BCC Minutes 05/13/1980 C
Naples, Florida, May 13, 1980
LET IT BE REMEMBERED, that the Board of County Commissioners in and
for the County of Collier, and also acting as the Governing Board(s) of such
special districts as have been created according to law and having conducted
business herein, met on this date at 1';30 P.M. in Conference Session in
Building "F" of the Courthouse Complex with the follOl~ing members present:
CHAIRMAN: Clifford Wenzel
VICE-CHAIRMAN: Thomas P. Archer
John A. Pistor
C.R. "Russ" Wimer
David C. Brown
ALSO PRESENT: Will iam J. Reagan, Clerk; Harold L. Hall, Chief
Deputy Clerk/Fiscal Officer; Edna Brenneman, Deputy Clerk; C. William
NOl111an, County r1ilnager; D"!puty Chief Raymond Barnett, Sheriff's
Department; anrl various Department Heads and staff personnel.
AGENDA
1. Presentation of the A.I. Kearney Report entItled "Report
of the Management Audit of Collier County Government and
Projection of Facility ilnd Land Use Requirements".
PRESENTATION OF THE A. T. KEARNEY REPORT ENTITLED "REPORT OF THE ~lANAGEMENT
AUDIT OF COLLI ER COUNTY GOVERNMENT AND PROJECTION OF FACII.ITY AND LAND USE
REQUI REMFNTS" - COUNTY MANAGER DIRECTED TO DRAFT MANAGmENT n1PROVEMENT
AND FACILITIES PL^NS - FOR SHORT AND LONG RANGE PROJECTIONS - WITH SPECIFIC
RECOMMENDATIONS FOR BOTH
Mr. Robert Milne, Vice President of A.T. Kearney, Inc., Management
Consultants. Atlanta. Georgia, introduced the presentation of the recently-
completed report entitled "Report of tt,"! Management Audit of Collier County
Government and Projection of Facility and Land Use Requirements" (Note:
Complete Report on file in the Clerk's office) by expressing his pleasure
for the opportunity to clarify and discuss the recommendations and how t~e
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May 13, 1 gaO
County should approach the implementation of those recommendations. as
contained in the Report. Mr. Milne introduced Mr. Rick Corbin, also of
the subject firm, for the purpose of highlighting the various points of the
aforementioned Report.
By means of sl ide projections, Mr. Corbin reviewed the background, for
the Study, commenting on the growth of Collier County, the County. Government
facilities and number of employees, and the purpose for the study, as requested
by the Board of County Commissioners. He said that the Objectives and
scope of the Study were threefold: (a) Management Audit, (b) Facility
Plan. and (c) Land Use Plan. The method of approach, said Mr. Corbin, con-
sisted of four basic tasks: (1) Project Organization; (2) Fact Gathering;
(3) Analysis; and. (4) Report Preparation and Presentation. Mr. Corbin
exp'ained in detail how these four tasks were accomplished, the meetings held
with the County Conrnissioners and County personnel, together with the Kearney
Project Team, the various methods used to gather the infonnation and analyzing
same, concluding with the wl-itten Report of all significant findings,
conclusions and recommendations.
Mr. Corbin said that the significant findings of the Management Audit
lent themselves to the following major areas:
1. Depart~cntal Goals and Objectives.
2. Present Organization and Staffing Levels.
3. Performance Measurement.
4. Present Workload.
5. Micrographics and Records Management.
6. Policies and Procedures.
Mr. Corbin addressed each of the above-listed findings commenting briefly
on each one. With regard to Departmental Goals and Objectives, he said
that it was not their intent to make a value judgment on those other than
to obtain an understanding of "why things were done" in each of the various
departments and areas, and not to qualify whether or not such activities
are "good, bad or indifferent."
~lr. Ccrbin said that when Organization and Staffing Levels were studied,
it .Ias noted that the County Manager was starting to reduce his span of
contr~l from 22 departments to approximately 6 which is felt to be a logical
and sound organizational move. He said that it is their viewpoint that
one person can effectively supervise about six people, at best, and that
having direct line of responsibility for 22 is excessive.
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May 13, 1980
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In Performance Measurement, Mr. Corbin said that with one exception
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there is no valid performance measurement system, noting that there are
two such measurements needed - one being performance internal to the
Complex, and the second being field activities measurement.
