HomeMy WebLinkAboutCOM 0158.000 2002-2004To:
Harry Kim, Mayor
Members, Hawaii County Council
From:
Hawaii County Cost of Government Commission
cc:
Lincoln S. T. Ashida
Dixie Kaetsu
Date:
February 20, 2003
Re:
REPORT
The members of the Hawaii County Cost of Government Commission are pleased to submit
the attached report of their review of various County departments, commissions, boards,
offices and other instrumentalities of government pursuant to Article V, Chapter 2, of the
County Charter.
In the 11 months since the County Council's confirmation of our appointments, we have held
24 meetings and interviewed representatives of 22 County departments, commissions and
other agencies. Following thorough consideration and review of voluminous materials and
testimony, and after extensive discussion, we prepared the findings and recommendations
contained in the attached report.
Despite our efforts, however, the 11 -month term specified in Section 5-2.3, proved insufficient
to "study and investigate the organizations and methods of all branches of the county
government...." as specified in Section 5-2.2. (emphasis supplied). Furthermore, the limited
time specified in the Charter prevented the Commission from investigating the County's
departments in depth. The Commission believes that its function is valuable and should be a
permanent part of the County's governance system. Our report, therefore, includes a
recommendation that the Mayor forward to the County Council an ordinance establishing the
Commission as a permanent body to provide for ongoing review of County government
operations. In addition, several members of the Commission have expressed their willingness
to continue to serve, if reappointed, in order to complete reports already began on key County
departments in order to establish a baseline for the work of future Commissions.
We, the undersigned members of the Cost of Government Commission, express our sincere
thanks for the opportunity to serve our County and its residents in this important enterprise,
and trust that you, our elected representatives, will carefully consider the recommendations
contained in our report. We stand ready to respond to any questions you may have.
Comm. No. ron
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COST OF GOVERNMENT COMMISSION
Table of Contents
Report.................................... .....1
Office of Aging ................................... 5
Office of the Corporation Counsel ....................9
County Clerk and Council .......................... 11
Finance Department .............................. 15
Fire Commission ................................. 19
Fire Department ................................. 21
Office of Housing and Community Development ........ 25
Office of Management ............................. 27
Mass Transit Agency .............................. 29
Parks and Recreation Department ................... 33
Department of Water Supply ........................ 37
ik—W0111M
COST OF GOVERNMENT COMMISSION
COUNTY OF HAWAII
February 20, 2003
INTRODUCTION
The Hawaii County Cost of Government Commission (COGC) was appointed in
February 2002 pursuant to charter amendment 11, effective November 7, 2000, and
codified in Article V, Chapter 2, of the County Charter. The amendment authorized the
Mayor, with the approval of the Council, to appoint a nine -member commission to carry
out the County's policy to "promote economy, efficiency and improve service in the
transaction of the public business in the legislative and executive branches of the County
by:
1. Limiting expenditures to the lowest amount consistent with the efficient
performance of essential services, activities and functions.
2. Eliminating duplication and overlapping of services, activities and
functions.
3. Consolidating services, activities and functions of a similar nature.
4. Abolishing services, activities and functions not necessary to the efficient
conduct of government.
The amendment requires that the COGC "study and investigate the organizations and
methods of operations of all departments, commissions, boards, offices and other
instrumentalities of all branches of the county government, and determine what changes,
if any, may be desirable to accomplish the policy...." The COGC is authorized "to secure
directly, from any department, ... information, suggestions, estimates and statistics
necessary to carry out its duties," and is required to submit a report of its findings and
recommendations to the Mayor, Managing Director and Council not later than eleven
months after its appointment.
The charter provision further provides that COGC members "shall be appointed to terms
starting one year after the beginning of the term of the Mayor, and lasting eleven
months."
COGC HISTORY AND
The members of the COGC were sworn in on January 30, 2002, following their
confirmation by the Council on January 24. On February 7, 2002, the COGC held its first
meeting to consider its responsibilities and scope of authority under the charter,
determine its plan of action, review Sunshine Law requirements, County regulations and
policies affecting its operations, and to elect officers. For several months, the COGC
operated with just seven members, one having resigned in May, and another in August.
