
Recommendation 11. Recruit and hire a mechanic apprentice or “rover” Maintenance Worker I position. This position can assist with procuring/monitoring parts purchases.
Recommendation 12. Identify core skills and develop training necessary to provide them.
Recommendation 13. Identify cross-training needs and opportunities in public works and maintenance.
Recommendation 14. Evaluate the maintenance worker series to determine if changes are warranted in the job descriptions, compensation, or other factors.
Recommendation 15. Prepare and implement a strategic plan for the Public Works Department with a five-year horizon.
Recommendation 16. Establish goals and objectives related to communication and decision making during the strategic planning process.
Recommendation 17. Develop a comprehensive list of performance measures and metrics. 461
Review of the Public Works and Maintenance and Utilities Departments Attachment B – Employee Survey Results Baker Tilly
35 Attachment B – Employee Survey Results
Introduction
As part of the City of American Canyon Public Works and Maintenance and Utilities organization review, Baker Tilly developed and deployed a survey to obtain input from 00Public Works and Maintenance and Utilities departments employees about functional alignment of the two departments, if any staffing or functional misalignments exist, questions about the City’s management systems, communication, morale and climate. The survey questions were developed by Baker Tilly and were refined following discussions with City leadership.
The survey was open from October 2 through October 20, 2023, and a total of 49 employees responded to the survey. The survey was designed to give respondents the chance to identify the strengths and opportunities that exist in American Canyon’s Public Works and Maintenance and Utilities Departments.
The survey questions and associated answer choices were contained in the following topic areas:
• Organization Structure
• Management System
• Communication
• Morale and Climate
The survey included questions requesting numeric responses (1=strongly disagree, 2=disagree, 3=agree, 4=strongly agree) as well as questions that invited written responses.
Forty-nine of fifty-five employees responded to the survey, a response rate of 89%.
Responses were solicited from the Public Works and Maintenance and Utilities departments and several other city departments. Of the 49 respondents, only three were from “other departments,” including Finance (1), Parks and Recreation (1), and one unidentified department. Survey results and key observations are summarized below.
Organization Structure
Table 1 shows survey responses regarding the efficient/effective alignment of functions and whether Public Works and Maintenance and Utilities should remain as two separate departments.
Table 1.Alignment of Functions and Number of Departments Answer Choices Public Works
Maintenance
and Utilities
Other
Departments
a. Functions in the department are aligned to
maximize efficiency and effectiveness. 2.75 2.86 1.00
b. Public Works and Maintenance and Utilities
should remain as two separate departments. 1.80 2.85 3.50 462
Review of the Public Works and Maintenance and Utilities Departments Attachment B – Employee Survey Results Baker Tilly
36 The responses here show that the Public Works and Maintenance and Utilities departments staff generally agree that the functions in the departments are aligned in such a way that efficiencies and effectiveness are maximized. There was disagreement along department lines regarding whether the departments should remain separate or be combined into one.
The Maintenance and Utilities Department staff felt stronger than Public Works staff about keeping the departments separate, while staff in other departments agreed that the two departments should remain separate.
Staff were given an opportunity to provide open-ended responses to the question, “are there any misalignments in staffing or functions?” There were many responses provided, and the themes of those responses are summarized below.
• There is less opportunity to work collectively and help each other, and cross-training is absent due to the separation of the departments.
• The communication between divisions is not where it should be, and the divisions rarely help each other.
• Cooperation and coordination between various teams seemed to be better when they were not separate. They can remain separate if coordination were improved.
Open-ended responses to the question of combining the departments were divided. While some staff advocated for keeping the two departments separate, others felt that they should be combined.
Comments advocating for one department included:
• MUD should all be under Public Works and get rid of MUD completely. • Public Works should include all departments, at one location. Water Distribution should not be located so far from the Main Repair Area. • There is no need for two separate departments, or two directors. Have a deputy oversee the water treatment plants; it worked that way before. • MUD should be under the Public Works Department, not a separate department. A Deputy PW was the original hire and should have stayed that way. • I believe that this City is too small for two separate departments. Before we were separated, it was much easier to coordinate with all departments or to simply help any of the other departments when needed. One department makes it much simpler to borrow personnel or equipment.
• We don't need more directors; we need to empower the managers and supervisors more. A lot of decision making was taken away by the last director. By giving that back to the managers and supervisors, the PW director’s job will be easier. All the managers should report to the PW director. The current structure seems inefficient and wasteful.
Comments in favor of two departments included:
• They can remain separate IF coordination were improved. • PW and MUD can remain as separate departments, but I think it would function better with Maintenance under PW and a dedicated utilities department. 463
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37 • If PW and MUD are to remain separated, then they should be fully separated. The last MUD director had Parks under his scope and they are not enterprise fund. Parks should be under Public Works and a new MUD director should only have the utilities that fall under the enterprise fund.
• I strongly suggest these two departments remain separate. The functions that need to be in Public Works to improve organizational operations are Parks, Fleet, Building, Streets, and Engineering. Water Distribution, Wastewater Collection, Utility Billing Wastewater and Water Treatment Operations need to be under MUD. Our organization is growing exponentially, and we need a director for each department to dedicate and resolve the ongoing problems in each department. Having one director overlook all these departments is not feasible nor is it healthy for the organization or its development.
Additional comments in this area were centered around the need for better communication, reinstatement of the job shadowing program to increase the understanding of the work, concerns that the organization has more managers than workers, compensation disparities, and the desire for a compensation study.
Misalignments of Staffing or Functions
Staff were asked if there are any misalignments of staffing or functions. Table 2 illustrates the responses to this question by department.
Table 2.Misalignments of Staffing or Functions
Answer Choices
Public
Works
Maintenance
and Utilities
Other
Departments All Respondents
Yes 9 (32%) 9 (56%) 1 (50%) 19 (41%)
No 19 (68%) 7 (44%) 1 (50%) 27 (59%)
Most of the respondents from Public Works felt that there were not any misalignments, while staff from Maintenance and Utilities and other departments were split on this issue.
For those who felt that there were misalignments, the survey allowed open-ended responses. Those responses are summarized below:
• The City needs to keep all functions in one Public Works Department, at one location.
• Eliminate the superintendent position, and have all managers report to one Public Works director.
• Sewer division should also have the recycled water and storm water system duties. • Create utility worker class with a possible utilities manager that can better utilize the crews and communication between divisions, streamlining things even more. • Have too many managers when more front-line staff are needed. • All maintenance workers have the same pay and job description but very different job duties.
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Review of the Public Works and Maintenance and Utilities Departments Attachment B – Employee Survey Results Baker Tilly
38 • Several comments on the need for Senior worker positions, and a Chief Plant Operator position.
• Lack of succession plans.
• Need to hire temporary workers.
• Workload is extensive and causing staff to cover broader responsibilities, such that staff functions may be considered inefficient at times; workloads have increased in the last few years, yet staffing has not, creating pockets of understaffing throughout the City. With more housing on the horizon and an increased number of residents, it will only get harder to keep up with maintenance and clerical needs throughout the City.
Management System
Respondents were asked to indicate their level of agreement with 18 answer choices about the City’s management system, using the same 1 – 4 scale (Table 3).
Table 3.Management System Responses
Answer Choices Public Works
Maintenance
and Utilities
Other
Departments
a. I have a clear understanding of my job responsibilities and expectations. 3.17 3.56 3.67
b. I have a clear understanding of how my job contributes to fulfilling the mission of the organization. 3.38 3.63 3.67 c. I am aware of the strategic direction the department is headed. 2.72 2.93 2.67
d. Performance is monitored and measured to make sure
work results in its intended outcomes. 3.03 3.20 2.00
e. I have the resources and equipment I need to do my job. 2.90 2.75 2.33 f. The technology we use, including computer
hardware/software and business systems, is sufficient. 2.50 2.50 2.00 g. Our team uses technology and business systems
effectively. 2.79 2.79 2.00
h. Technology I use is up to date. 2.52 3.00 2.00
i. Policies and procedures are clear. 2.90 3.07 3.00
j. Policies and procedures allow for effective operations. 2.89 2.87 2.00 k. Policies are applied consistently to all employees in the organization. 2.55 2.80 1.50
l. I have the training I need to do my job effectively. 2.90 3.07 2.67 m. I am able to take advantage of professional
development opportunities. 3.43 3.14 2.67
n. Employees are encouraged to improve work processes. 3.17 3.07 1.50 o. I am encouraged to use my own judgment and initiative when carrying out my job. 3.28 3.27 3.00
p. The city does a good job recruiting staff. 2.37 2.77 2.00 q. The city does a good job onboarding and training new staff. 2.39 2.71 2.00
r. The city does a good job retaining staff. 2.32 2.50 2.00 465
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39 Staff in other departments rated two answer choices as extremely low; K: Policies are applied consistently to all employees in the organization, and N: Employees are encouraged to improve work processes. This is an area of concern and should be further investigated by the City. The other staff also disagree with an additional eight of the answer choices. The Maintenance and Utilities staff rated the management system slightly higher than the Public Works staff. Staff from all departments agreed that they have a clear understanding of how their job contributes to fulfilling the mission of the organization.
Open-ended responses were allowed for this question. Common themes among the responses included:
• The City trains everybody and then a lot of them leave for better pay and the other cities.
• The previous director drove away some highly talented, skilled employees. Some positions in the sewer and water divisions are underpaid and a utility work class should be created. Quality candidates will apply for utility worker positions who want to get in this field.
• Be more selective in the recruiting process; pay more for better qualified employees; interview panels are made up of only managers, resulting in selecting employees based on who they know and not what they can do. We missed out on a lot of good candidates on the last hiring cycle because it was generalized, some candidates thought they were going to work all positions, some want to get in a specific field and didn't want to work in other fields. We missed out on experienced quality workers because this was entry level, maintenance positions. • A feeling that management doesn’t respect line staff; that new positions for managers are created more than for field staff; it is hard to build our crews • We lack in the training once someone is onboard; need clear training guidelines • More consistency in yearly evaluations.