With rcg1\rrl to Prcsent Workload, Mr. Corbin said that there werc
no workload standards available so, therefore, more personnel from the
firm were brought in to provide additional input, drawing from their
experiences in industry' and in the public sector consulting, to provide the
analysis of the Workload. He said that there are two departments which
are felt to have more than adequate resources to meet the present workload
requirements - Animal Control and Maintenance Departments. Other depart-
ments with adequate resources to meet the present workloads, said Mr.
Corbin, are ^griculture, Building, Civil Defense, Health, County Manager,
Museum, Planning, Public Works, Purchasing, Social Services, Veterans'
Affairs, Youth Guidance, nnd Utilities Departments. He said that in
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performing these analyses it is assumed that some of their recommendations
would be accepted, such as the installation of a Performance Measurement
Syst.em, "Ihich he said would hove an impc:ct on the analyses.
Continuing, Mr. Corbin said that departments with inadequate resources
to meet the present workload are the Personnel and Word Processing
Departments, cxplaining the re,lsons for such dctermination.
Mr. Corbin said that Records Management functions varied tremendously
allover the Complex, some areas doing a "very good job" but for the most
part the ability to use the records as a data base for easy access was
lacking. He also said that there is a tremendous amount of "hard copy"
records being kept, sugge~ting that microfilming where permitted could
result in space-~avings and, possibly, a reduction in personnel.
As contained in the Report, Mr. Corbin said that in the area of Policies
and Procepures, although many departments have established formal and
informal work pol icies and procedures, they \~ere seldom documented or
communicated to new employees through any formalized training or manuals.
It was noted, however, said Mr. Corbin, that positions taken by the Board
of County COlmlissioners did receive the most emphasis and visibility in
the analysis.
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The findings in the above-noted six major areas were reduced to
recommendations in four different areas, said Mr. Corbin, as follows:
1. Performance
a)
b)
c)
d)
e)
Performance Measurement
Scheduling/Control of Field Activities
Workload Analysis
Control through Char'1eback to User
Budget Authority/Responsibility
(To include lower levels of management)
2. Operations
ab) Greater Use of Outside Contracting
) Greater Usp of Word Processing Services
c) Modify Purchasing Procedures
d) Objective Guidelines to Rank Data Processing
Projects in Order of Priority
e) Use of Guidelines for Small Systems Evaluation
f) Project Management Control in Data P,'ocessing
g) r'licrograptlics and Records Management
h) Review Existing Fonns and Reports
i) Continu&tion of lIumane Society Contract
j) Coroner's Office - utilization of local funeral
homes ra ther than bui 1 d a morgue fac,i11ty
3. Organization
a) Reorganization of the Building Inspection,
Zoning, Engineering and Planning Departments (as
shown in Exhibit 11-3)
b) Archival Storage
c) Redefine Parks and Recreation (Obtaining support of
civic and community organizations to sponsor and
organize leagues, and the like)
d) Great~r Use,of Training and Procedures Manuals
e) Update Job Descriptions/Pay Classifications
f) Ai rflort Management Responsibil ity(Should be
transferred from Maintenance Department to County
Manager's office)
g) En~loyment of Industrial and Systems Engineer
h) Decentral ization of Health Department Secretarial Staff
i) Parole and Probation (One manager assuming responsibility
and authority for Department)
t. Impact on Facilities
a)
b)
c)
rl)
e)
f)
Coroner's Office (Solicit bids from local funeral homes)
Facilities Guidelines (as contained in Exhibit III-I)
Archival Storage (Off-site. using Satellite Building
and County Barn)
Centralization of Support Areas (Conference rooms
and public areas)
Personnel Department (Should be relocated)
Improve Space Utilization (Elimination of private offices
used by individuals primarily domiciled outside of the
County, and of full size offices for employees whose
activities are away from the Complex)
Utilization of Humane Society Facility
g)
May 13, 1980
Mr. Corbin referred to Exhibit 11-4, Pages 1 through 3, entitled
Recommendation Matrix, which he said contains a summary .:Jf the reconmellJations
contained in the above-listed Performance, Operations, Organization, and
Impact on Facilities areas; and to Exhibit II-I, Pages 1 through 22,
for the Organizational Stru~ture and Staff Level listings, Exhibit 11-2
showing the County's Current Staffing Levels, and to Exhibit 11-3 detailing
the recommended Organizational Realignment. Suggestions for the implementation
of the recommendations was addressed by Mr. Corbin. lle said that some of the
recommendations have no best implementation approach and, in those instances,
the managers affected by the recommendation should develop the implementation
plan with which they would be most "comfortable." He said that Exhibit II-5,
entitled" Implementation Approaches to be Developed or Coordinated by County
Manager" lists those recommendations for which the implementation approach
should be develo~ed by County Personnel.
