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HomeMy WebLinkAbout2001 Summary of Findings of the Human Resources SubcommitteeSummary of Findings Submitted to: THE SUBCOMMITTEE OF THE ITHACA COMMON COUNCIL HUMAN RESOURCES COMMITTEE JUNE 2001 Submitted by: 'David J. Perkins JUNE, 28, 2001 Table of Contents Preface Introduction 1 2 Summary of Findings 3 Section 1 - Main Findings What Works Well General Reflections on City Operations Daily Frustrations and Restrictions to Optimum Performance Resources, Tool, Knowledge Communication Processes Skirting Procedure Informal Operations and Politics The Democratic Process Administrative Management and Leadership Roles and Responsibilities Missions and Vision Participant Suggestions for Reform 5 5 7 9 11 13 15 17 19 21 23 26 28 29 Section 2 - Conclusions 31 Section 3 - Recommendations 35 Preface During February 2001, I offered my services to the Subcommittee of the Ithaca Common Council Human Resource Committee in response to their request for an impartial interviewer. The discussions I held with the twenty-three study participants turned out to be as enjoyable as they were informative. I certainly hope the summation of those meetings as presented in this report does justice to their insights and suggestions. As with most projects of this sort, one wishes that time permitted a more thorough examination of the information gathered. Seeing that this summary is but the interpretation of one person, I implore all committee members to read the entire interview transcript and supplement or extract from this document as they see fit. At the very least, it is hoped that this summary provides the impetus for informed dialogue between committee members. Many thanks to committee Chair Edward Hershey and committee member John Gutenberger for spearheading the interview process. Thanks to all other committee members for their valuable input. Special thanks to Ithaca City Clerk Julie Conley Holcomb and Susan Stickel for their generous assistance in reserving the 3`d Floor Conference. Room in Ithaca City Hall where most of the interviews took place. - David J. Perkins Masters of Public Administration Degree Candidate Cornell Institute for Public Affairs HR Subcommittee Interviews - Summary of Findings -1 Introduction This report of findings is based on 23 interviews conducted by David Perkins between April 25 and May 24, 2001 on behalf of the Subcommittee of the Ithaca Common Council Human Resources Committee. Interviewees included 12 Ithaca city government employees in Department Head or Deputy positions. In addition, 11 other individuals representing board and committee members, ex -city officials, local non-profit managers, and county and school district employees, were also interviewed for this study. All interviews were conducted one-on-one and tape-recorded in order to produce a full text transcription of all responses for committee review and analysis. Findings presented in Section 1 represents a summary of the perceptions and opinions of the 23 study participants. Care, has been taken to refrain from definitive statements or conclusions about the way things are. With the data being a collection of perceptions, it reflects reality as it appears to be to this particular group. In so much as the group interviewed is representative of all senior staff and other government personnel in general, their responses may very well represent an accurate picture of reality. However, as with any purely exploratory study, the value lies not in conclusions, but the insight gained via the perceptions of others. In this particular case, the wealth of information gathered should lay the foundation for an informed debate and possibly a more narrowly focused study in the future. Conclusions presented in Section 2 and the recommendations in Section 3 are solely those of David Perkins, as requested by the subcommittee. All conclusions are inferences drawn exclusively from the comments of study participants and recommendations are a purely personal assessment. It is hoped that all subcommittee members read the entire transcript of interviews and draw their own conclusions for comparison with other members. This will supplement other activities carried out by the committee in preparation for its report to the mayor and Council. HR Subcommittee Interviews - Summary of Findings - 2 r -i Summary of Findings The following is a brief summation in bullet form of the main themesdrawn from the interviews conducted for this study. Detailed explanations can be found in Section 1. Conclusions are presented in Section 2 with recommendations in Section 3. -- Primary question to be answered in study • Perceptions of poor coordination within Ithaca city government exist among city employees and board/committee members and many feel these perceptions are warranted. Examples of breakdowns of coordination include: New city policies or projects designed or implemented before all necessary city departments and stakeholders are informed • City projects and programs being interrupted by administrative errors • Citizens and city employees being forced to contact multiple departments in order to be served • Missed legal deadlines causing delays in processes • Unclear or incorrect ordinances filed in the City Code • City projects and services implemented without adequate, or timely public input Commonly mentioned causes of breakdowns in coordination: • A general lack of resources, most notably insufficient staff • Overburdened city employees • Poor communication between departments and government personnel • Limited project management between departments • Interference in administrative activity by elected officials and citizens • Insufficient administrative leadership • Complex processes and procedures with limited documentation • Insufficient orientation and training of city government personnel Other causes mentioned: • Lack of unified mission and vision • Limited knowledge of city governance and public administration fundamentals • Too much, and too little, adherence to proper procedure • Ineffective use of citizen boards and committees • Problems inherent in bureaucratic systems within democratic societies HR Subcommittee Interviews - Summary of Findings - 3 Other findings: • Fairly strong adherence to proper procedure by government personnel • Little indication of a "political machine" underlying city operations • Relatively balanced power structure compared to past years • Strong consensus that the citizen voice is heard • Concerns regarding current methods of soliciting citizen input • Roles do not appear to be well defined within government structure Participant Recommendations for Reform: • Focus on internal improvement initiatives already in place • Moderate support for creation of City Administrator position • Limited support for switch to Council/Manager form of city government • Many suggestions to re-examine City Charter • Better management of citizen input Other Reform Recommendations Mentioned: • Term limits for City Department Heads • Increasing pay while maintaining workforce • Outsourcing many city service positions • Streamlining board and committee processes • Merging certain city departments • Ensuring quality control for city ordinances Structural Strengths: • General optimistic view of city government by study participants • Frequent praise for skill and dedication of government personnel • Many organizational improvement initiatives currently being implemented • Well-educated and experienced citizens throughout the community HR Subcommittee Interviews - Summary of Findings - 4 Section 1- Main Findings The following summarizes the information gathered during the 23 interviews. It should be noted that the following subsections do not directly follow the sections found within the full text transcript of the interviews. It should also be pointed out that there is some overlap between the various categories of fmdings resulting in some repeated references. What Works Well While the main focus of this study was to identify possible hindrances to intergovernmental coordination, it is important to note that many positive comments were made by study participants throughout the interview process. These references to what works well within Ithaca city government can be interpreted as strengths that establish a foundation on which,organi7ational improvements can be developed and implemented. • Generally, participants hold an optimistic view of Ithaca city government and possess a desire to make improvements. • Frequent praise for skill and dedication of city employees, board/committee members and elected officials. • Many favorable references to recent internal improvement initiatives spearheaded by Human Resources Department and internal city employee committees. The twenty-three study participants often expressed a sense of optimism towards Ithaca city government and most gave the impression that, despite a shrinking resource base and some troublesome procedural hindrances, the system is functioning suitably well. There was little expression of despair or animosity that is often found in organizations that are severely fragmented. Many participants mentioned feeling a sense of satisfaction at the quality and amount of administrative work that is accomplished on a daily basis. Others pointed out that the city's physical infrastructure, including streets, bridges and open spaces, is HR Subcommittee Interviews - Summary of Findings - 5 consistently solid. There were also a number of positive references made regarding recent city projects involving The Commons, city parks and other public areas. Most striking were the many comments made in praise of Ithaca city employees at all levels. City workers were repeatedly referred to as being highly skilled and extremely capable in their positions, dedicated to their