• Sometimes the chain of command stifles communication among lower-level employees.
• The City as a whole needs a Computerized Maintenance Management System; we are trying to get CCTV software for our new CCTV camera to allow for condition assessment, reporting, CIPs, and regulatory compliance - for what the camera was bought for. This would also act as a CMMS which is also what we really need for reporting, regulatory compliance and job tracking.
• We need new and more computers; upgrade payroll software through a cell portal; need a Supervisory Control and Data Acquisition system for utilities and an actual asset management system for both departments.
Communication
The respondents were asked about communication and presented with eight statements to rate using the established 1 - 4 rating scale. Table 4 shows the answer choices, and the weighted average by department.
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40 Table 4.Responses on Communication
Answer Choices
Public
Works
Maintenance
and Utilities
Other
Departments
a. Organization-wide communications are
good. 2.69 2.88 2.33
b. Communication from the department
director is clear. 2.69 3.25 2.67
c. The department director facilitates and
encourages open and honest
communication.
2.90 3.47 3.00
d. Communication within my
department/division is good. 3.30 3.44 3.00
e. Communication between
departments/divisions is good. 2.46 2.07 2.00
f. Important information about the City is
provided to me in a timely manner. 3.03 2.75 2.33
g. I am more likely to learn about
developments through formal
communication channels than through the
grapevine.
2.52 3.00 3.33
h. Information the City provides to the
public meets community needs. 3.00 3.20 3.00
Generally, the Maintenance and Utilities staff report higher levels of satisfaction with each of the answer choices regarding communication in Table 4 than the Public Works staff. Staff from other departments disagree that communication between departments/divisions is good, but that group agrees that communication within their department/division is good, and that the Director facilitates and encourages open and honest communication. There is consensus among all the respondents that communication within individual departments/divisions is good, and that the information that the City provides to the public meets the needs of the community.
Staff were also given the chance to provide open-ended feedback on the topic of communication. Some general themes include:
• The previous director stifled communication and demanded that everything go through him. The current PW director is what the organization needed. Her communication is good, and the departments have seen improvements under her leadership. The current director is seen as a quality hire who can help resolve previous issues.
• Communications between the maintenance divisions is improving. • Staff would like to see the City Manager come to the Corp Yard, Water Treatment Plant or Water Reclamation Facility on a regular basis to provide updates or answer questions.
• Sometimes when contacting other departments, phones go unanswered. 467
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41 • Some important information is not communicated to staff in other departments.
When something affects another department, it needs to be shared early, before a project is started so that everyone can be on the same page.
Morale and Climate
Table 5 shows responses to answer choices regarding morale and climate (culture), and the weighted average by department. Again, employees were asked to rate their agreement with each statement based on a numerical score, where “strongly agree” = 4, “agree” = 3, “disagree” =2, and “strongly disagree” = 1. The closer the weighted average is to 4, the more in agreement the respondents were with the statement. If the average is closer to 1, most respondents disagreed with the statement.
Table 5. Morale and Climate Responses
Answer Choices Public Works
Maintenance
and Utilities
Other
Departments
a. I feel included in the decisions that affect my work. 2.97 2.88 2.00 b. I feel supported by my supervisor. 3.53 3.56 2.67
c. Teamwork within the organization is good. 3.00 3.31 2.67 d. I am treated as a valued team member by other
employees. 3.37 3.44 3.00
e. Employees in the organization trust each other. 2.89 3.25 2.33 f. Quality performance is recognized and rewarded. 2.52 3.00 2.67 g. I am proud to be a City of American Canyon employee. 3.20 3.73 3.50 Generally, the Maintenance and Utilities staff report higher levels of satisfaction with each of the morale and climate related answer choices in Table 5 than the Public Works staff, with Public Works feeling slightly more included in the decisions that affect their work. Both groups are supported by their supervisor, feel that teamwork is good, are treated as valued team members by other employees, and are proud to work for the City. The lowest rated answer choice here came from staff in other departments who do not feel included in the decisions that affect their work.
Employees were then asked to rate their morale working at American Canyon on a scale from 1 to 10, and Table 6 shows those responses. Morale appears to be highest among the Maintenance and Utilities staff, followed by the Public Works staff. Staff in the “other” category rated their morale the lowest among the three departments.
Table 6. Morale Rating (1 to 10)
Answer Choices Public Works
Maintenance
and Utilities
Other
Departments
Morale Rating (1 to 10) 7.30 8.25 6.33
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Review of the Public Works and Maintenance and Utilities Departments Attachment B – Employee Survey Results Baker Tilly
42 Staff were given an opportunity to indicate what it would take to improve that morale rating. The following themes were identified as areas where the City may look to improve morale:
• Better communication between departments will lead to better cooperation between departments.
• Training; more training on different aspects of our jobs; training at all levels. As a supervisor, I need to set aside more time for training my employees. Sometimes it's hard because there is always work to do and setting aside a day and preparing for that day takes a lot of time. I think that happens a lot at all levels, that we don't give ourselves enough time to learn, we only learn when the time comes and we don't know what to do so we figure it out in the moment.
• Recognition; I do a lot and feel I am not appreciated; morale has been down the last few years, maybe not for all employees but for some. People go above and beyond the job, yet management doesn't recognize it.
• Competence in management.
• A lot of decision making was taken away with the last director. By empowering the managers, supervisor, and field staff, makes the job easier for the PW director and increases morale, job satisfaction, employee retention, and efficiency: morale has already improved because Felix is gone, but there is some work that still needs to be done; time without our last Director will help me from second guessing myself and improve my morale.
• Having the correct personnel in the right spots; creating a utility worker class and returning the senior position will greatly improve the field crew’s morale. Most employees want more responsibility and job satisfaction, not just pay. This will help with employee retention as well.
• Wage increase for individuals actually performing job duties. • Staffing level and work plans that are appropriately balanced; if all City employees were working equally. Maintenance workers in some departments have a more intense and critical work load and should be compensated higher. • Respect and clear communication by upper level management. • Better programmatic approach to project planning and delivery. • Provide an avenue for job progression.
• More unification and team building among departments. • I love working here and hoping that I remain happy here. So far so good and I want to try to raise others morale up as well.
Additional Comments
The final substantive survey question provided space for respondents to offer any additional comments that may inform our review of American Canyon’s organization structure and operations.
• The City doesn't need two separate maintenance departments; it should be all managed under one department; the City may hire a deputy to oversee the water treatment plants, 469
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43 but not necessarily anything else; you only need one director for both; you have supervisors and lead employees that can communicate to their staff; Erica can handle MUD and Public Works-she is the right person in the right position; all departments, Water Distribution, Sewer Maintenance, and Public Works, should be at the same location, Water Distribution, is now located seven miles out of town at the Water Treatment Plantthis move is costing the City more money in lost productivity. • Adopt modern technology to improve customer service.
• City is structured poorly, employees in wrong positions. • A big thank you to Jason and Maria for doing this whole process. • Would be nice to have better break room and restrooms. • A lot of new positions are created at City Hall while the maintenance workers have a longer step program with lower wages; maintenance workers are underpaid and can barely afford to live near the City they work in.
• The leadership for MUD has been difficult for the last four years. Now that leadership has changed, a general sense of stress has left the building; it will continue to be a work in progress, but it feels like it is getting better. The two departments, either separated or combined, need to function as a team.
Table 7 illustrates the respondents by staff level and department.
Table 7. Which of the following best describes your position? Answer Choices Public Works
Maintenance
and Utilities
Other
Departments
All
Respondents
Administrative 2 2 0 4 (8%)
Director 0 1 0 1 (2%)
Front-line 19 9 2 30 (61%)
Manager 4 0 1 5 (10%)
Supervisor 1 4 0 5 (10%)
Other (please specify) 4 0 0 4 (8%)
Table 8 is the breakdown of the respondents by department and how long they have been employed by American Canyon.
Table 8. Tenure with American Canyon
Answer Choices Public Works
Maintenance
and Utilities
Other
Departments
All
Respondents
1 year or less 11 3 0 14 (29%)
2 to 5 years 8 5 1 14 (29%)
6 to 10 years 4 1 0 5 (10%)
11 to 15 years 4 1 0 5 (10%)
More than 15 years 2 4 2 8 (16%)
Prefer not to answer 1 2 0 3 (6%)
470
Review of the Public Works and Maintenance and Utilities Departments Attachment C – Organization Charts for Peer Cities Baker Tilly 44 Attachment C – Organization Charts for Peer Cities
471
Review of the Public Works and Maintenance and Utilities Departments Attachment C – Organization Charts for Peer Cities Baker Tilly 45 472
Review of the Public Works and Maintenance and Utilities Departments Attachment C – Organization Charts for Peer Cities Baker Tilly 46 473
Review of the Public Works and Maintenance and Utilities Departments Attachment C – Organization Charts for Peer Cities Baker Tilly 47 474
CONFIDENTIAL
Parks and Recreation Department
Classification Review
March 2024
Administrative Report
Prepared by:
Kim Catacutan
Nancy Kaiser
Pam Sloan
Municipal Resource Group, LLC
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Page ii
TABLE OF CONTENTS
EXECUTIVE SUMMARY ................................................................................................................3 METHODOLOGY ..........................................................................................................................4 FINDINGS AND RECOMMENDATIONS ........................................................................................5 A. Organizational Structure.................................................................................... 5 B. Recreation Manager .......................................................................................... 6 C. Administrative Technician ................................................................................. 7 D. Recreation Supervisor........................................................................................ 8 E. Recreation Coordinator ..................................................................................... 9 F. Program Coordinator......................................................................................... 9 G. Salary Considerations....................................................................................... 10 CONCLUSION.............................................................................................................................12 ATTACHMENT A ………………………………………………………………………………………………………………….13 ATTACHMENT B ………………………………………………………………………………………………………………….17 ATTACHMENT C ………………………………………………………………………………………………………………….21 ATTACHMENT D ………………………………………………………………………………………………………………….25 476
Executive Summary CONFIDENTIAL
City of American Canyon, Parks & Recreation Department
Classification Review
EXECUTIVE SUMMARY
In October 2023, the City of American Canyon engaged the services of Municipal Resource Group, LLC (MRG) to conduct an organizational assessment of the Parks and Recreation Department. One portion of the project involves reviewing the Recreation Manager and Administrative Technician positions. This report summarizes the findings and recommendations pertaining to those two positions, as well as recommended changes to other classifications utilized in the Parks and Recreation Department.