One replacement (Mr. Richard Rego) joined the COGC in October. Furthermore, one
member attended only one meeting during the year, due to apparent work and other
commitments.
During its term, the COGC held 24 meetings (at which quorums were present at 17),
adopted rules of procedure, and reviewed 22 County departments. The departments were
asked to appear before the COGC and to provide an organizational chart, a statement of
objectives, and an overview of functions. In interviewing department staff, the COGC
sought views on: 1) what economies are believed possible; 2) what restraints, if any,
inhibit achieving or implementing the economies; 3) what can be done to improve the
department's efficiency; 4) what restraints, if any, inhibit the ability to achieve efficiency;
5) what can be done to improve interaction between County departments; and 6) what are
the department's long-term goals and how are they to be achieved.
Draft reports on the departments were prepared by various COGC members and reviewed
by the COGC. When consensus was reached on a report, it was approved for inclusion in
the final report.
RESULTS
Of the 22 departments reviewed, the COGC completed work on 11 (Aging, Corporation
Counsel, County Clerk and Council, Finance, Fire Commission, Fire Department,
Housing, Management (Mayor's Office), Mass Transit, Parks and Recreation, and Water
Supply). Reports on those departments are appended hereto.
Of the remaining 11, draft reports have been submitted but not completed on five
(Environmental Management, Police Commission, Police Department, Planning, and
Public Works) and work on six reports (Civil Defense, Civil Service, Data Systems,
Liquor Control, Prosecutor's Office, and Research and Development) has begun, but
drafts have not yet been submitted.
Each of the attached 11 reports includes a summary of the department's organization and
responsibilities, a list of the relevant findings, and the COGC's recommendations, with
rationale.
CONSIDERATIONS
In its deliberations, the COGC was mindful that although all services provided by the
County government are important, the primary role of County government is to provide
essential services related to health and safety, which are those provided by the Police
Department, Fire Department, Civil Defense Agency, Department of Public Works,
Department of Parks and Recreation, Water Department, Environmental Management
Department, and Prosecuting Attorney. The COGC also considered the importance of
good management, which can facilitate inter -department coordination and cooperation,
lead by example, and help set and achieve the government's goals.
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This is not to denigrate the importance of those departments, such as Finance, Civil
Service, Planning, Research and Development, Corporation Counsel, and others, which
serve to keep the wheels of government turning.
The COGC also considered the relationship between cost and efficiency and, in several
instances, made recommendations that would increase cost in the short run, but would
achieve efficiency and reduce cost over time.
Finally, the COGC acknowledges that the severe financial constraints on County
government resulting from the economic downturn, inflation, and other uncontrollable
factors, has already resulted in requiring departments to exercise fiscal restraint and seek
economies and efficiencies. We therefore acknowledge that some of the COGC's
recommendations have already been, or are being independently implemented.
Nevertheless, we believe it appropriate to retain them in our report, if for no other reason
than to demonstrate that the department and the COGC were of like mind.
MAHALOS
We thank all those department heads and staff who provided the COGC with information
and ideas, with special thanks to Lincoln Ashida, Corporation Counsel, and staff:
secretaries Paulette Cainglit, Myrle Kaloi, and Jennifer Kuali`i, who transcribed minutes,
compiled agenda materials, and handled the myriad details necessary to assure our
smooth operation; and Deputy Corporation Counsels Michael Kagami and Lester Ishado,
who provided legal guidance for our deliberations.
We commend the attached reports for your review and consideration.
COST OF GOVERNMENT COMMISSION
el E. Gimp , Chair
Members: Frances Pacheco, Vice Chair
Michael D. Barton
Dennis Ide
Dennis Maedo
Richard Rego
Denyse L. Temple
J. Jay West
0 0
OFFICE OF AGING
Organization and Responsibilities
The Office of Aging is responsible for assessing older persons' needs, developing programs to
meet those needs, and representing the interests of older persons to public officials and public
and private agencies. The Office maintains data on the profile and needs of older persons in the
County and makes the information available to other organizations and the public.