jobs, and loyal to the citizens they serve. In addition, appointed board/committee members and elected officials were generally seen as performing extraordinarily well on their own initiative. Many participants point out that these individuals are holding essentially volunteer positions that demand an extremely high number of hours in order to deal with complex matters that have considerable long-term impact on the city and its citizens. Comparisons made by participants who have worked in local government positions in other cities and towns often caused Ithaca to appear relatively sound with regards to its public administrative system. Yet, during the study interview process both city employees and board/committee members often criticized or expressed concern about various parts of the city government structure that they perceive as being in need of immediate improvement. This trend supports the observation made by a few participants who noted that citizens and city employees often tend to be the harshest critics of Ithaca and its government. Indeed, while the city government was generally referred to in a positive light during the interviews, there was a clear desire on behalf of most study participants to improve overall service to the public at large. Many participants appeared encouraged by recent internal improvement initiatives spearheaded by the Human Resources Department and by internal employee quality circles. A number of positive comments were made in reference to the Workforce Task Force study 'that occurred during 2000 and there are indications that initial progress is being made in a number of areas including communications, employee orientation programs, process documentation, and record-keeping technology. There appear to be sincere intentions on behalf of many individuals within the city government to commit to these efforts for the - long-term in order to generate tangible positive change within the organizational system. HR Subcommittee Interviews - Summary of Findings - 6 General Reflections on City Operations Most participants in the study were asked to think of Ithaca city government as an organization before providing their candid opinion about how well that organization is functioning on the whole. In addition to presenting a broad perspective, many respondents also provided specific examples to support their views. • A large majority of study participants do not feel that the Ithaca city government is functioning as smoothly as it could. • Commonly mentioned inhibitors to optimum performance include: a lack of resources, ineffective communication, poor coordination, and interference in administration by elected officials. An overwhelming majority of study participants feel that the Ithaca city government is not functioning as smoothly as it could or should. However, it is notable that many of 'those respondents followed up that sort of initial comment with qualifying statements such as, "I believe it could always operate better." A number of others mentioned that, in light of the inherent problems associated with bureaucratic organizations within a democratic society, Ithaca's city government is not performing inordinately poorly. With the goal of this study being to gauge the validity of any negative perceptions regarding city government operations, participants were asked to provide reasons for their own misgivings. To that end, participants provided consistent and strong acknowledgement that currently there are systemic inhibitors within the organizational system that cause the city government to fall short of what they would perceive as being optimum performance. Initial attempts to solicit the underlying causes of these inhibitors resulted in the identification of a number of general themes that serve to verify that perceptions of a lack of coordination within the city government do exist and are warranted. First and foremost, limited resources is one of the most commonly stated causes behind breakdowns in coordination within the city government system. Study participants were in nearly unanimous opinion that most departments do not possess a sufficiently sized staff in order to perform its daily functions as easily, or expediently, as would be preferred. Staffs kept to a minimum size are thought to result in overworked city employees who are HR Subcommittee Interviews - Summary of Findings - 7 pressured to perform their duties under strict time limits while simultaneously answering to the demands of citizens and elected officials. Complex government processes, thought by some to be more complex than necessary, are also singled out as inhibitors to a smoothly operating organization. While there appears to be an understanding that public procedures must adhere to strict legal regulations, there is a strong desire on behalf of a number of participants that the processes used to guide ongoing administrative activity be reviewed for potential streamlining. A large number of participants also alluded that not everyone involved within the city government possesses a firm understanding of the specific procedures that guide their work. Similarly, some feel that there may only be a limited understanding of the overall city government structure, including the roles and responsibilities of the various city departments and officials. Many participants offered examples of when city employees, board/committee members, or elected officials acted in accordance to their own interpretation of the system, only to find that it was not aligned with the official processes as outlined within the City Charter or other codebooks. These instances are thought to fuel perceptions that those involved in the city government are not unified or aligned towards a common goal. Many participant comments focused on the broad issue of communication, with numerous examples being cited that give the impression that breakdowns in communication frequently occur between the many various players within the city government system. In general,poor communication is often singled out as the culprit behind delays in city projects, poor customer service, and a general frustration on behalf of citizens and many • individuals associated with the city government. It will be important to determine if this is a systemic problem or merely a symptom of other structural defects. Lastly, a number of respondents alluded to a blurring of administrative and political responsibilities within the city government. Many of the study participants feel that there is often an inordinate amount of direct influence in administrative matters by elected officials which many feel leads to delays and frustrations.. Some city employees feel that they are sometimes asked to administer policies that conflict with departmental capabilities or goals. Again, questions of whether there is a common understanding of the City Charter, or whether the City Charter is in need of revision, were raised by a number of participants. HR Subcommittee Interviews - Summary of Findings - 8 Daily Frustrations and Restrictions to Optimum Performance In an effort to identify specific causes of the perceived lapses in coordination within the city government system, study participants were asked if they ever felt restricted from carrying out their duties as senior staff or board/committee members. Many were asked to identify any constant daily frustrations held by either themselves or by other individuals associated with the city government. • Most participants report not feeling restricted from performing their duties, but many feel that they are prevented from working at their best. • Generally, most participants appear to posses a larger sense of satisfaction than frustration about how they are able to serve the needs of Ithaca citizens. Common frustrations include the lack of star, heavy workloads, complex procedures, interference from elected officials and the public. Responses to these questions suggest that most study participants do not feel severely restricted from fulfilling their role. However, many offer examples of instances when they felt they were not able to provide optimum service to citizens or other city government personnel. In most of those cases, restrictions appeared to result from breakdowns in communication or collaboration, or from complexities of government processes. These complaints were often linked with comments about heavy workloads and inadequate staf which appear to continuously acerbate other limitations. Examples of restrictions resulting from poor communication or collaboration included instances where responses to requests made of fellow city employees were delayed, resulting in a severe disruption in service. Many participants also complained about "not being pulled into the loop" regarding certain decisions that directly impacted their position or department. Others admitted to being frustrated when decisions that affected them were made by others with little or no explanation of the criteria that was used to arrive at those decisions. Only a few examples of complex procedures were provided, yet a common theme throughout the interviews was an acknowledgement by study participants that government processes are inherently complex in order to maintain accountability and transparency to HR Subcommittee Interviews - Summary of Findings - 9 the public. A few participants noted that this is a critical responsibility of any government institution, though many feel that there are often too few people on hand to properly carry out the necessary procedural steps to a timely conclusion. A unique characteristic of Ithaca's government processes appears to be what is often referred to as "government by committee." Participant comments indicate a heavy dependence on, and sometimes a perceived misuse of, citizen boards and committees. Some study participants