In December 2023, for the classification review, MRG consultants met with the Parks and Recreation Director, Assistant City Manager, Interim Recreation Manager, and Administrative Technician, and reviewed position description questionnaires (PDQs), class specifications, salary schedule, the City’s Recruitment and Retention Strategic Plan, the department’s organizational charts, and the City budget.
In January 2024, MRG presented preliminary findings to the Parks and Recreation Director and Assistant City Manager. The classification/position findings outlined in this report were included in that presentation. MRG is recommending the following actions regarding the Parks and Recreation classifications and positions:
A. Organizational Structure: Consider adding two Recreation Supervisor positions to supervise the Recreation Coordinators and other recreation program positions.
B. Recreation Manager: The position is classified correctly; however, the class specification should be updated.
C. Administrative Technician: The position is classified correctly, and no changes to the class specification are recommended.
D. Recreation Supervisor: Revise the class specification to: (1) identify the classification as a full supervisor over permanent, full-time staff; (2) identify it as an FLSA-exempt management classification; and (3) update the minimum qualifications and other sections, especially pertaining to supervisory functions. MRG also recommends that the City abolish the Aquatics Supervisor classification.
E. Recreation Coordinator: Revise the class specification to clearly differentiate it from Recreation Supervisor.
F. Program Coordinator: Establish a new Recreation Specialist classification and reclassify the Program Coordinators in the Parks and Recreation Department to Recreation Specialist. Keep the Program Coordinator classification to be used in other departments.
G. Salary Considerations: Consider aligning Recreation Supervisor with Maintenance Supervisor for the purpose of salary placement, and placing Recreation Manager 5% below Public Works Superintendent.
The MRG consultants are currently preparing a preliminary organizational assessment report and providing guidance to Parks and Recreation Department management with the broad goals of refreshing operations and reinvesting in staffing and administrative structure to renew services and strategic efforts that will benefit the community. 477
Methodology CONFIDENTIAL
City of American Canyon, Parks & Recreation Department
Classification Review
METHODOLOGY
As part of the current classification review, MRG consultants reviewed the following documents:
• Position description questionnaires (PDQs) completed by the Parks and Recreation Director and Interim Recreation manager.
• The City’s class specifications, salary schedule, Recruitment and Retention Strategic Plan, budget, and organizational charts.
• Class specifications, salary schedules, organizational charts, and budgets at the City’s comparator agencies and other similar cities.
In addition to the document review, MRG consultants met with the Parks and Recreation Director, the Assistant City Manager, the Interim Recreation Manager, and the Administrative Technician to learn more about the positions. The information obtained from the documents and meetings was analyzed, and preliminary findings and recommendations are included in this report.
For the full organizational assessment, MRG consultants also reviewed policies, protocols, operations manuals, websites, master plans, and community surveys, and met with many Parks and Recreation Department employees and internal stakeholders.
MRG consultants presented the preliminary findings to the Assistant City Manager and Parks and Recreation Director in January 2024.
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Classification Review
FINDINGS AND RECOMMENDATIONS
Below are MRG’s key findings and recommendations regarding the classification review portion of the project.
A. Organizational Structure
Finding: The Parks and Recreation Department organizational structure is too horizontal.
The Parks and Recreation Department’s current organizational chart is below.
The final MRG organizational assessment report will address the organizational structure in more detail; however, it is worth noting in this report that the consultants think the department’s organizational structure is too horizontal for the current needs of the department, which results in the Parks and Recreation Director and Recreation Manager being overwhelmed with day-to-day supervisory duties and operational issues, as well as performing their own important and complex duties for the department and City. At times, the Director and Manager have filled in for much lower-level positions (e.g., lifeguard) to ensure that the programs remained operational.
In addition to placing too much pressure on middle and upper management, the horizontal structure is not ideal for succession planning and cross training. Recreation Coordinators and Recreation Supervisors, as currently written in the class specifications, do not fully supervise staff and do not acquire the necessary experience and training to promote to the Recreation Manager classification. Likewise, the Recreation Manager spends so much time performing routine recreation operations duties that the incumbent does not acquire the knowledge, skills, and abilities needed to promote to the Parks and Recreation Director position. Furthermore, most department employees feel so overwhelmed with their current roles that they do not have the time or guidance to participate in cross training within the department.
Parks &
Recreation
Director
Recreation
Manager
Recreation
Coordinator
Program
Coordinators
Recreation
Coordinator
Program
Coordinators
Recreation
Coordinator
Program
Coordinators
Recreation
Coordinator
Program
Coordinators
Administrative
Technician
Administrative
Clerk
Office Assistants
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Classification Review
Recommendation: Add two Recreation Supervisors to fully supervise staff and oversee day-to-day recreation operations. A full supervisor has the authority to make effective recommendations and/or carry out selection, performance evaluation, and disciplinary procedures. Below is the proposed organizational chart.
B. Recreation Manager
Finding: The Recreation Manager position is classified correctly; however, the class specification is in need of an update.
An MRG consultant reviewed the Recreation Manager PDQ and interviewed the Parks and Recreation Director, the Assistant City Manager, and the Interim Recreation Manager. It was discovered that the Interim Recreation Manager has been in the position for two years and was promoted from the classification of Recreation Supervisor. In her current role, the incumbent oversees the day-to-day operations of the department’s recreation programs, supervises staff, assists with the department budget, assists customers, oversees program development, assists with park and facility maintenance, works with other departments, develops and oversees community events, works collaboratively with community partners and nonprofit organizations, and acts as the Director in her absence.
MRG consultants found that the position is classified correctly as Recreation Manager and is intended to perform the duties and responsibilities outlined in the Recreation Manager class specification, which states: “Under general direction, manage overall operations of the City’s recreation programs; plan, organize, coordinate, develop, implement, promote, and evaluate recreation activities and programs; assist the director with various departmental issues, policies, programs, and activities as needed.” Parks &
Recreation
Director
Recreation
Manager
Recreation
Supervisor
Recreation
Coordinator
Recreation
Specialists
Recreation
Coordinator
Recreation
Specialists
Recreation
Supervisor
Recreation
Coordinator
Recreation
Specialists
Recreation
Coordinator
Recreation
Specialists
Administrative
Technician
Administrative
Clerk
Office Assistants
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Classification Review
While the position is appropriately classified, it should be noted that the incumbent was placed in the position, on an interim basis, with limited supervisory experience and education, which has made it challenging for her to succeed in the Recreation Manager role. She is performing many of the duties that are listed in the class specification; however, the supervisory, management, and professional administrative duties, which are the majority of the duties, have been performed in a learning capacity. It should also be noted that it is highly uncommon for an employee to serve in an acting or interim capacity for two years.
A detailed review of the Recreation Manager class specification revealed that it is in need of a revision, especially the minimum qualifications section.
Recommendation: Keep the Recreation Manager position classified as such, and revise the class specification as shown in Attachment A. After the class specification is officially revised, the City should begin a selection process and appoint a permanent Recreation Manager.
C. Administrative Technician
Finding: The Administrative Technician position is classified correctly.
MRG consultants reviewed the Administrative Technician PDQ, interviewed the incumbent before her last day with the City, and interviewed the Parks and Recreation Director about her vision for the position. It was discovered that the incumbent performed high-level administrative support duties for the department and the Director. The PDQ indicates that the position oversees the day-to-day operations of the front counter, which includes customer service and registration, and supports the Director in the department’s contract and insurance services and with two commissions.
It was later learned that the commission support function moved to the City Clerk’s Office.
The Parks and Recreation Director expressed that she thought the position should be classified as a Recreation Manager; however, the duties and responsibilities of the position are not consistent with those of a Recreation Manager. The position clearly falls within the definition described in the Administrative Technician class specification, which states: “Under direction of a department head or deputy director, perform a wide variety of technical level administrative duties in support of a City department or program; research, collect, and analyze data and prepare draft reports; track and report operational statists; and provide technical assistance to management.” The Director indicated that the contract support and supervisory duties may warrant a higher classification; however, the Administrative Technician class specification states, under distinguishing characteristics, that the class is “responsible for performing the 481
Findings and Recommendations CONFIDENTIAL
City of American Canyon, Parks & Recreation Department
Classification Review
most complex administrative support duties in support of a department head and the overall operations of the department.” The duties listed in the class specification describe the complex nature of the work, including, “Assist with the development of Requests for Proposals and contract administration,” and “Plan, prioritize, assign, supervise, and review the work of administrative support staff, as assigned.” Recommendation: Keep the Administrative Technician position classified as such and begin a recruitment to fill the position as soon as possible.
D. Recreation Supervisor
Finding: The Recreation Supervisor class specification is in need of an update.
After reviewing the Recreation Supervisor class specification, MRG consultants found two main issues that should be addressed. First, the class specification indicates that it is not a full supervisor. Second, City and Human Resources management indicated that it is flexibly staffed with the Recreation Coordinator classification, meaning that an employee may be hired as a Recreation Coordinator and promoted to Recreation Supervisor without participating in a competitive recruitment and selection process. The Recreation Coordinator and Recreation Supervisor class specifications are almost identical, which is typical for flexibly-staffed classifications; however, the flexiblestaffing option is not mentioned.
It appears that the recreation classification series was revised in 2019 and 2022.