The Office's goals are: 1) to improve the accessibility of services to those older persons who
have the greatest social or economic need, or who are severely disabled; 2) to enable older
persons to live at home as long as possible by maintaining an effective network of community
based support services; 3) to improve the quality of services by developing training and
assistance programs for caregivers; 4) to develop and maintain services aimed at protecting older
persons' rights; 5) to improve the Office's capacity to serve as an effective Area Agency on
Aging; and 6) to serve as a leader and advocate on behalf of older persons in Hawaii County,
especially in the areas of planning, long-term care, and resource development.
To accomplish its goals, the Office assesses the levels of services needed, develops programs to
address those needs, awards contracts to qualified service providers, provides technical
assistance, evaluates provider performance, coordinates the administration of services, represents
older persons' interests in the public and private sectors, coordinates provider training programs,
and assures convenient access to information and assistance programs. Planning is the Office's
major role.
Non -contracted services and services funded through the Office but provided by various state,
county and private agencies include, but are not limited to: adult day care; assisted
transportation; transportation; caregiver support; case management; community planning;
congregate meals; education and training; employment; home -delivered meals;
homemaker/housekeeping; home modification; legal assistance; long-term care access; nutrition
education; personal care; and respite.
The Office has nine positions, two of which are federally funded. All but one position is filled.
The Administration section (one position) directs all office functions, programs and activities.
The Planning, Evaluation and Program Development section (five positions) performs the
activities specified in the above paragraph, and the Staff Support section (three positions) carries
out the accounting, data processing and clerical functions. A Committee on Aging, appointed by
the Mayor, provides advisory planning assistance to the Mayor and the Office.
Findings
Following its review of documents, including organization charts, the 2002-2003 Budget
Proposal, the August 30, 2002 Annual Report, the Office's Functional Statements, and testimony
furnished by the Executive Director and Program Planner, the Cost of Government Commission
finds:
1. The Office operates efficiently, with minimum staff, by contracting with service providers to
perform most functions, thereby avoiding duplication of effort.
2. The Office's grant -writing has been successful, in that grant revenue of $1,111,000 accounts
for more than two-thirds of the Office's budget, with the balance coming from the County's
general fund and other sources.
3. The County Council's approval response time for grant acceptance limits the Office's ability
to seek short -view grants.
4. The Office is inhibited from seeking grants that require matching funds.
5. The County's procurement process can be unnecessarily burdensome and time-consuming.
The County's hiring procedure for filling short-term, grant -related positions is unduly
time-consuming.
Recommendations
Having considered and reviewed the documents and testimony provided by the Office of Aging,
the Commission recommends as follows:
1. The Office should work with the Corporation Counsel and County Council to develop a
streamlined procedure for obtaining approval for short -view grants.
Rationale: Although careful deliberation by the Council is necessary, the process, which
requires two -readings, inhibits and often prevents the Office from seeking short -view grants.
2. The Office should work with the County Council to set aside funds for use with grants
requiring cash matching.
Rationale: Artificial limits on grant revenue projections unnecessarily prevent the Office
from seeking grants requiring cash matching.
3. The Office should work with the Corporation Counsel and County Council to streamline the
procurement process and permit the use of a Memorandum of Agreement when contracting
with a qualified organization for the performance of services in certain, well-defined
circumstances.
Rationale: Although the formal procurement process is designed to assure that public funds
are expended properly, its application to relatively small procurements from certain
established and responsible organizations in the community is time-consuming and
needlessly difficult.
4. The Office should work with the Department of Civil Service to develop a streamlined hiring
procedure for filling short-term, grant -related positions.
Rationale: The Civil Service Department procedures are time-consuming and burdensome
when the position to be filled is short-term, whether the work is to be done by an employee
or by an independent contractor.
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0 0
OFFICE OF THE CORPORATION COUNSEL
Organization and Responsibilities
The Office of the Corporation Counsel, a major staff agency headed by the Corporation Counsel
who reports to the Mayor, provides legal representation and support for all County departments,
boards, commissions, officers and employees. Its primary purpose is to empower County
agencies and employees to perform their duties effectively. The office is organized into three
divisions: Counseling and Drafting; Litigation; and Family Support. It also supports the Board of
Ethics.