There was a brief question and answer period following the presentation
of the above-referenced Management Audit portion of the Report, following
which the Facility and Land Use Plan was presented.
r~I'. Corbin explained that this section of the Report comprises an
analysis and determination of the immediate facilities requirements, a
determination of the short-term space requirements, and an estimation of
the long-term space requirements. The process by which the plan was
developed, said Mr. Corbin, included the following six major steps:
1. Identification of the current square footage allocated
to a d~partment.
2. Development of facilities planning guidelines - using
guidelines developed by Kearney, and other valid guidelines.
(Shown in Exhibit III-I. Facility Planning Guidelines)
3. Review of each department for compliance with guidelines.
4. Determination of whether or not a department's square
footage was adequate.
5. Development of major alternatives, including projections
of facility requirements at 3, 7. and 15 years in the
future. (exhibit III-3 - projection of departmental
headcounts used in determining facility requirements)
6. Analysis of facility plan~ing requirements.
Mr. Corbin said that the results of the analysis identifies
three areas as having critical space needs; i.e. Clerk of the
Courts, Judicial System, and the Sheriff and Jail. Other areas
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May 13, 1980
identified as needing additional space or improved layout, although not
critical, are County Attorney, County Manager, Engineering, Personnel,
Public Defender, Purchasing, and States Attorney. Mr. Corbin said that
the remaining departments have adequate square footage allocated for the
next five to seven years.
The Facility Expansion Alternatives open to the County, said Mr.
Corbin, are: 1) Construction of a Sheriff/Jail facility away from the
County Complex; 2) Construction of an additional tower building at the
Courthouse, a10ng with an additional jail facility away from the Complex;
3) Construction of both a new tower building and a jail on the Complex;
and 4) Major rearrangement of all Departments and Constitutional Officers,
reallocating square footage. The 4th Alternative, said Mr. Corbin, was
eliminated from the recommendations for several reasons, among them disruption
in the day-to-day operations of County government, extensive remodeling cost,
and would r,ot meet current State of Florida standards for jails. Alternative
was also ruled out, he continued, because of the need for additional land
acquisition for the Sheriff's office portion of the construction, depart-
ments relocated to the area vacated by the Sheriff/Jail might view themselves
as "second-class citizens," and logistical problems associated with moving
large numbers of people between the jail and the Judicial Center on a
d<1i1y basis.
Mr. Corbin said that the recommended alternative is for the construction
of an additional tower building on the Complex with a supplemental jail
facility constructed at another location'fairly close to the County Barn.
He said that this alternative would cost approximately $2,000,000 and
would meet the critical needs of the Sheriff, Judicial System and Clerk of
the Courts, with space in the tower allocated for the States Attorney,
Public Defender and Court Reporter. The ,space presently occupied, said
Mr. Corbin, could be transferred to the other departments identified as
having facility needs in three to seven years. He referred to Exhibit 111-3
which he said lists the departments and gross square footage for each
0; the five floors of the proposed new tower.
The Jail facility, continued Mr. Corbin, would cost approximately
$1,300,000 and would include modification of the existing jail pursuant
to Statute. In response to Commissioner Pistor, Mr. Corbin explained the
May 13, 1980
reasoning behind the recommendation for the construction of the jail away
from the County Complex, among them the fact that sometime in the future
it will become necessary to build a jail on a different site. ~,ybe not
for 25 or 30 years, and the proposal would be effective long-range
planning.
Mr, Corbin said that the remaining alternative, that being the con-
struction of a ~ew tower building and a new jail on the County Complex,
could be accomplished by adding on to the existing jailor constructing
a new jail facility with a secure connection to the existing jail. He
pointed out the advantages as well as the disadvantages to either proposals.