Interestingly, the 2019 version of the Recreation Supervisor class specification shows that it was a full supervisory classification, and the 2022 version, which is currently used, shows that it is a lead-level classification. MRG is not aware of the reasons for the major change in 2022.
To implement the recommended organizational structure previously shown in this report, the Recreation Supervisor classification should: (1) stand on its own as a full supervisor with authority to make effective recommendations and/or carry out selection, performance evaluation, and disciplinary procedures; and (2) be categorized as an FLSA-exempt management classification. Those changes will require updating the class specification.
As noted in the City’s Recruitment and Retention Strategic Plan, the City ensures internal equity by evaluating classifications using the whole job method, as well as evaluating the allocation factors of decision making, scope and complexity, contact with others required by the job, supervision exercised and received, and minimum qualifications (e.g., experience, education, knowledge, skills, and abilities required to perform the essential duties and responsibilities). The recommended changes to the Recreation Supervisor classification warrant a review of the salary. The City may want to consider aligning Recreation Supervisor with Maintenance Supervisor for salary 482
Findings and Recommendations CONFIDENTIAL
City of American Canyon, Parks & Recreation Department
Classification Review
placement. The Recruitment and Retention Strategic Plan indicates that supervisory classifications should be placed 15% to 30% above the highest level supervised. If the Recreation Supervisor salary is aligned with Maintenance Supervisor, it would be approximately 31% above Recreation Coordinator; however, the Recreation Manager would only be about 13% above Recreation Supervisor. In other words, if the Recreation Supervisor salary is increased, the Recreation Manager salary may also need to be increased.
If MRG’s recommended organizational structure is implemented, the City should formally abolish the Aquatics Supervisor classification because the Recreation Supervisor classification will typically supervise two or more Recreation Coordinators/ programs.
Recommendation: Revise the Recreation Supervisor class specification as shown in Attachment B, which will make it an FLSA-exempt, full supervisory classification. MRG also thinks the City should abolish the Aquatics Supervisor classification.
E. Recreation Coordinator
Finding: The Recreation Coordinator class specification is in need of an update.
The Recreation Coordinator is defined as a classification that provides lead direction to lower-level recreation staff and volunteers. Since MRG is recommending substantial changes to the Recreation Supervisor class specification, it is also necessary to revise the Recreation Coordinator class specification.
Recommendation: Revise the Recreation Coordinator class specification as shown in Attachment C to update the wording and clearly distinguish it from the Recreation Supervisor classification.
F. Program Coordinator
Finding: The Program Coordinator class specification is in need of an update.
The City’s Human Resources staff revealed that the Program Coordinator title is not ideal for this temporary classification because “Coordinator” is used for permanent City classifications. MRG consultants are in agreement and think the title should be changed to Recreation Specialist and class specification should be revised.
Recommendation: Retitle the Program Coordinator classification to Recreation Specialist, and revise the class specification as shown in Attachment D. 483
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Classification Review
G. Salary Considerations
Finding: The proposed changes to the Recreation Supervisor classification warrant a salary increase. Increasing the Recreation Supervisor salary will create compaction with Recreation Manager; therefore, the Recreation Manager salary should also be increased.
With the proposed changes to the Recreation Supervisor classification, including the full supervisory responsibilities and FLSA exempt status, it is most similar to the Maintenance Supervisor classification. Each classification: (1) has a comparable role within their respective division, supervising two to four permanent employees and reporting to a division manager; (2) has comparable minimum qualifications, requiring previous experience in a lead-level classification (e.g., Recreation Coordinator or Senior Maintenance Worker) and special certifications; and (3) has a high consequence of error in that a major mistake could result in severe physical harm to others. Those similarities indicate that it is appropriate to align the Recreation Supervisor classification with the Maintenance Supervisor classification for salary placement.
MRG reviewed the salaries of the recreation and maintenance classifications at the City of Benicia, City of Dixon, Greater Vallejo Recreation District, Pleasant Hill Recreation and Parks District, and City of Rohnert Park. The following information was discovered:
• The salaries of the City of American Canyon’s recreation classifications appear to be within 5% of the comparator median.
• On average, at the five comparator agencies:
o Parks and Recreation Director is 39% above Recreation Manager and 9% below Public Works Director.
o Recreation Manager is 32% above Recreation Supervisor and 6% below Parks or Public Works Superintendent.
o Recreation Supervisor is 36% above Recreation Coordinator and 1% below Maintenance Supervisor.
• At the City of American Canyon:
o Parks and Recreation Director is 57% above Recreation Manager and 12% below Public Works Director.
o Recreation Manager is 22% above Recreation Supervisor and 18% below Public Works Superintendent.
o Recreation Supervisor is 22% above Recreation Coordinator and 7% below Maintenance Supervisor.
The City’s Recruitment and Retention Strategic Plan indicates that full supervisors should be placed at least 15% above the highest-paid subordinate classification. As 484
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noted above, currently, Recreation Manager is approximately 22% above Recreation Supervisor, and Recreation Supervisor is approximately 22% above Recreation Coordinator. With the proposed increase to Recreation Supervisor, it will be approximately 31% above Recreation Coordinator, and Recreation Manager will be only 13% above Recreation Supervisor. One option to correct the compaction is to consider placing Recreation Manager 5% below Public Works Superintendent, which would place it 31% above Recreation Supervisor. Parks and Recreation Director would then be 36% above Recreation Manager. Those variances are more in line with the comparator agencies that were reviewed.
Recommendation: Consider aligning Recreation Supervisor with Maintenance Supervisor, and placing Recreation Manager 5% below Public Works Superintendent. 485
Conclusion CONFIDENTIAL
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Classification Review
CONCLUSION
This classification report is one part of MRG’s organizational assessment of the City of American Canyon’s Parks and Recreation Department. The organizational structure and classification recommendations provided in this report are expected to help the Parks and Recreation Department hire qualified employees, manage the existing and future workload, and prepare employees for successful careers by establishing an upward career path. It is also intended to provide a foundation for the department to develop succession planning and cross training strategies.
It should be noted that MRG reviewed the Parks and Open Space Project Coordinator class specification; however, no recommendations were made pertaining to the classification because it is not currently being utilized, and because it is much different from the other recreation classifications that were the focus of this review. 486
ATTACHMENT A
City of American Canyon, Parks & Recreation Department
Classification Review
City of American Canyon DRAFT March 2024
RECREATION MANAGER
Class specifications are intended to present a descriptive list of the range of duties performed by employees in this class. Specifications are not intended to reflect all duties performed with a job.
DEFINITION
Under general direction, manages overall operation of the City’s recreation programs; plans, organizes, coordinates, develops, implements, promotes, and evaluates recreation activities and programs; assists the director with various departmental issues, policies, programs, and activities as needed.
SUPERVISION RECEIVED AND EXERCISED
Receives general direction from the Parks and Recreation Director. Exercises direct and indirect supervision over supervisory, professional, and other lower-level staff.
DISTINGUISHING CHARACTERISTICS
The Recreation Manager is distinguished from the Recreation Supervisor in that the former supervises Recreation Supervisors and has overall division responsibility. This class is distinguished from the Parks and Recreation Director in that the latter supervises the Recreation Manager and has overall department responsibility.
EXAMPLES OF DUTIES
Duties may include, but are not limited to, the following:
• Participate in the development and implementation of goals, objectives, policies, and promotions for the City’s recreation programs.
• Select, supervise, train, and motivate assigned personnel; set performance standards, evaluate performance, and work with employees to correct deficiencies; determine and implement corrective actions in coordination with Human Resources staff and the Parks and Recreation Director as necessary.
• Lead the effort and assist Human Resources staff in recruiting temporary, part-time, and/or seasonal staff as required.
• Oversee recreation staff work schedules and timecard maintenance. • Develop emergency procedures and ensure that staff are trained regarding the implementation of the procedures.
• Recommend and assist in the implementation of departmental goals, objectives, strategic plans, policies, and procedures.
• Oversee the development, publication, and distribution of the departmental outreach and other related documents.
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ATTACHMENT A
City of American Canyon, Parks & Recreation Department
Classification Review
• Participate in preparing and administering division budget; submit budget recommendations; monitor expenditures.
• Perform research and conduct surveys regarding leisure services, program best practices, aquatics, and recreation facilities, and other departmental or city-wide services/programs.
• Manage and oversee the use and operation of recreation facilities, including programming, maintenance, and rental to the public and outside agencies. • Develop, update, oversee, and monitor events, including permits, policies, and procedures as they pertain to departmental activities.
• Oversee the development of new activities and programs and improvement of existing activities and programs to meet the recreation needs of the community. • Research and identify alternative funding sources; solicit and receive donations; participate in fund-raising events; prepare grant proposals, as necessary. • Supervise and participate in program development, advertisement, registration, and implementation of recreation programs.
• Respond to citizen concerns and requests.
• Notify City maintenance staff of maintenance required on facilities, equipment, or materials.
• Recommend fees and charges for department programs.
• Attend Parks and Community Services Commission and other community/departmental meetings as requested.
• Prepare clear and comprehensive reports as required.
• Answer the telephone, assist, and register customers in the department office as needed.
• Act as the director in his/her absence.
• Perform related duties as assigned.
EMPLOYMENT STANDARDS
Knowledge of:
• Principles and practices of supervision to direct, train, motivate, evaluate, and correct staff performance.
• Philosophy, principles, and practices of public recreation and/or aquatics programs. • Recreation activities suitable for children, adults, disabled, and senior citizens. • Procurement practices related to recreation and/or aquatics equipment and supplies. • Marketing theories, principles, and practices and their application to a wide variety of leisure services.
• Recreation and office related software packages.
• Practices and principles of first aid, aquatics safety, and CPR lifesaving. • Budget preparation and control.
• Principles and practices of customer service.
Ability to:
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ATTACHMENT A
City of American Canyon, Parks & Recreation Department
Classification Review
• Supervise a variety of recreation programs, services, events, and employees. • Communicate clearly and concisely, both orally and in writing. • Develop and implement community recreational programs and analyze use, satisfaction, popularity, and effectiveness.