admitted to feeling as though too many decisions are passed by lay -person groups for sign -off before action can be taken by city employees who are thought by many to possess the expertise to make such decisions. Interestingly, others relate instances where boards or committees appeared to be bypassed in order to expedite a process. This claim is supported by a number of board/committee members who feel that their volunteered time and effort sometimes goes for naught when their advice is ignored. Taken as a whole, these varying and uneven perceptions of the role of boards and committees appears to result in considerable frustration on behalf of all involved and may further fuel perceptions of a fractured government system. Lastly, restrictions to performance that can be directly attributed to individuals often took the form of either political influence of elected officials or poorly managed public input, both of which are thought to often interfere with daily administrative activity. The former relates to an apparent blurring of administrative versus political responsibility, whereby city employees find themselves responding to administrative demands made by elected officials that sometimes conflict with what departments are equipped to perform. Often it is felt that these demands stem from requests made by constituents, who place calls to their ward alderperson in hopes of altering the course of a project or specific activity. City employees repeatedly mention that, while vital to the democratic process, public input can often become a major hindrance to administrative activity. Many point to an inadequate public forum system that fails to solicit timely input from citizens prior to projects being set in motion. HR Subcommittee Interviews - Summary of Findings -10 Resources, Tools, Knowledge Since adequate resources are vital for any organization, many questions were associated with this subject. The focus was kept broad to allow for different interpretations of the word "resources." In addition, specific questions were asked concerning procedural and organizational knowledge in an attempt to determine if city government personnel are adequately prepared for the role that they assume within the system. • Inadequate staff is thought to exist in many departments and some participants cite that board/committee vacancies are often left unfilled. • Limited staff is thought to lead to administrative mistakes, poor customer service and collapse of internal improvement initiatives. • In general, appropriation of resources appears to be fairly well balanced, though limited, across all departments. • Government personnel are seen as being very capable, but some appear to be lacking knowledge about certain procedures or fundamentals of city governance. • There is general agreement that a lack of orientation and documentation limits the effectiveness of new city employees, elected officials, and board/committee members. One of the strongest themes coming forth from the interviews was the declaration by study participants that the Ithaca city government is hindered by a lack of star Many believe that a large amount of the perceived breakdown in coordination within the city government, especially those which stem from administrative mistakes and reports of slow response, can often be traced to heavy workloads being placed on too few people. It should be noted that while most city departments are thought to be considerably understaffed, there were very few indications that certain departments receive an inordinate amount of funding for staff while others were left wanting. Resource appropriations are generally thought of as being even across all departments, albeit too low for optimum performance. Of special concern is the fact that a number of respondents pointed out that the mayor often logs a substantial number of hours a week, far beyond what is intended for that HR Subcommittee Interviews - Summary of Findings -11 part-time position. While the current mayor is seen by many to willingly take on this workload, others see it as evidence that the scale and complexity of administrative and political responsibilities for the city of Ithaca may have outgrown the mayoral position as it is now defined. Certain citizen boards and committees were also reported as having a high number of vacancies that have gone unfilled for a considerable length of time, often resulting in a lack of a quorum during meetings. These vacancies were attributed to many causes including appointment restrictions, political maneuvering to leave some committees short, and insufficient time available to the mayor for appointing new members. The resource of organizational and administrative knowledge was also investigated during the course of the study, resulting in many conflicting comments. While employees were generally praised for their dedication and skill, a great number of participants related stories of when a lack of knowledge regarding proper procedure caused mistakes, communication breakdowns, or resulted in misinformation being given to the public. These respondents feel that in many cases when procedural steps have been ignored, deadlines missed, or communiques not sent, itis due to employees not being aware of the correct procedure rather than a conscious attempt to bypass proper channels. Again, limited resources are often blamed for deficient levels of knowledge, as participants are quick to point out that often there is little time to learn the specific details of extremely complex and strict governmental processes. Furthermore, extremely limited documentation on processes is thought to aggravate the problem, as individuals have nowhere to easily reference correct procedure. Most participants also noted an acute lack of orientation across the entire city government system. While city employees appear to receive some orientation upon being hired, there are many concerns that they are not provided enough initial or on-the-job training. Furthermore, many participants feel that there is an even greater need for orientation for elected officials and board members when they assume their government roles in order to establish a common knowledge base throughout the system. A number of respondents indicated feeling frustrated by an apparent lack of understanding on behalf of those individuals on fundamentals of city governance and due process. HR Subcommittee Interviews - Summary of Findings -12 Communication Due to a striking number of participant comments related to communication, a series of specific questions were asked on that topic. • Many study participants are concerned about apparent breakdowns in communication between city departments. • Participants hold conflicting perceptions regarding the effectiveness of meetings between city government staff. • Inadequate public forums and poor management of citizen input are a repeated complaint by many study participants. According to most study participants, breakdowns in communication are thought to routinely occur in all areas, and at all levels, of the city government system. Especially striking are reports that poor communication between city departments is a persistent problem that leads to breakdowns in coordination and fuels perceptions of a dysfunctional organization. Specific examples of poor communication were often cited during the interview process. Many participants related instances where city departments, community groups, or other stakeholders were "left out of the loop" during critical stages of project development or implementation. At worst, some respondents admitted that there have been times when a local newspaper article or a citizen inquiry has been how they have first learned about a new policy or about a city project that directly impacts their position or department. Consequences of poor communication are thought to manifest themselves in the form of delays or mistakes in legal procedure, extra burdens being placed on unsuspecting employees, and citizen outcry over what is often perceived as purposeful withholding of information. The highly visible nature of these communication breakdowns, coupled with the high degree of personal frustration associated with them, cause many study participants to conclude that much of the perceived poor coordination within Ithaca city government can be directly traced to this problem. The actual root cause of these lapses in communication appears to be a matter of debate, with many different reasons being suggested by participants. Again, insufficient HR Subcommittee Interviews - Summary of Findings -13 staffing is cited as a common excuse for why information is sometimes not disseminated properly. Also, limited procedural knowledge on behalf of some employees appears to lead to poor communication, as individuals often claim that they were unaware of the need to notify other personnel about certain issues or decisions. These sorts of situations are thought to be caused in part by the absence of a clear communication strategy and poorly documented procedures that do not clearly identify channels of communication. The issue of meetings between senior city employees generates conflicting reflections from those attending those meetings. While some find Senior Staff Meetings to be highly effective, others feel that important issues associated with interdepartmental coordination are not discussed. Of special note, there appears to be a clear lack of kick-off meetings for city projects that would ordinarily involve senior staff representatives from all city departments involved in the project. Frustrations associated with poor communication between elected officials and city departments were also apparent, as many senior staff members told of instances where they were not informed about policy changes made by Council, or where they were not solicited