Concluding his comments and present~tion with regard to the Land
Use Pldn. Mr. Corbin, referring to the Report, said that the existing
Courthou~e Complex should serve the needs of the County for 15 years if
the proposed tower building is constructed. Other comments included in the
presentation were that the parking situation at the Complex would be
improved if the County follows the guidelines shown in Exhibit 111-7,
and that the continued centl'alization of County governmental functions in a
single complex is recommended; however, the existing satellite centers shoull
be maintained for the present. Other exhibits contained in the Report, and
referred to hy MI', Corbin. were Exhibits III-2. Pages 1 through 44. Head-
count Projections for each of the various departments; Exhibit 111-4, Pages
through 5, Proposed Office Complex Layout - New Tower; Exhibit 111-5, Pages
1 through 17, Present and Proposed Layouts of each floor of the existing
Tower Building and of the Satellite Building; Exhibit 111-6, Pages 1 and
2. Proposed Jail Facility Layout; and an exhibit showing the Master Plan
for the Collier County Courthouse Complex.
Included in the question and answer period following the formal
presentation of the Report. was a discussion concerning the need for an
Industria1 Engineer, as rp.commended, with Mr. Corbin explaining why it is
preferable to employ such individual rather than to hire a consultant.
one of the reasons being that there are from four to six years worth of
work involved just to implement the recommendations contained in the
Report, if adopted, County Manager Norman voiced his concurrence,
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M~y 13, 1980
sug~esting that a management analysis employee with systems experience is
the type person necessary to actively develop performance meaSUrellll!nt$ and
work standards.
Commissioner Pistor voiced his concern rtgarding the additional operating
costs which would be incurred if the recommendation for constructing a
Jail facility away from the Complex is implemented, such as a second kitchen,
additional guards, and the like. Other changes proposed were discussed, such
as the need for Central Receiving in the Central Stores area, expansion of
the County Manager's area, relocating the Personnel Department away from
the ground-floor area, locating Parks Department personnel in parks buildings
throughout the County, as such parks are built, what calculations were
used to determine the work units being performed by Maintenance Department
personnel. together with other changes as have been suggested.
State Attorney Joseph D'Alessandro was asked for his opinion regarding
the location and space allocation being proposed for his offices. Regarding
the location, Mr. D'Alessandro said that if the Commission goes along
with the proposal for 10c3ting his offices in a new tower building away from
the presenc complex. he would have to agree; however, he voiced his
disagreement with the amount of space that has been presented in the Report.
He said the State mandates that he have 5.000 square feet of space and that
such footage, when worked out according to the chart presented, and when
usable space is considered, he would have less space than what he currently
has. Among his other comments was the observation that he does not care
wher2 his office is located as long as he can perform and function according
to his constitutional responsibil ities and said that "these figures
aren't going to meet them."
Mr. D'Alessandro also pointed out that-a facility is needed for the
coroner's activities, noting that it is a drastic need and, if it was to
be located away from the Complex, that would be "fine."
Discussion followed concerning whether or not there would be a problem
for his department if the penal institution is located elsewhere with
Mr. D'Alessandro commenting that it would not be a problem with regard to
his office; however, he said that there would be logistical problems
May 13, 1980
involved transporting prisoners back and forth. He emphasized his need
to be located where the courts are located. The possibility of remodeling
his current office space was suggested with Mr. D'Alassandro commenting
that he could make better use of the facilities he is now occupying by
making some changes, such changes could also ease the lack of current
space for storage of records and documents, he said. Chairman Wenzel
offered the opinion that it is possible to make some improvements in the
current facilities and that the matter of remodeling can be addressed in
a future Workshop Session. Mr. D'Alassandro expressed his appreciation
for the opportunity to address the Board.
Sheriff Aubrey Rogers was asked to provide input and expressed the
opinion that there will need to be much more planning and studying made
before making any changes. He said that the figures quoted in the Report
are under-estimated in that some years down the road there will be a need
for a 190-200 man jail, whereas there are 150 persuns incarcerated now.
However, he said that his biggest concern with the recommendation for
two facilities is the duplication of personnel and facilities which would
be required. He ~aid that with the costs of construction and meeting the
State requirements being so critical, he would recomm~nd that an architect
be consul ted to develop the information in the Report and "come up with
the best enswer."