• Supervise and instruct individuals and groups in aquatic and recreation activities. • Exercise discretion in confidential matters.
• Prepare a variety of complex written documents, including reports and memoranda. • Operate modern office equipment, including computer equipment and specialized software applications.
• Establish and maintain effective working relationships with those contacted in the course of work.
• Interpret community demand for recreation and/or aquatic programs. • Interact effectively with others encountered in the course of work. • Work with diverse populations and maintain an inclusive environment.
Minimum Qualifications:
Any combination of Education and Experience that results in the successful applicant obtaining the requisite knowledge, skills, and abilities to perform the required job duties.
Typical examples include:
Education:
Equivalent to graduation from an accredited four-year college or university with major coursework in recreation, leisure services, or a closely related field. -ANDExperience:
Four (4) years of progressively responsible full-time experience in the field of recreation, leisure services, or a closely related field, including two (2) years working in a supervisory capacity equivalent to a Recreation Supervisor with the City of American Canyon.
Note: Additional qualifying experience may substitute for the education requirement on a year-for-year basis.
Certificate Requirement:
The following must be obtained within the first six (6) months of employment and maintained throughout employment:
• CPR for Professional Rescuer (or equivalent)
• First Aid for Safety Personnel (Title 22)
License Requirement:
489
ATTACHMENT A
City of American Canyon, Parks & Recreation Department
Classification Review
Possession of a valid California Class C Driver License is required at the time of appointment.
Individuals who do not meet this requirement due to physical disability will be reviewed on a case-by-case basis.
Physical Requirements:
Work is performed in a typical outdoor environment on a year-round basis. (1) Mobility:
frequent performance of heavy manual labor; frequent standing for long periods of time; frequent bending and squatting. (2) Lifting: frequent lifting up to 50 pounds; occasional lifting up to 75 pounds. (3) Vision: constant use of overall vision. (4) Dexterity: frequent grasping, holding, and reaching. (5) Hearing/Talking: frequent hearing and talking in person. (6) Emotional/Psychological: frequent coworker contact; occasional working alone. (7) Environmental: frequent exposure to loud noise; frequent exposure to chemicals, fumes, and other environmental substances.
Other Requirements:
May require evening and weekends.
Classification Adopted Revised Retitled Class
Code
FLSA
Designation
Rep
Unit
Recreation
Manager
1992 2/2002 4233 Non-Exempt 4
Recreation
Manager
11/2013 2013 - From
Recreation
Supervisor
2212 Changed to
Exempt in
2013
2 Recreation
Manager
7/2022 2212 Exempt 2
Recreation
Manager
3/2024 2212 Exempt 2
APPROVED: Date:
City Manager
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ATTACHMENT B
City of American Canyon, Parks & Recreation Department
Classification Review
City of American Canyon DRAFT March 2024
RECREATION SUPERVISOR
Class specifications are intended to present a descriptive list of the range of duties performed by employees in this class. Specifications are not intended to reflect all duties performed with a job.
DEFINITION
Under general direction, independently plans, organizes, coordinates, develops, implements, promotes, and evaluates assigned recreation activities and programs and provides direct supervision to lower-level recreation staff and volunteers.
SUPERVISION RECEIVED AND EXERCISED
Receives general direction from the Recreation Manager or other higher-level management position. Exercises direct supervision over lower-level personnel.
DISTINGUISHING CHARACTERISTICS
This is the full supervisory level in the recreation class series. Incumbents supervise lower-level recreation staff and perform the full range of complex duties within their assigned program areas. The Recreation Supervisor is distinguished from the Recreation Coordinator in that the Supervisor provides direct supervision to full-time, permanent Recreation Coordinators, and the Coordinator provides lead direction to assigned staff and volunteers. The Recreation Supervisor is distinguished from the Recreation Manager in that the latter supervises Recreation Supervisors and is responsible for overall division management.
EXAMPLES OF DUTIES
Duties may include, but are not limited to, the following:
• Plan, organize, implement, and supervise assigned recreation program areas and facility operations, such as teen programs, leisure classes, senior citizen, environmental/outdoor recreation, aquatics, and sports. • Supervise, train, and motivate assigned personnel; participate in selecting program and department employees; set performance standards, evaluate performance, and work with employees to correct deficiencies; implement corrective actions as necessary. • Develop recreation staff work schedules and maintain timecards. • Train staff regarding the implementation of emergency procedures. • Work in collaboration with the Recreation Manager to assist Human Resources staff in recruiting temporary, part-time, and/or seasonal staff as required. • Assist the Recreation Manager in overseeing the use and operation of recreation facilities, including programming, maintenance, and rental to the public and outside agencies.
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ATTACHMENT B
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• Oversee and monitor events, including permits, policies, and procedures as they pertain to recreation activities.
• Oversee contract services associated with assigned program areas. • Evaluate program effectiveness and participation and make recommendations for improvements or modifications.
• Develop new activities and programs and improve existing activities and programs to meet the recreation needs of the community.
• Ensure that work areas are safe and appropriate for all employees and participants. • Provide input to and coordinate program marketing efforts through news releases, posters, flyers, web pages, mailing lists, and other methods. • Assist the Parks and Recreation Director and the Recreation Manager with budget development and administration for assigned programs.
• Ensure that programs have adequate supplies and equipment and that facilities are clean, operational, and safe.
• Coordinate with appropriate City staff to repair facilities and equipment as needed. • Prepare and maintain a variety of reports, records, contracts, and files for assigned program areas.
• Draft clear and comprehensive written reports as requested. • Respond to citizen concerns and requests about recreation programs; interpret pertinent policies, procedures, rules, and regulations.
• Serve as staff liaison on assigned committees and to outside agencies. • Answer the telephone and provide customer service as needed. • Perform related duties as assigned.
EMPLOYMENT STANDARDS
Knowledge of:
• Methods and techniques of implementing and effectively operating recreation programs in assigned areas.
• Practices and principles of first aid, aquatics safety, and CPR lifesaving. • Principles and practices of supervision to direct, train, motivate, evaluate, and correct staff performance.
• Computer applications related to general office environments and the recreation field. • Marketing techniques.
• Basic cost analysis and budgeting principles.
• Fundamentals of recordkeeping and report writing.
• Principles and practices of customer service.
Ability to:
• Supervise a variety of recreation programs, services, events, and employees. • Evaluate effectiveness of recreation programs and modify as needed. • Exercise initiative and manage multiple tasks with attention to detail. • Interpret and apply rules, regulations, policies, and procedures. 492
ATTACHMENT B
City of American Canyon, Parks & Recreation Department
Classification Review
• Effectively respond to emergency situations and apply first aid and CPR when necessary.
• Exercise discretion in confidential matters.
• Prepare and maintain a variety of reports and records. • Operate modern office equipment, including computer equipment and specialized software applications.
• Communicate clearly and concisely, both orally and in writing. • Establish and maintain effective working relationships with those contacted in the course of work.
• Respond to requests and inquiries from the public.
• Work with diverse populations and maintain an inclusive environment.
Minimum Qualifications:
Any combination of Experience and Education that results in the successful applicant obtaining the requisite knowledge, skills and ability to perform the required job duties.
Typical examples include:
Education:
Equivalent to graduation from an accredited four-year college or university with major course work in recreation, leisure services, or a closely related field. -ANDExperience:
Three (3) years of progressively responsible full-time experience in the field of recreation, leisure services, or a closely related field, including two (2) years working in a lead capacity equivalent to a Recreation Coordinator with the City of American Canyon.
Note: Additional qualifying experience may substitute for the education requirement on a year-for-year basis.
Certificate Requirement:
• For assignment in all program areas, American Red Cross First Aid and CPR/AED must be obtained within the first three (3) months of employment and maintained throughout employment.
• For assignment in aquatics-related program areas, incumbents must possess at the time of appointment and maintain throughout employment the following certifications:
o American Red Cross Basic First Aid, CPR/AED for the Professional Rescuer o American Red Cross Lifeguard Training
o American Red Cross Lifeguard Instructor
o American Red Cross Water Safety Instructor
License Requirement:
493
ATTACHMENT B
City of American Canyon, Parks & Recreation Department
Classification Review
Possession of a valid California Class C Driver License is required at the time of appointment.
Individuals who do not meet this requirement due to physical disability will be reviewed on a case-by-case basis.
Physical Requirements:
Work is performed in a typical outdoor environment on a year-round basis. (1) Mobility:
frequent performance of heavy manual labor; frequent standing for long periods of time; frequent bending and squatting. (2) Lifting: frequent lifting up to 50 pounds; occasional lifting up to 75 pounds. (3) Vision: constant use of overall vision. (4) Dexterity: frequent grasping, holding, and reaching. (5) Hearing/Talking: frequent hearing and talking in person. (6) Emotional/Psychological: frequent coworker contact; occasional working alone. (7) Environmental: frequent exposure to loud noise; frequent exposure to chemicals, fumes, and other environmental substances.
Other Requirements:
Some assignments may require evening, weekend, or other shift work.
Classification Adopted Revised Retitled Class
Code
FLSA
Designation
Rep Unit
Recreation
Supervisor
1992 4233 Non-Exempt 4
Recreation
Supervisor
1/2019 4233 Non-Exempt 4
Recreation
Supervisor
7/2022 4233 Non-Exempt 4
Recreation
Supervisor
3/2024 4233 Exempt 4
APPROVED: Date:
City Manager
494
ATTACHMENT C
City of American Canyon, Parks & Recreation Department
Classification Review
City of American Canyon DRAFT March 2024
RECREATION COORDINATOR
Class specifications are intended to present a descriptive list of the range of duties performed by employees in this class. Specifications are not intended to reflect all duties performed with a job.
DEFINITION
Under general supervision, plans, organizes, coordinates, develops, implements, promotes, and evaluates assigned recreation activities and programs, and provides lead direction to lowerlevel recreation staff and volunteers.