for advice concerning potential changes. There were also a number of complaints that often little explanation is provided for why certain decisions are made by elected officials. Lastly, during the course of the interviews many participants indicated that citizen involvement in administrative matters is a serious hindrance to city government performance A number of participants directly link this problem to a lack of effective and timely public forums. While there is uniform agreement on behalf of study participants that the public must be kept fully informed on policy and administrative activity, there are strong indications that public input could be better managed to allow for timely input early in the process rather than after project implementation. HR Subcommittee Interviews - Summary of Findings -14 Processes Many study participants presented strong opinions regarding the various processes and procedures that guide administrative activity within the Ithaca city government, with many citing that the processes inherent in government organizations lead to perceptions of sluggish response. • Many participants find the administrative process and procedures overly complex and cumbersome, often resulting in delayed completion of tasks or mistakes. • Participants are split between perceiving the city government as too process - oriented versus being too lax with regards to with proper procedures. • A few participants believe that overly complex and lengthy processes, and a perceived lack of coordination on behalf of city government, may dissuade new businesses from moving into Ithaca. A dumber of participants pointed to what they believe are overly complex and cumbersome government processes as being major hindrances to the daily performance of city employees. These comments were often coupled with references to inadequate staffing within departments, which tightens time constraints and leaves employees little opportunity to fully reference and document heavily detailed procedures. Participants also related a number of instances where what was thought to be proper procedure was later discovered to be incorrect, resulting in the process being halted and steps repeated. Again, heavy workloads and insufficient process documentation and orientation are usually blamed for these sorts of situations, as opposed to incompetence on behalf of city employees. Indeed, many respondents point out that on a daily basis a tremendous amount of complex, highly detailed work is carried out by city personnel without error. One may conjecture that due to the very public nature of the work, the few mistakes that are made generate widespread perceptions of a dysfunctional system. Despite a general consensus on behalf of study participants that administrative processes are complex, it is interesting to note there is a difference of opinion on whether there is too much, or too little, strict adherence to proper procedure. On one hand, many HR Subcommittee Interviews - Summary of Findings -15 interviewees feel that Ithaca city government is too intent on following legal procedures to the letter, which in tum slows the bureaucratic process and pushes projects far past established deadlines. This contradicts another group of study participants who believe that it is crucial that time and care be taken to ensure that every procedure is strictly followed, regardless of the time involved. Many who share this opinion feel that poor adherence to proper procedure is often an underlying cause of project delays and conflicts between departments. Of specific interest, a few participants alluded to the fact that overly complex and lengthy procedures may inhibit prospective businesses from settling within city borders. When asked specifically about this, a few respondents stated that they believe the approval process for new businesses is inordinately lengthy in Ithaca. Stories of administrative mishandling by city officials were also cited as possibly discouraging new business from moving into in Ithaca. However, many participants also admit that, beyond those factors, negative reaction from certain citizen groups also causes Ithaca to appear to be unwelcoming to business. A few respondents feel that some business owners may perceive setting up shop in Ithaca as being a difficult and potentially hassle -ridden endeavor and subsequently opt to settle in nearby towns in order to avoid the expense in time, money and possible negative publicity. HR Subcommittee Interviews - Summary of Findings -16 Skirting Procedure Following up on the conflicting response regarding the level of adherence to proper procedure, a series of questions sought to determine how "free -wheeling" current city administration is and whether there is a need to instill a greater sense of discipline in administrative behavior. • For the most part, city government personnel follow proper procedure during daily administrative activity. • Breaks from proper procedure are often relatively minor with few negative consequences. • A few participants believe that overriding processes, as outlined within the City Charter, are not always adhered to, resulting in conflict. In general, Ithaca city government appears to be fairly adherent to proper procedure. However, most respondents admitted that processes are sometimes skirted, and many admit that there are times when they themselves feel compelled to bypass written procedure in the best interests of the public. A desire to take initiative and the need to get a job done expeditiously are the most common reasons for deviations from correct procedure. There are differences of opinion as to whether this sort of behavior helps or hinders city operations. According to participant accounts, it appears that in most cases when channels are bypassed, no serious legal violations are committed. Most instances are associated with routine administrative activity, whereby a process is pushed forward by an employee acting in a relatively autonomous manner in order to fulfill a request from a citizen or elected official. In most cases these breaks from proper procedure were seen by study participants to be the sort of informal activity that occurs in most organizations. Many participant accounts of such behavior were followed up by claims that all necessary personnel were ultimately informed, albeit after the fact. Consequences of breaking from proper procedure included instances where certain parties felt as though they had not been properly informed about, or had been excluded HR Subcommittee Interviews - Summary of Findings -17 • from, an action or decision. On the other hand, participants also related accounts of when a minor break from procedure allowed a deadline to be met or a citizen to be served quickly, where neither would have occurred if strict adherence had taken place. In fact, most respondents defended minor breaks from procedure as a means of expediting cumbersome administrative activity in the interests of citizens. Ultimately, while it is obvious that adherence to procedures is not always the case, there were no firm indications that widespread unrestrained breaks from administrative process are common behavior. In fact, a number of respondents stated that they and many others within the city government system tend not to deviate from correct procedure due to the heavy scrutiny placed on their actions by a citizenry often on the lookout for violations of trust. It should be noted that, despite the sense that daily administrative processes are generally adhered to, a few participants did raise concerns that overriding governmental procedures, as outlined in the City Charter, relating to roles, authority, and delegation, are often not properly followed. A few respondents provided examples of when they felt boards and/or committees were either bypassed, or otherwise incorrectly utilized, during a decision process. Likewise, they attributed some interdepartmental conflict to a breach of proper procedure, or at the very least, a lack of understanding about proper procedure as it written in the City Charter. HR Subcommittee Interviews - Summary of Findings -18 Informal Operations and Politics Many questions during the interview attempted to gauge the level of informal administrative and political activity that occurs as administrative processes are carried out. Issues of coalitions and citizen groups were investigated, as was the degree to which personal alliances between certain government officials, or between private citizens and government personnel, impact city government decisions and actions. • Personal alliances, of many variations, do influence city operations, but generally do not heavily dictate administrative behavior. • The balance of power and influence within the city government is better balanced than in the past, though some city departments and citizen groups are still thought of as wielding more influence than others. • Traditional party politics does not appear to play a large role in city government operations. Most participants agreed that in any organization it is important to establish personal trust and friendships between oneself and co-workers and that, in many cases, these informal relationships will allow a worker to expedite processes, usually without negative consequences. While many participants admitted that a good personal relationship with the mayor or Council members tends to have a substantial impact on one's ability to push work through the system, there was little indication that this was the driving factor behind most administrative behavior within the city government. Nor does there appear to be an underlying `political machine" wielding heavy-handed influence within the city. In fact, many participants were quick to point out that backroom decisions and clandestine behavior, while it may exist to some