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