SUPERVISION RECEIVED AND EXERCISED
Receives general supervision from a Recreation Supervisor or other higher-level supervisory or management position. Exercises technical and functional direction over lower-level recreation staff, typically part-time and seasonal employees.
DISTINGUISHING CHARACTERISTICS
This is the lead level in the recreation class series. Incumbents are responsible for coordinating one or more recreation programs and perform a variety of complex duties within their assigned program areas. The Recreation Coordinator is distinguished from the Recreation Supervisor in that the latter provides direct supervision, including performance evaluation, to full-time, permanent Recreation Coordinators. The Recreation Coordinator is distinguished from the Recreation Program Specialist in that the latter receives direction from a Recreation Coordinator and is typically a part-time or temporary position with a narrower focus.
EXAMPLES OF DUTIES
Duties may include, but are not limited to, the following:
• Plan, organize, implement, and lead assigned recreation program areas and facility operations, such as teen programs, leisure classes, senior citizen, environmental/outdoor recreation, aquatics and sports.
• Direct the work of assigned part-time, temporary, contract, limited-duration, and volunteer staff.
• Provide lead direction in assigning and scheduling program work. • Program and oversee contract services.
• Train subordinate staff and volunteers in program activities and ensure compliance with safety procedures.
• Provide input on program effectiveness and participation and makes recommendations for improvements or modifications.
• Review work area and ensure it is safe and appropriate for all employees and participants.
495
ATTACHMENT C
City of American Canyon, Parks & Recreation Department
Classification Review
• Provide input to and coordinate program marketing efforts through news releases, posters, flyers, web pages, mailing lists, and other methods. • Assist with program budget development and management. • Enhance existing programs and develop new programs.
• Monitor supplies and equipment for assigned programs; maintain adequate supply inventory; ensure equipment and facility is clean, operational and safe; advise supervisor of needed repairs or replacement; and coordinate facility repairs as needed. • Draft clear and comprehensive written reports, as requested. • Respond to basic citizen concerns and requests about program. • Answer the telephone and provide customer service, as needed. • Perform related duties as assigned.
EMPLOYMENT STANDARDS
Knowledge of:
• Methods and techniques of implementing programs specific to assigned recreation activities.
• Practices and principles of first aid, aquatics safety, and CPR lifesaving. • Practices of training, and technical and functional supervision. • Computer applications related to general office environments and the recreation field. • Marketing techniques.
• Basic cost analysis and budgeting principles.
• Fundamentals of recordkeeping and report writing.
• Principles and practices of customer service.
Ability to:
• Coordinate a variety of recreation programs.
• Communicate clearly and concisely, both orally and in writing. • Establish and maintain effective working relationships with those contacted in the course of work.
• Lead, organize, and review the work of staff and volunteers. • Lead and instruct individuals and groups in recreation activities. • Respond to requests and inquiries from the general public. • Establish and maintain effective working relationships with those contacted in the course of work.
• Work with diverse populations and maintain an inclusive environment.
Minimum Qualifications:
Any combination of Experience and Education that results in the successful applicant obtaining the requisite knowledge, skills and ability to perform the required job duties.
Typical examples include:
Education:
496
ATTACHMENT C
City of American Canyon, Parks & Recreation Department
Classification Review
Two (2) years of college coursework in recreation, leisure services, or a closely related field. -ANDExperience:
Two (2) years of full-time experience in the field of recreation, leisure services, or a closely related field, preferably equivalent to a Recreation Leader with the City of American Canyon.
Note: Additional qualifying experience may substitute for the education requirement on a year-for-year basis.
Certificate Requirement:
• For assignment in all program areas, American Red Cross First Aid, CPR/AED must be obtained within the first three (3) months of employment and maintain throughout employment.
• For assignment in aquatics-related program areas, incumbents must possess the following certifications at the time of appointment and maintain throughout employment:
o American Red Cross Basic First Aid, CPR/AED for the Professional Rescuer o American Red Cross Lifeguard Training
o American Red Cross Lifeguard Instructor
o American Red Cross Water Safety Instructor
License Requirement:
Possession of a valid California Class C Driver License is required at the time of appointment.
Individuals who do not meet this requirement due to physical disability will be reviewed on a case-by-case basis.
Physical Requirements:
Work is performed in a typical outdoor environment on a year-round basis. (1) Mobility:
frequent performance of heavy manual labor; frequent standing for long periods of time; frequent bending and squatting. (2) Lifting: frequent lifting up to 50 pounds; occasional lifting up to 75 pounds. (3) Vision: constant use of overall vision. (4) Dexterity: frequent grasping, holding, and reaching. (5) Hearing/Talking: frequent hearing and talking in person. (6) Emotional/Psychological: frequent coworker contact; occasional working alone. (7) Environmental: frequent exposure to loud noise; frequent exposure to chemicals, fumes, and other environmental substances.
Other Requirements:
Some assignments may require evening, weekend, or other shift work.
Classification Adopted Revised Retitled Class
Code
FLSA
Designation
Rep Unit
497
ATTACHMENT C
City of American Canyon, Parks & Recreation Department
Classification Review
Recreation
Coordinator
2015 4608 Non-Exempt 4
Recreation
Coordinator
01/2019 4608 Non-Exempt 4
Recreation
Coordinator
07/2022 4608 Non-Exempt 4
Recreation
Coordinator
03/2024 4608 Non-Exempt 4
APPROVED: Date:
City Manager
498
ATTACHMENT D
City of American Canyon, Parks & Recreation Department
Classification Review
City of American Canyon DRAFT March 2024
RECREATION SPECIALIST
(Temporary)
Class specifications are intended to present a descriptive list of the range of duties performed by employees in this class. Specifications are not intended to reflect all duties performed with a job.
DEFINITION
Under general supervision, plans, organizes, coordinates, develops, implements, promotes, and evaluates assigned recreation program activities, and provides lead direction to lower-level recreation staff and volunteers.
SUPERVISION RECEIVED AND EXERCISED
Receives general supervision from a Recreation Supervisor or other higher-level supervisory or management position. Receives lead direction from a Recreation Coordinator. Exercises technical and functional direction over lower-level temporary recreation staff.
DISTINGUISHING CHARACTERISTICS
Employment in this temporary, at-will job class is restricted to assignments that are temporary in nature. The Recreation Specialist is distinguished from the Recreation Coordinator in that the latter is typically filled on a permanent, full-time basis and provides lead direction to the former.
EXAMPLES OF DUTIES
Duties may include, but are not limited to, the following:
• Plan, organize, implement, and lead assigned recreation program activities. • Assist in the development, recommendation, and implementation of goals, objectives, policies, procedures, and work standards for assigned program. • Monitor day-to-day operations of recreation program and events, including making site visits and resolving complaints.
• Formulate and organize program plans and schedules for seasonal and year-round activities related to program areas.
• Provide lead direction to staff in assigning and scheduling work. • Train lower-level staff and volunteers in program activities and ensure compliance with safety procedures.
• Review work area and ensure it is safe and appropriate for all employees and participants.
• Coordinate program marketing efforts through news releases, posters, flyers, web pages, mailing lists and other methods.
499
ATTACHMENT D
City of American Canyon, Parks & Recreation Department
Classification Review
• Monitor supplies and equipment for assigned programs; maintain adequate supply inventory; ensure equipment is operational and safe; advise supervisor of needed repairs or replacement.
• Prepare clear and comprehensive written reports as requested. • Respond to citizen concerns and requests.
• Attend department meetings as requested.
• Answer the telephone and assist and register customers as needed. • Perform related duties as assigned.
EMPLOYMENT STANDARDS
Knowledge of:
• Methods and techniques of planning, organizing, and implementing assigned recreation programs.
• Techniques of effective customer service.
• Record keeping practices.
• Practices and principles of first aid and CPR lifesaving. • Knowledge of child development processes and principles. • Computer programs and related software.
• Practices of training and providing technical and functional direction to staff.
Ability to:
• Lead a variety of recreation program activities.
• Communicate clearly and concisely, both orally and in writing. • Establish and maintain effective working relationships with those contacted in the course of work.
• Evaluate success and make improvements that increase customer satisfaction by completing and implementing participant surveys, hosting debriefing sessions with staff, and developing reports.
• Lead, organize, and review the work of staff and volunteers. • Lead and instruct individuals and groups in assigned programs. • Elicit community and organizational support for programs overseen. • Respond to requests and inquiries from the general public. • Interpret and enforce policies and procedures.
• Maintain files and monitor and track fees and payments. • Work with diverse populations and maintain an inclusive environment.
Minimum Qualifications:
Any combination of Experience and Education that results in the successful applicant obtaining the requisite knowledge, skills and ability to perform the required job duties.
Typical examples include:
500
ATTACHMENT D
City of American Canyon, Parks & Recreation Department
Classification Review
Education:
High school diploma or equivalent.
-ANDExperience:
One (1) years of full-time experience in the field of recreation, leisure services, or a closely related field, preferably with experience in recreation program development and implementation.
Certificate Requirement:
• For assignment in all program areas, American Red Cross First Aid, CPR/AED must be obtained within the first three (3) months of employment and maintain throughout employment.
• For assignment in aquatics-related program areas, incumbents must possess the following certifications at the time of appointment and maintain throughout employment:
o American Red Cross Basic First Aid, CPR/AED for the Professional Rescuer o American Red Cross Lifeguard Training
o American Red Cross Lifeguard Instructor
o American Red Cross Water Safety Instructor
License Requirement:
Possession of a valid California Class C Driver License is required at the time of appointment.
Individuals who do not meet this requirement due to physical disability will be reviewed on a case-by-case basis.