degree, is not, in their opinion, a chronic problem within Ithaca city government, despite perceptions to the contrary held by some within the community. In addition, inordinate levels of political power does not appear to be currently held by any one department, or by any singular individuals. Many respondents reported that in the past it was commonly believed that certain departments, citizen boards, and individuals HR Subcommittee Interviews - Summary of Findings -19 had formed coalitions that wielded substantial influence over other city departments and City officials. However, most study participants believe that current levels of political power are relatively well-balanced within the city. Some respondents believe that if pockets of heavy influence do exist, they are now controlled by external special interest groups who are seen to aggressively lobby for their causes. Lastly, many of those interviewed were asked if party politics impacted city policy or administration. Most respondents noted that due to the overwhelming alliance to the Democratic Party that exists within the city and region, party affiliations do not appear to have much of an influence on city operations. HR Subcommittee Interviews - Summary of Findings - 20 The Democratic Process Most study participants were asked to provide their opinion on how the voice of the citizen impacts Ithaca city government policy and administration. Response to these questions revealed a number of strong themes. • Ithaca citizens are thought to be able to steer both political and administrative activity. • Some participants question whether citizen input is well balanced throughout the community. • Many study participants have concerns about the negative impact of citizen influence on city operations. • There are indications that current methods of soliciting public input are inadequate and/or poorly managed. The majority of study participants strongly believe that Ithacans have considerable influence on the actions of their elected officials in setting policy and on city employees in administrating those policies. Only a few respondents are of the opinion that the voice of the citizen goes unheard, with some believing that those in less affluent or minority groups may be more likely to be ignored by government officials regarding issues that ultimately have a substantial impact on their lives. It should be noted that during the interview, many participants distinguished between "citizen" and the "average citizen." A number of respondents feel that while certain highly vocal citizens, or citizen groups, appear to have considerable influence over political and administrative activity, a large percentage of the population chooses to remain silent. There were also concerns that citizen experiences with current methods of soliciting public opinion, notably Common Council meetings, discouraged many citizens from voicing their opinion. Throughout the entire interview process study participants consistently voiced concern that citizen involvement in administrative activity may inhibit optimum performance. A large number of participants related instances of projects and initiatives HR Subcommittee Interviews - Summary of Findings - 21 that had been delayed or halted by public interference. Some respondents went as far as to say that there was too much public influence being wielded by small, but highly vocal citizen groups, who are seen to cause elected officials to quickly reverse opinion on what had been agreed-upon policy. As reported earlier, a number of respondents expressed concerns about what they perceive as a lack of effective public forums at which citizens could voice their opinions without the procedural limitations, the formality, and the intimidation, of Common Council meetings. Others questioned the timing and source of the public input, citing instances when citizen opinion has been solicited well after the policy development stage, or else presented by individuals who do not reside in the city. Others feel that elected officials are too quick to change policies and delay projects after confrontations with small groups of vocal citizens. It should be noted that most participants, despite their apparent frustration that public interference negatively impacts their jobs, are quick to state that citizen involvement is vital and must be encouraged and maintained. It appears that what is desired is a better process to gather and channel citizen input so that public concerns and ideas are voiced early in the project stage, and voiced by a broad and representative spectrum of individuals that comprise the Ithaca community. HR Subcommittee Interviews - Summary of Findings - 22 Administrative Management and Leadership Many participants were asked to offer their opinions on the current level of administrative management and leadership within the city government. When directly asked about the possible need for more centralized administrative leadership, participants offered a wide variety of suggestions concerning that sort of structural change. • Many participants noted a lack of project management, especially early in the implementation stage of city projects. • A large number of participants voiced a desire for stronger administrative leadership. • There appears to be more interest in creating a City Administrator position versus a switch to a Council/Manager form of governance, with many participants having no opinion on either option. Throughout the interview process, many participants alluded an apparent lack of unity and teamwork between the various city departments. A number of those participants provided examples of where departments did not appear to be working together as a unified team towards the implementation of a specific city project or service. This sort of situation was often cited as possibly fueling public perceptions of a fragmented city government where departments are seen as working against each other. Comments made by many participants indicate that currently within the city government structure there is a heavy focus on individual departmental function at the expense of project management. Many expressed the need for improved project maagement that would be shared by personnel from all pertinent departments, especially early in the development or implementation stage. Kick-off meetings, scheduling, and communication strategies were mentioned as being important activities that should routinely involve individuals from across different departments on a project -by -project basis. To illustrate that this sort of collaboration currently does not occur, a number of specific examples were cited where key departments had been apparently excluded from planning activities, or where individuals first learned of their involvement in a project from HR Subcommittee Interviews - Summary of Findings - 23 second-hand information. In addition, ongoing conflicts between interdepartmental goals, or between the desires of elected officials and the functional capabilities of departments, were also thought to lend credence to the common view that various entities within the city government system are often at odds with each other. There are indications that there is minimal centralized oversight of city projects or services to ensure that all necessary departments are on board and well -aligned towards successful and timely implementation. A number of participants noted that the mayor position, as it is currently defined, assumes a great deal of administrative authority. However, some suggest that the demands placed on anyone in that position may be too great for effective handling of necessary responsibilities. A key component of this study was the direct inquiry of participants as to whether they felt more centralized administrative leadership would enable the city government to operate more smoothly. Due to the varying role definitions applied to City Managers, City Administrators and Chief Administrative Officers (CAO) throughout the United States, the question was asked in a very broad manner to allow the respondent to define their own role descriptions if such a position was created within Ithaca city government. A majority of participants expressed a desire for more administrative leadership in some capacity, with most of the other respondents having no opinion on the matter. Many participants appear to desire the creation of a new leadership position that mostly resembles the traditional definition of City Administrator or CAO. There were a few calls for a complete switch to a Manager/Council form of city government. A few participants voiced direct opposition to creating a new appointed position. Those who appeared to favor the appointment of a City Administrator or CAO described a number of attributes that a person in that sort of position would assume. Some _hoped that he or she would represent a buffer between elected officials and administrative personnel that would limit the amount political influence on administrative activity. Others voiced the need for an internal advocate who would be able to speak on behalf of city employees and mediate conflicts between departments or between city employees and elected officials. Many saw the person who assumed that role as being a coordinator, a facilitator and a project manager between departments, who would ensure that goals are HR Subcommittee Interviews - Summary of Findings - 24 aligned, information is being shared, and that proper procedure is being followed at all times. Support for the Manager/Council form of government appears to be largely based on personal experience working or living within such a system in another US city. In addition, a few participants point to the fact that a very large number of midsize US cities have assumed that form of government with notably successful results. Those