Mr. Corbin addressed again the matter of Field Activities and
Standards, particularly as they relate to the Utilities operation wherein
there is a rate structure applied which increases the work on time standards
for this type of work, again noting the lack of a base-line to use as a
measure. Utilities ~ivision Director Berzon observed that there are
fixed charges and rates developed for the installation of meters and
stated further that he reached the conclusion that the Report. judging
only the results he found with regard to Utilities operations. were not
based on the facts as they existed in his Division.
Mr. Norman said that there are a great number of far-reaching
recommendations contained in the Report which are, for the most part,
sound. in his opinion. He voiced agreement with Chairman Wenzel's suggestion
that a Workshop meeting for the purpose of discussing the recommendations
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May 13, 1980
be held and added that the staff will be attempting to address them as
part of the bdget development, as much as possible. Mr. Norman also
advised that the consultants hove indicated that the backup material they
developed will be provided to the County, together with individual comments
and reports made by various participants for the Kearney organization.
lie sa id that he was not sure that a Workshop Session to g~. over the entire
Report would be entirely productive, suggesting that certain areas be
identified for further discussion. A further suggestion was for the
selection of a design architect for proceeding with the Jail project, which
was discussed briefly with regard to the scope of services, and the like.
Chairman Wenzel invited participation and input from the public in
attendance. Mr. Egon Hill COI,unented on several sections of the Report; i.e.
the lack of population estimates on which to base personnel and space
needs; a 20% increase in productivity following the implementation of a
performance measurement systenl snould suggest a decrease in employees
and, therefore, less space would be requried; if converting to a microfilm
system for records storage, thereby creating a savings in space, has been
considered in the space requirement projections for the next 3,7, and
15 years; and, the fact that the usable space could be increased by
66-2/3% by adding three stories to the present Tower Building, as has
been I:"'ntioned, and another story to the Satellite Building.
Mr. Robert Weinig, Chairman of Citizen Inflation Fighters, Inc.,
reading from a letter dated May 13, 1980 and signed by the President
of the organization, said that the Kearney Report has been studied with
interest and concern and that a number of questions have been raised which
deserve study and appropriate action; i.e. Why has the per-capita cost
of Collier County government increased about five times as fast as the
increase in the population? Why should there not be an immediate reduction
in the number or present employees, if, as stated in the Report, many of the
departments can continue to provide the same or improved levels of service
for the next several years without significant staff increases with the
implementation of a performance measuring system? What is the possibility
of combining small departments to r!~dllce cost ilnd span of control? Mr.
Weinig stated that the public should be informed of the Board's decision to
May 13, 1980
adopt the budgetary plan, as set forth in the subject statement, and of the
cost reduction objectives, program, and schedule, together with the results as
they accrue.
Thp.re was a short discussion of the points raised by both speakers,
following which the jail facilities matter was again addressed and deliberated
upon. Public Safety Administrator Tom Hafner, rcr,ponding to Commissioner
Archer, said that, pursuant to discussions with the Sheriff and Deputy
Chief Barnett, plans are underway to come to a mutually-agreed upon arrange-
ment with a regard to improving the Stockade for the Sheriff's use whi~h
he said will beneficial and relieve the over-population in the jail. Deputy
Barnett pointed out that this is an interim arrangement since it will be
approximately tWI'l years until a new facility can be built, adding the
comment that there are 150 inmates in the jail now which he said is not
permitted.
Commissioner Archer expressed his desire to see a cost comparison for
the various alternatives under discussion, including taking into consideration
the remodeling of the present facilities. It was suggested that these figures
may be a function of the architect to be engaged - the land costs, operating
costs for each recommendation, and the like.
Commissioner Wimer moved that the County Manager be directed to
draft two plans - (1) A Management Improvement Plan and report to the
BCC what he determines he needs to implement such plan; and, (2) A Facil itie!;
Plan; both plans to bp. broken down lnto short-range and long-range timespans,
with specific rec:mmendations regarding the needs for accomplishing both.
COlll11i ss i oner Archer seconded the motion which carried unanimously. Cha i rman
Wenzel observed that, since the Board was sitting in ConferencE Se~sion,
the action can be formalized at the next Regular meeting.
The meeting was adjourned at 3:55 P.M. to reconvene in Regular
Session irrmediatp.ly thereafter.
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