Physical Requirements:
Work is performed in a typical outdoor environment on a year-round basis. (1) Mobility:
frequent performance of heavy manual labor; frequent standing for long periods of time; frequent bending and squatting. (2) Lifting: frequent lifting up to 50 pounds; occasional lifting up to 75 pounds. (3) Vision: constant use of overall vision. (4) Dexterity: frequent grasping, holding, and reaching. (5) Hearing/Talking: frequent hearing and talking in person. (6) Emotional/Psychological: frequent coworker contact; occasional working alone. (7) Environmental: frequent exposure to loud noise; frequent exposure to chemicals, fumes, and other environmental substances.
Other Requirements:
Some positions may require evening, weekend, or other shift work. 501
ATTACHMENT D
City of American Canyon, Parks & Recreation Department
Classification Review
Classification Adopted Revised Retitled Class
Code
FLSA
Designation
Rep Unit
Program
Coordinator
1992 5/2006 5603 Non-Exempt 5
Program
Coordinator
7/2015 5603 Non-Exempt 5
Recreation
Specialist
3/2024 3/2024 5603 Non-Exempt 5
APPROVED: Date:
Administrative Services Director
502
CITY COUNCIL AGENDA
APRIL 16, 2024
STAFF REPORT
BUSINESS
ITEM NUMBER: 15.
TITLE
Law Enforcement Services Contract Amendment
RECOMMENDATION
Adopt a Resolu*on approving Amendment 20 to the Agreement No. 200005B (previously known as Agreement No. 3220) with the Napa County Sheriff's Office for Law Enforcement Services for the period of July 1, 2024, through June 30, 2027.
CONTACT
Rick Greenberg, Police Chief
BACKGROUND & ANALYSIS
The Napa County Sheriff’s Office has been providing law enforcement services to American Canyon since Incorpora*on (1992). American Canyon Police Department (ACPD) con*nues to provide a high level of service to the community. The current Agreement (Amendment 19) expires on June 30, 2024.
The division of responsibility in this partnership is generally as follows: American Canyon provides facili*es, vehicles, and non-sworn staff (such as Police Technicians) while the Sheriff’s Office provides sworn personnel, equipment, training, and law enforcement policy.
Currently, ACPD consists of 26 sworn officers, including 1 Chief, 1 Lieutenant, 5 Sergeants, and 19 officers. But as American Canyon grows, additional law enforcement staffing is needed.
Of the current 19 officers, one (1) officer is assigned as the full-*me community resource officer (CRO), two (2) are assigned as full-*me traffic enforcement and vehicle collision inves*gators, and two (2) are assigned as School Resource Officers (SRO’s) at the high school and middle school respectively.
Amendment 20 proposes to add: (1) community outreach officer (CRO) posi*on in July 2025, (1) traffic enforcement officer in July of 2025, and (2) addi*onal patrol officers in January 2026 and January 2027. Thus, the total sworn staffing would be 30 worn officers by January 2027.
Payment for the contract is a on a "fixed-fee" basis. A further breakout of the amounts is provided in 503
Attachment 3, Exhibit A.
Additional Staffing
In July 2025, (1) addi*onal community outreach officer will augment the exis*ng CRO's high level of community-oriented policing, community outreach, and par*cipate in special events. In addi*on, one (1) addi*onal traffic enforcement officer will join the two (20 exis*ng motor officers in providing high level of traffic enforcement and traffic collision inves*ga*on. Having more visible traffic enforcement officers should reduce bad driving behavior and traffic collisions.
In January 2026 and then again in January 2027, (1) addi*onal patrol officer will be added. The addi*onal patrol officers will support the inevitable increase in calls for service as American Canyon's popula*ons grows. Adding the addi*onal officers as proposed, will keep our response *me down, increase visible police presence helping to deter crime, and to con*nue ACPD's excep*onal crime clearance rates.
Staff recommends the Council approve Amendment 20.
Alternative
Council could choose to defer the addi*on of any or all of the recommended posi*ons, although Council has already approved supervisory posi*ons of Lieutenant and Sergeant, in prepara*on to add future addi*onal officers. Staff recommends sizing the ACPD based on popula*on growth (1.1 officer per 1000), increased traffic, and con*nue the high level of service, including above average crime clearance rates. If it is decided not to add the addi*onal staffing proposed over the next three years, the cost of addi*onal officers all at once aEer the conclusion of Amendment 20 could be a great burden to American Canyon.
COUNCIL PRIORITY PROGRAMS AND PROJECTS
Public Safety: "Ensure American Canyon remains a safe community."
FISCAL IMPACT
The cost for Amendment 19 ($8,473,148) is included in FY 23/24 Budget.
Under the terms of Amendment 20, the Sheriff’s Office will provide one addi*onal CRO posi*on to the City of American Canyon (FY25/26), one addi*onal traffic enforcement officer (FY25/26), and two additional patrol officers (one mid-year FY25/26 and one mid-year 26/27).
The amounts listed below include all direct and indirect costs es*mated by the County for provision of law enforcement services. The costs for Fiscal Years 2024/2025 reflect no staffing changes, but do reflect increased direct costs (salary and benefits) and indirect costs (such as insurance, etc.). The costs for Fiscal Year 2025/2026 reflect the cost of one (1) addi*onal CRO and one (1) addi*on traffic enforcement officer star*ng July 2025 and an addi*onal patrol officer in January 2026. The costs for Fiscal Year 2026/2027 reflect the additional patrol officer starting January 2027. 504
Total contract amendment costs; FY 2024/2025 $9,393,388; FY 2025/2026 $10,325,887; FY 2026/2027 $11,118,254.
These amounts will be included in forthcoming budgets.
ENVIRONMENTAL REVIEW
None.
ATTACHMENTS:
Resolution Law Enforcement Services Amendment 20
Law Enforcement Services Contract Amendment 20
Law Enforcement Services Contract - Exhibit A-20.
505
RESOLUTION NO. 2024-
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF AMERICAN CANYON APPROVING AMENDMENT 20 TO NAPA COUNTY AGREEMENT NO. 200005B (previously known as Agreement No. 3220) WITH THE NAPA COUNTY SHERIFF’S OFFICE FOR LAW ENFORCEMENT SERVICES FOR THE PERIOD July 1, 2024, THROUGH JUNE 30, 2027.
WHEREAS, the City of American Canyon and the County of Napa have previously entered into Agreement No. 3220 (now known as Agreement No. 200005B) for Law Enforcement Services within the City’s municipal boundaries; and
WHEREAS, on April 16, 2019, the City of American Canyon adopted Resolution 2019-31 approving Amendment 16 to the Napa County Agreement 3220 (now known as Agreement No. 200005B) with the Napa County Sheriff’s Office for Law Enforcement Services for period July 1, 2019, through June 30, 2024; and
WHEREAS, the City of American Canyon and Napa County Sheriff Office have evaluated the staffing at the American Police Department and recommend (1) community resource officer, (1) traffic enforcement officer, and (2) patrol officers be added; and
WHEREAS, Amendment 20 includes additional staffing as follows; (1) community resource officer, (1) traffic enforcement officer, and (2) patrol officers, and the City of American Canyon agrees to reimburse the Napa County Sheriff’s Office for the performance of law enforcement services under this agreement; and
NOW THEREFORE BE IT RESOLVED that the City Council of the City of American Canyon hereby approves Amendment 20 To Napa County Agreement No. 200005B (previously known as Agreement No. 3220) with the Napa County Sheriff’s Office for Law Enforcement Services for the Period July 1, 2024, Through June 30, 2027.
PASSED, APPROVED AND ADOPTED at a regular meeting of the City Council of the City of American Canyon on the 16th day of April, 2024, by the following vote:
AYES:
NOES:
ABSTAIN:
ABSENT:
______________________________
Leon Garcia, Mayor
ATTEST: APPROVED AS TO FORM
_______________________________ _______________________________ Taresa Geilfuss, CMC, City Clerk William D. Ross, City Attorney 506
1 H: cc\d\sheriff\contracts\city police services\am can\ Am Can Amend 20 FY 24-25.doc Napa County Agreement No. __200005B
American Canyon Agreement No. _2013-72______
AMENDMENT NO. 20
TO AGREEMENT FOR LAW ENFORCEMENT SERVICES
BETWEEN NAPA COUNTY AND
THE CITY OF AMERICAN CANYON
THIS AMENDMENT NO. 20 to Napa County Agreement No. 200005B (previously known as Agreement No. 3220) for law enforcement services (“Amendment”) is made and entered into as of the 1
st day of July 2024, by and between Napa County (“County”), a political subdivision of the State of California, and the City of American Canyon (“City”), a municipal corporation.
RECITALS
WHEREAS, the parties previously entered into an Agreement for Law Enforcement Services, initially dated July 9, 1996 and amended from time to time thereafter until a new agreement was reached between the parties in July 2006 (the “Agreement”), pursuant to which the City contracted with County for the provision of certain law enforcement services within the City's municipal boundaries; and
WHEREAS, the Agreement has been amended from time to time to provide a service plan and cost estimates for future fiscal years; and
WHEREAS, the parties desire to amend the contract to add various positions in order to accommodate the needs of the City’s growing population and calls for service; and WHEREAS, the County is willing to provide these additional positions and services; and WHEREAS, the City is willing to pay for such additional positions and services; and WHEREAS, these additional positions are set forth in the Service Plan (Exhibit “A-20”), attached to this Agreement; and
WHEREAS, Section 43 of the Agreement provides that all changes to the Agreement must be by written amendment authorized by the City's City Council and the County's Board of Supervisors.