who dismissed the idea of establishing a new administrative leadership position in any capacity raised concerns over whether anyone in that position would be able to effectively assume a singular leadership role over all department functions. It was also pointed out that Ithaca has remained a stable community into the 21' Century under the current Mayor/Council form of government, while many other communities, regardless of government structure, have struggled. Other comments included a worry about the potential politicization of a new position and concern that heightened attention paid to administration and management might somehow inhibit the democratic process. HR Subcommittee Interviews - Summary of Findings - 25 Roles and Responsibilities' After a few participants mentioned that they felt the roles and responsibilities of certain city employees and appointed board/committee members were sometimes vague, or possibly misunderstood by othergovernment personnel, specific questions were asked concerning this issue. • . Roles do not appear to be well defined for some city employees or board members and some feel that departmental functions are not well understood. • Instances of elected officials becoming involved in administrative activity are thought to inhibit city operations. • Frustrations surround the role and utilization of boards and committees. When asked if roles are well defined within the Ithaca city government, participants appeared to differ in their perceptions. Many feel confident that most city employees, board/committee members, and elected officials understand how they fit within the overall government structure and what is expected of them. However, a number of other participants contradicted that claim by relating instances where they were unsure about their own roles, especially when they found themselves being asked to perform tasks that they felt were out of their domain of responsibility. Others doubted that all government personnel have a clear understanding about the role that each department plays within the larger structure. A few board/committee members also admitted that they sometimes felt unsure about their role, especially when they suspected that their research and recommendations were being largely ignored by others. Other participants told of instances where they felt boards and committees were not correctly utilized as outlined in the City Charter. By far the largest complaint concerning roles and responsibilities involved what many participants perceive as interference in administrative matters by elected officials. There are indications that many study participants have concerns about an apparent blurring of administrative and political activity, which is thought to result in conflicts and HR Subcommittee Interviews - Summary of Findings - 26 frustrations. City employees repeatedly stated that they understand that their own role is to administer policy as dictated by the elected legislative policy -makers. However, many expressed a desire for more autonomy in their departmental responsibilities, with a few stating that they wished more trust would be placed in their expertise and judgement to get the job done in the best manner possible. HR Subcommittee Interviews - Summary of Findings - 27 Mission & Vision Since many current methods of organizational improvement applied by US Cities involves the establishment of a formal Mission and Vision Statement, a series of questions was asked of study participants regarding whether Ithaca had a unified mission and vision and whether the existence of one was a necessary precursor to improving internal operations. From these questions a few themes emerged. • Very few participants feel that Ithaca city government, or the city, has a clearly defined or articulated long term vision. There are indications that attempts to create a formal Mission Statement were begun during past years, but were abandoned. There are some signs of the process being revived. Participants haye mixed feelings as to whether a formal Mission or Vision Statement would generate greater unity within the city government. It is apparent from participant response that Ithaca city government does not have a unified mission or vision. Some respondents believe that the current mayor possesses his own vision, but there is concern that it has not been clearly articulated to the city government or citizens. A few participants perceive the lack of a common vision as being a very real underlying cause of poor unity or teamwork between the various government entities. Others see the absence as merely fueling the perceptions of a fragmentedgovernment system. Many others feel ambivalent about the matter. There are indications that various attempts have been made in the past to create a formal Mission Statement, though it appears each attempt was eventually aborted. Some participants mentioned that there have been recent attempts to resurrect the process. It is interesting to note that while some participants are eager to complete a formal Mission Statement, others resist the idea, believing that it would be a hollow endeavor yielding few tangible results. HR Subcommittee Interviews - Summary of Findings - 28 Participant Suggestions for Reform Most participants were asked to provide their recommendations on what they believe would be the best approach towards improving the coordination within Ithaca city government. It is very interesting to note the vast spectrum of reform ideas put forth by study participants. • Participants offer a wide variety of suggestions for improvements. • Many suggest a commitment.to current organizational reform initiatives. • There is moderate support for a City Administrator or Chief Administrative Officer position. • Some participants support a review of the City Charter. • There is skepticism towards applying private sector reforms. As was the case throughout the study, opinions and suggestions offered by participants differed dramatically. In fact, of the twenty-three participants who were asked for their opinion on this topic, there were approximately fifteen unique suggestions. Since identifying organizational improvement options is one of the main goals of this study, all suggestions for reform are listed below. While some received more support than others it is important to review them all since a method mentioned by only one person may very likely have considerable merit. Creation of an Administrator Position - The most frequently mentioned reform involved the creation of an administrator position that would assume a variety of responsibilities, the most notable being a coordinator between departments. Revisiting the Charter - A number of participants suggested that the City Charter should be reviewed and agreement should be reached by departments, elected officials, and boards as to proper procedure for city projects and services. Ground -up Approach, Internal Improvements - There were a number of calls for a commitment to ongoing efforts focused on improving internal operations. These included HR Subcommittee Interviews - Summary of Findings - 29 communication strategies, documentation, orientation, and other improvement initiatives currently being undertaken. General Strengthening of Leadership, Project Management a few respondents pointed to the need for stronger leadership and project management across departments without providing details on specific reforms. Other - singular recommendations included switching to a Manager/Council form of governance, limiting Department Heads to ten-year terms, increasing pay while maintaining workforce size, streamlining the committee process, merging certain departments, and verifying ordinances. It is striking that there was minimal interest in an outright switch to a Council/ Manager form of government. It should also be noted that many of the calls for the creation of an administrator position came with caveats and warnings that this reform would likely not solve all existing problems and would only be as effective as the person placed in that position. Also notable is the number of respondents who feel that the city government should look within itself to develop and implement corrective reforms. There is a common belief among a number of participants that there is a system already in place, as outlined within the City Charter. Some feel that if this system were allowed to function as intended, it would establish clear lines of authority and responsibility, while reducing political interference in administrative activity. Lastly, a few participants were asked about the feasibility of applying traditional private sector reforms on a public organization, as is currently being done in many cities. Specifically, methods such as performance measurement and management by objectives were discussed. For the most part, those participants who are knowledgeable about these types of approaches to internal improvement appeared skeptical about their usefulness in general, as well as their applicability within the public sector due to the reactive, as opposed to proactive, nature of city government. HR Subcommittee Interviews - Summary of Findings - 30 Section 2 - Conclusions It is obvious that the findings of this study are exceptionally broad in scope. In an attempt to lend a sense of order and cohesiveness to the final set of conclusions, they have been classified into distinct groups based on the breadth of focus. While some are specifically associated with internal operations, others address larger structural issues such as management and leadership, while still others are linked with the community at large. Using this classification there is a danger that the conclusions will be seen as separate and unique unto themselves. It should always be remembered that they are all associated with the same organizational