AGREEMENT
NOW, THEREFORE, in consideration of the foregoing, the mutual agreements of the parties and other valuable consideration, the sufficiency of which is hereby acknowledged, the parties hereby agree as follows:
507
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1. Section 14, entitled “Compensation for Services” is hereby amended to read in full as follows:
“During the term of this Agreement (from July 1, 2019 to June 30, 2022 and Option Year One July 1, 2022 to June 30, 2023, Option Year Two July 1, 2023 to June 30, 2024), the total cost for provision of the services set forth in this Agreement shall be as follows: For Fiscal Year 2019- 2020: Six Million Seven Hundred Fifty-One Thousand One Hundred Sixty-Five Dollars ($6,751,165.00); for Fiscal Year 2020-2021: Six Million Nine Hundred Fifty-Three Thousand Seven Hundred One Dollar ($6,953,701.00); for Fiscal Year 2021-2022: Seven Million Two Hundred Twenty-Seven Thousand One Hundred Fifty-One Dollars ($7,227,151). Option Year One, Fiscal Year 2022-2023: Seven Million Six Hundred Eighty-One Thousand Six Hundred Thirty-Five Dollars ($7,681,635); Option Year Two, Fiscal Year 2023-2024: Eight Million Four Hundred Seventy-Three Thousand One Hundred Forty-Eight Dollars ($8,473,148); for Fiscal Year 2024-2025: Nine Million Three Hundred Ninety Three Thousand Three Hundred Eighty Eight Dollars ($9,393,388) with no addition of new personnel; for Fiscal Year 2025-2026: Nine Million Seven Hundred Fifty Nine Thousand Eight Hundred One Dollars ($9,759,801) if personnel is not added and Ten Million Three Hundred Twenty Five Thousand Eight Hundred Eighty Seven Dollars ($10,325,887) if additional personnel as set forth in Exhibit “A-20” is added; for Fiscal Year 2026-2027: Ten Million Two Hundred Ninety Eight Thousand Ten Dollars ($10,298,010) if personnel is not added and Eleven Million One Hundred Eighteen Thousand Two Hundred Fifty Four Dollars ($11,118,254) if additional personnel as set forth in Exhibit “A20” is added. “A further breakout of the amounts is provided in the Service Plan, attached hereto as Exhibit “A20,” and incorporated here by reference. This Service Plan sets forth the costs associated with the provision of services contemplated by this Agreement for Fiscal Year 2024-2025 through Fiscal Year 2026-2027. The Service Plan includes the addition of four personnel (Deputy Sheriffs— motorcycle officer, community resource officer, patrol officers) and associated costs. At least ninety (90) days before the beginning of each fiscal year, the City shall notify the County in writing as to whether the additional deputy positions set forth in the Service Plan will be needed for the upcoming fiscal year. City hereby authorizes, and the County hereby acknowledges, that such notification may by provided by the City Manager. If so notified, the County agrees to provide the requested services so long as the County is able to staff the requested position(s). The parties recognize that there may be delays in the County’s ability to supply the requested positions, depending to the County’s own staffing needs. “The amounts set forth above include all allowable direct and indirect costs estimated to be incurred by County for provision of services set forth in the Service Plan. Specifically, the estimated costs include, but are not necessarily limited to: non-recurring personnel start-up costs (associated with hiring/training personnel to replace Sheriff's Department employees to be allocated to City for performance of services hereunder); estimated salaries for employee classifications expected to be performing services; all employee benefits to be paid by County at rates established by the County Board of Supervisors; the estimated costs of providing relief for all allowable absences (including, but not limited to, vacation, compensatory time off, sick leave, disability leave, bereavement leave, military leave, and jury duty); estimated supplies and services necessary for performance of work hereunder (including, but not limited to, items such as equipment 508
3 H: cc\d\sheriff\contracts\city police services\am can\ Am Can Amend 20 FY 24-25.doc and training); and indirect expenses (i.e., internal overhead associated with functions such as Administration, Records, Dispatch, and Crime Analysis). “Employees performing services under this Agreement will be entitled to all benefits, including paid holidays and other paid leave (such as vacation, compensatory time off, sick leave, disability leave, bereavement leave, military leave, and jury duty) as allowed by County for all employees and/or as allowed by bargaining agreements governing the employee classifications performing services hereunder. All costs associated with such benefits are allowable under this Agreement.
During the term of this Agreement, City shall be invoiced monthly and agrees to reimburse County for the performance of law enforcement services under this Agreement. The costs for such services shall be fixed at the amounts set forth in the first paragraph of this Section. Notwithstanding the foregoing, if County continues to provide law enforcement services to City after expiration of the term of the Agreement, City shall reimburse County for actual costs incurred by County for performance of law enforcement services provided thereafter, until such time as the parties reach further agreement to extend or renew the Agreement.”
3. Exhibit “A-20,” attached hereto and incorporated herein by reference, is hereby made part of the Agreement. As of the effective date of this Amendment, all references to Exhibit “A” in the Agreement shall mean Exhibit “A-20,” the Service Plan that sets forth the levels of service to be provided during the term set forth in this Amendment.
5. Except as expressly set forth herein, the Agreement shall remain unchanged and in full force and effect. This Amendment may be executed in counterparts with the same force and effect as if each of the signatories had executed the same instrument.
IN WITNESS WHEREOF, the parties hereto have executed this Amendment No. 20 as of the date first above written.
NAPA COUNTY, a political
subdivision of the State of California
By
JOELLE GALLAGHER, Chair of the
Board of Supervisors
"COUNTY"
APPROVED AS TO FORM
Office of County Counsel
By: S. Darbinian
APPROVED BY THE NAPA COUNTY
BOARD OF SUPERVISORS
Date:
Processed By:
ATTEST: NEHA HOSKINS
Clerk of the Board of Supervisors
By:
509
4 H: cc\d\sheriff\contracts\city police services\am can\ Am Can Amend 20 FY 24-25.doc Date:
Deputy Clerk of the Board
CITY OF AMERICAN CANYON
By_______________________________________
JASON HOLLEY, City Manager
ATTEST: CHERRI WALTON
American Canyon Deputy City Clerk
By:
APPROVED AS TO FORM:
WILLIAM D. ROSS, City Attorney
By:
510
FY 24/25 FY 25/26 FY 26/27
PERSONNEL (DSA COLA) 3.00% 3.00% 4.50%
PERSONNEL (SEIU COLA) 4.50% 3.50% 3.00%
CHIEF (1) $ 357,830 $ 368,565 $ 385,151
LIEUTENANT (1) $ 290,507 $ 299,223 $ 312,688
SERGEANT (5) $ 1,337,971 $ 1,378,110 $ 1,440,125
DEPUTY SHERIFF II (8) $ 1,719,021 $ 1,770,591 $ 1,850,268 SENIOR DEPUTY SHERIFF II (11) $ 2,602,639 $ 2,680,718 $ 2,801,351 RECORDS TECH III (1) $ 121,389 $ 125,637 $ 129,407
WORKER'S COMP $ 223,680 $ 228,154 $ 232,717
GENERAL LIABILITY $ 165,057 $ 249,237 $ 376,347
$ 6,818,095 $ 7,100,235 $ 7,528,052
ADDITONAL PERSONNEL
DEPUTY II (1 MOTO OFCR JULY 2025) $ - $ 213,193 $ 222,787 DEPUTY II (1 POP OFCR JULY 2025) $ - $ 206,135 $ 215,411 DEPUTY II (YEAR 2 ADD JAN 2026) $ - $ 103,068 $ 215,411 DEPUTY II (YEAR 3 ADD JAN 2027) $ - $ - $ 107,706
WORKER'S COMP $ - $ 25,350 $ 34,477
GENERAL LIABILITY $ - $ 18,340 $ 24,453
$ - $ 566,086 $ 820,244
ESTIMATED HOLIDAY PAY $ 43,104 $ 44,398 $ 46,395
OVERTIME/COURT APPEARANCES $ 629,518 $ 648,404 $ 677,582
INVESTIGATIONS/NSIB
INVEST, LAB, PROP/EVIDENCE $ 245,821 $ 254,008 $ 262,917 BWC REDACTION (FOCAL) $ 3,280 $ 3,378 $ 3,480
VIDEO REQUESTS (DA & OTHER) $ 5,221 $ 5,404 $ 5,566
$ 254,322 $ 262,790 $ 271,963
FLEET EQUIPMENT (RADIOS/
REPEATERS/ MDC/CAMERAS) $ 84,191 $ 86,191 $ 88,266
DISPATCH (AC 33% CFS) $ 806,888 $ 831,095 $ 856,028
K9 $ 37,370 $ 38,491 $ 39,646
ADMINISTRATIVE SERVICES (DEPT
OVERHEAD 8.6%) $ 745,920 $ 774,998 $ 817,682
PARKING REVENUE $ (26,021) $ (26,801) $ (27,605)
TOTAL ANNUAL COST W/OUT
ADDITIONAL PERSONNEL $ 9,393,388 $ 9,759,801 $ 10,298,010
TOTAL ANNUAL COST W/ ADDITIONAL
PERSONNEL $ 9,393,388 $ 10,325,887 $ 11,118,254
511
Future Agenda Items of Note:
May 7, 2024; 6:30 p.m.
Presentation - Municipal Clerk Week
Proclamation - Older Americans Month
Proclamation – National Building Safety Month
Presentation - Historic Preservation Month
Proclamation - Mental Health Matters Month
Proclamation - AAPI Heritage Month
Presentation - CalGreen Building Code
LLAD FY 24/25 Engineer's Report
Traffic Calming Program Update
2024 Water Supply Update
May 21, 2024: 6:30 p.m.
Proclamation - Memorial Day
Proclamation - Public Works Week
Proclamation - Bike Month
Presentation – Vine Trail Update
Presentation – ACPD Police Cadet
LLAD Fiscal Year 24/25 Budget
Proposed Fiscal Year 24/25 Explorer
Kids Commerce Fee Waiver
June 4, 2024; 6:30 p.m.
Proclamation - Juneteenth
Proclamation – LGBTQ/Pride Month
Presentation – Annual Housing Authority Report
November Election Consolidation
Final Fiscal Year 2024/25 Budget
GIR Project: Authority to Issue Bonds, etc.
June 18, 2024; 7:30 p.m.
Special Joint City Council Meeting with Open Space, Active Transportation and Sustainability Commission
June 18, 2024; 8:30 p.m.
Special Joint City Council Meeting with Parks and Community Services Commission 512