system and therefore linked. Addressing any one of the issues will have effects throughout the entire system and care must be taken that improvement initiatives do not conflict. General • Perceptions of poor coordination within Ithaca city government exist among city employees and board/committee members and many feel that these perceptions are warranted. • Despite apparent conflicts and inhibitors to optimum organizational performance, there appears to be a general sense of optimism and a desire to implement positive change. One of the main goals of this study was to determine whether perceptions of poor coordination exist. Results suggest that this perception does indeed exist on behalf of government personnel and there are indications that the same perception is held by Ithaca citizens. The validity of these perceptions appears to be supported by numerous accounts of breakdowns in communication and collaboration throughout the city government structure. However, while conflicts and inefficiencies are thought to exist within the system, the system itself does not appear to be severely dysfunctional or beyond repair. It is encouraging to note that government personnel hold a generally positive and optimistic view of Ithaca's city government. Despite the reality of a shrinking tax base, there was no sense of despair among the study participants, but rather a desire to improve service wherever possible. HR Subcommittee Interviews - Summary of Findings - 31 Internal and Interdepartmental • Limited resources cause city staff to become overburdened, leading to mistakes, inappropriate diversions from proper procedure, poor communication, and limited opportunity to implement internal process improvements. • Extremely complex administrative processes, and limited knowledge or erroneous interpretations of those processes, leads to procedural mistakes, breakdowns in communication, and delays. • Uneven adherence to proper procedure - both too much and too little - coupled with a lack of written documentation, is seen to limit responsiveness and cause delays. • Inadequate orientation and training of city employees, board/committee members, and elected officials, leads to confusion on roles, procedural errors, and poor customer service to citizens. It is clear that a shortage of staff is a reality that will persist as long as funding to hire additional employees is limited. It is also quite clear that this problem will inhibit any effort to improve city government operations. Even though changes in the overall government structure might be seen as an effective means of reform, these resources issues will remain and must be addressed on their own by means of other internal improvement initiatives. Another reality of governmental operations is a heavy dependence on process and procedure. Ithaca city government appears to be especially process -driven and it must be understood that this will often create the appearance of a cumbersome system. There are indications that a limited base of knowledge regarding daily processes, and also regarding fundamentals of city governance in general, may be inhibiting the overall organization from functioning at an optimum level. Administrative Leadership and Elected Officials • Too much focus on functions within departments, versus project management across departments, leads to inadequate sharing of information and knowledge, conflicts in vision and goals, and procedural error. • Perceived heavy involvement in administrative matters by elected officials, notably Common Council members, causes conflicts and delays. HR Subcommittee Interviews - Summary of Findings - 32 • Poor adherence to City Charter rules and processes may inhibit the proper functioning of the city governmental system. • The lack of an exclusively administrative leader to oversee project management and advocate for city employees very likely limits overall organizational effectiveness. Certain questions about local governance that have puzzled academics for centuries can certainly be asked about Ithaca's city government. ,Namely, to what degree should political and administrative functions be separated, and is it completely possible, or even desired? Also, do public administrative activities require the same professional executive management as found in the private sector, and are they deserving of a seasoned professional administrative leader? What is certainly apparent from the comments of the study participants is that the current lack of traditional project management across departments is a major inhibitor to effectiveness and a leading cause of conflict and frustrations. In addition, persistent complaints of too much political interference in administrative affairs, and differing interpretations of proper authority and delegation, serve to illustrate that distinctions between the various government functions are not clear. Ultimately, these problems, coupled with repeated calls for stronger executive leadership by a number of study participants, lead one to conclude that theadministrative requirements of running a midsize city with a reported 40 million dollar budget may have outgrown the current government structure in place. At least in this case, the answers to those fundamental questions of local governance appear point to a need for greater separation between political and administrative activities, and stronger traditional administrative management. Citizens and Citywide • An engaged and vigilant public voices its opinion on projects and initiatives, often slowing processes, or causing them to halt entirely. • Ineffective dissemination of information to the public and limited or poorly timed public forums both lead to delayed public response to new initiatives and subsequent delays in implementation. HR Subcommittee Interviews - Summary of Findings - 33 • Limited knowledge of basic public administration and city governance fundamentals on behalf of city employees, elected officials, board/committee members, as well as private citizens, leads to conflicts. Many participants pointed out that Ithaca is a haven for intelligent and outspoken private citizens, who voice their opinions on practically every action taken by the city government. Indeed, this high level of public engagement is seen to be one of the most endearing characteristics of the city.and its people. However, citizen involvement comes with its own price, in this case in the form of delayed projects and city employees who are often frustrated by what they see as too much interference in administrative affairs. Democracy itself must be managed, and currently there appears to be a lack of effective methods of soliciting public input and managing citizen involvement in public affairs. It is also important to point out that quite often the interference often cited by city employees emanates from a small group or even a single citizen. This raises the question of whether the greater public good is being repeatedly affected by a small number of individuals, thereby effectively undermining the democratic system. Public input should not be discouraged, but rather encouraged by means of engaging public forums that invite the public to gather with government officials to discuss issues in an informal, but serious manner. While such forums apparently occurred more often in past years, there appears to be fewer opportunities today for a broad spectrum of citizens to voice their opinion. Many study participants also state that citizens often feel as though they are uninformed about certain issues and decisions. There are also complaints about limited information concerning public services and ordinances. By educating the public on city governance, the roles and responsibilities of each department, and proper procedure for government processes, there should be a reduction in the amount of questions and conflicts that arise. HR Subcommittee Interviews - Summary of Findings - 34 Section 3 - Recommendations The findings from this study are obviously very broad in scope and the perceptions held by the participants represent a wide spectrum of personal interpretations of current city operations. The number of perceived causes of poor coordination and the variety of suggestions for reform suggest that any corrective action will also be quite comprehensive and address a number of distinct areas. However, study findings also suggest that the Ithaca city government is not currently in need of major reorganization or reform such as those recommended for cities that have declared bankruptcy or those that are experiencing blatant dysfunction. Drastic structural changes, such as a switch to a Council/Manager form of government, heavy service privatization, or a change in management personnel may not be warranted at this time. Indeed, there is little call for those sorts of reforms from study participants. Rather, a certain number of smaller, more focused initiatives may be a more appropriate prescription. In light of the study findings, three recommendations can be made regarding potential reform corrective measures. • Strong long-term commitment to current internal improvement initiatives • Creation of a Chief Administrative Officer position • A broad-based effort to unify the various government entities and improve project management via a common understanding of roles and responsibilities Internal Improvement Initiatives Many participants mentioned that there are currently a number of internal organizational improvement efforts in place within the Ithaca city government. Many have been spearheaded by the Human Resources Department, while others appear to have been implemented by employees on their own initiative. These efforts are addressing a number of key administrative functions that heavily impact daily functions of city employees. By utilizing the skill and resourcefulness of existing employees, organisational improvements maybe implemented at the lowest possible cost and with the least amount of disruption to the existing system. HR Subcommittee Interviews - Summary of Findings - 35 A conscious effort to improve communication throughout the city government system should be pursued if those efforts are focused on the long-term improvement of daily communication by means of a comprehensive communication strategy. In addition, specific attention should be paid to the methods used to solicit public opinion. Increasing the frequency of public forums in different locations throughout the city and offering a more informal atmosphere in which to voice opinions, may lead to better balanced and timely citizen input. Orientation programs for new and existing government personnel are said to be in the development. stage. Again, it will be critical to create a comprehensive program that educates individuals about his or her own role, but one that also provides a basic level of understanding about the city government structure in general. Informal gatherings of employees to learn about the various functions of certain departments or boards/committees may go a long way to provide a sense of unity between government personnel. Ongoing training of current employees and other personnel is also vital in any organization in order to foster personal development and growth. Employee education is an effective means of increasing production while maintaining the overall size of the workforce. Determining what skills are most required prior to embarking on an education and training program is vital in order to match supply with demand. Process documentation is a laborious effort, but reaps high rewards if shown the proper commitment. Maintaining and updating documentation is the most critical aspect of this effort requiring constant attention over an indefinite period. However, as a number of study participants mentioned, having some form of written instruction to reference would likely serve to improve response time and reduce administrative mistakes, thereby improving the overall effectiveness of the system. Lastly, technical improvements and a long-term commitment to upgrading computing systems will be essential in light of the increasing need for integration with other county, state, or federal systems. Other internal process automation must be chosen wisely in order to gain the most for the least cost. Employees mentioned document imaging and improved financial software that would likely substantially reduce employee time and effort in a number of different capacities. HR Subcommittee Interviews - Summary of Findings - 36 Clearly, these initiatives will require both employee time and government funds, both of which are in acute short supply. That reality emphasizes the need for thorough planning and long-term commitment to these efforts. Without either one there is a serious risk of embarking on a hollow endeavor that will ultimately waste resources and foster additional frustration on behalf of both government personnel and those they serve. However, if successful, these types of organizational improvements will generate optimism and enthusiasm that will then lead to even greater developments. Creation of City Administrator or CAO Position It is apparent that the scale and complexity of administrative activity necessary to maintain Ithaca's infrastructure and public services has grown beyond the capabilities of the current government structure. Repeated observations by many participants that even though the current part-time mayor works an inordinate number of hours a week, he is unable to effectively provide the leadership, facilitation, and general oversight required to coordinate and unify the administrative functions of the city government. A City Administrator or Chief Administrative Officer, jointly appointed by the Council and the mayor, would likely be able to assume many of the duties and responsibilities that are currently desired by a large number of study participants. Using suggestions offered by the participants as a guide, this individual would: • coordinate activity between city departments, • oversee project management and streamline processes, • facilitate communication between departments, and between departments and other elected or appointed officials, • advocate on behalf of city employees, • work closely with the HR Department and internal employee committees coordinating improvement initiatives, • and participate in public forums regarding city projects and services. As a number of study participants have pointed out, the person chosen for the position must have superior and proven management skills and a thorough knowledge of public administration, city governance, as well as a high degree of exposure to Ithaca's city government, Ithaca's citizens, and Ithaca's unique culture. It is understood that Department Heads will retain administrative control over their individual departments, and that the City HR Subcommittee Interviews - Summary of Findings - 37 Administrator will be, for the most part, a conduit acting between departments, and between the departments and elected officials. It is also crucial that the existing informal procedural channels that have formed over time and the comfortable working atmosphere generated by long-term employees be retained to the degree that such behavior enables city employees to complete tasks without inconveniencing others or breaching the trust of citizens. As in any situation where a person is placed in a position that oversees the tightening of processes and procedures, care must be taken not to vigorously pull in the reins prior to understanding the culture of the organization and gaining the trust of its members. Study results indicate that there will be little need for much in the way of autocratic control. r Lastly, it is hoped that the creation of a CAO position will redefine the separation between administrative and political activity within the Ithaca city government, allowing city departments to fully utilize their expertise in the application of policy, while the mayor and Common Council members work with the citizens in establishing a vision for Ithaca's future. At the very least, such an appointed position would establish a certain degree of administrative continuity between elections, thereby reducing the amount of disruption caused by entering or departing elected officials. Broad-based Effort to Ung Government Entities The final recommendation addresses the apparent need for increased unity and collaborative project management between departments. With so many study participants alluding to poor interdepartmental coordination, while citing examples of breakdowns in communication and delays in project implementation, this is obviously an area that requires immediate attention. However, it is important to address the systemic cause behind the problem rather than simply demanding that more collaboration take place. One approach would be a focus on strengthening the general understanding of the roles and responsibilities of the many various entities within the entire city government system. Currently, confusion over issues of authority and task delegation appear to occur on a regular basis, leading to conflicts and so-called "turf wars." Differing interpretation of the roles and functions of city departments, board/committee members, and elected HR Subcommittee Interviews - Summary of Findings - 38 officials, appears to generate conflicts and cause an ever-increasing separation between the various entities. First and foremost, ongoing internal workshops and informal gatherings of city employees may provide a better understanding of the function of each department and establish a common bond between employees. It will also serve to illustrate how each department fits within the larger structure. In a similar manner, the function and responsibility of citizen boards and committees can be examined in order to develop a clear understanding of how each one fits within the larger government system. By increasing a common understanding of how the system fits together and functions as a whole, a greater sense of unity should emerge as government personnel see themselves as part of a larger, complex organization with a common goal of public service. According to many study participants, there is currently little in the way of a broad organizational focus, but rather a very narrow focus on the functions of one's own department. Board/committee members and elected officials are also seen as pursuing their own agendas, rather than working in harmony with the other government bodies. Many participants desire a reexamination of the City Charter in order to establish a common base of knowledge regarding roles and responsibilities as they are defined within that document. It has been pointed out that a system of processes and procedures exists to ensure government responsiveness and accountability, though it appears to be routinely bypassed. Once a better sense of organizational unity has been established, a greater focus on interdepartmental project management will hopefully replace the current focus on intradepartmental function and personal agendas. While goal alignment and teamwork are continuously emphasized as being critical to optimum organizational behavior, it is interesting to note that they are often undermined by the heavy departmental focus within bureaucratic systems, resulting in what is commonly referred to as "working in silos." A better understanding of the larger governmental system and the establishment of common goals should serve to increase collaboration between the various separate entities that are now perceived as being fragmented and in continual conflict. HR Subcommittee Interviews - Summary of Findings - 39