The Corporation Counsel maintains three offices. The main office in Hilo houses the Counseling
and Drafting Division and the Litigation Division, and provides services island -wide. The other
two offices, one in Hilo and one in Kealekekua, house Family Support Division staff.
The Counseling and Drafting Division provides legal advice and counsel to all County agencies
and staff, drafts and reviews documents, including appellate briefs, and appears before and
represents boards and commissions.
The Litigation Division helps County employees, officers, agents and departments, and when
necessary, resolve legal disputes through formal litigation and informal dispute resolution
methods such as mediation and arbitration. The Division provides civil liberties training for new
police recruits and ongoing in-service training on relevant legal issues for all County
departments. The Division also evaluates and investigates claims for damages against the
County, and pursues the County's claims against private parties or other government entities.
The Family Support Division's primary work consists of collecting child support debts owed the
State and custodial parents.
Findings
Following its review of documents, including organization charts, the 2001-2002 and 2002-2003
Budgets, the Corporation Counsel's August 21, 2002 letter to the Commission, the Office's
Functional Statement, and testimony furnished by the Corporation Counsel and selected staff, the
Cost of Government Commission finds:
1. The Office operates economically and efficiently, having returned more than $200,000 to the
general fund in the last fiscal year, and adding only three attorneys since 1987, despite the
greatly increased demand for legal services.
2. The new Best Record Access Information Network ("BRAIN") program has improved the
flow of needed information within the office and between the office and other departments.
3. The Office has developed a risk management program in an effort to reduce exposure to
liability.
4. County Departments are not accountable for litigation losses.
5. Attorneys are charged with supervising support staff.
6. Attorney and support staff (secretarial) departmental assignments are changed periodically to
afford a broad range of experience.
Recommendations
Having considered and reviewed the documents and testimony provided by the Office of the
Corporation Counsel, the Commission recommends as follows:
1. The Office should continue to refine its risk management program in order to further reduce
the risks of litigation, and continue its efforts to add staff and resources in order to more
effectively provide preventive legal services to County agencies.
Rationale: The cliche, "An ounce of prevention is worth a pound of cure," is especially apt
with respect to the provision of legal services. Awareness of the legal issues associated with
various activities and situations can significantly reduce the County's risk exposure. By
assigning an attorney to serve as the "primary" counsel for each County agency, the Office
fosters greater reliance on legal advice before actions are taken, thereby minimizing exposure
to risk and maximizing monetary savings.
2. The Office should continue efforts to create an office manager position.
Rationale: An office manager will relieve attorneys from time-consuming staff management
responsibilities, allowing them to concentrate on legal matters, and enhance support staff
efficiency.
The Office should, if necessary, recommend legislation that assigns liability for litigation
losses to the responsible County agency.
Rationale: Making County agencies responsible for litigation losses will enhance agency
awareness of and sensitivity to risks, and give great incentive to minimize risk.
4. The Office should reconsider the practice of periodically and routinely reassigning secretarial
staff to different departments and agencies.
Rationale: Although routine, periodic reassignment of attorneys may be appropriate to afford
staff counsel with valuable experience in dealing with varied legal issues, similar
reassignment of secretaries can result in loss of efficiency and continuity for the "client"
department or agency.
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COUNTY CLERK and COUNCIL
(January 16, 2003)
Organization and Responsibilities
The County Clerk's office, a major staff agency headed by the County Clerk who reports to the
County Council, furnishes information to the public regarding County government activities,
carries out voter registration and election -related responsibilities, and assists the County Council
with the policy making process of legislation.
The legislative powers of the County are vested in the County Council, whose primary function,
pursuant to the County Charter, "shall be legislation and public policy formulation, as distinct
and separate from the executive administration of county government."
The County Clerk's office is organized into the following principal divisions: Council and
Committee Services Sections; Reprographics Division; Legislative Auditor's Office; and
Election Division.
The goals of the Council and Committee Services Sections are to:
1. Prepare and publish agenda summaries, notices of public hearings and special meetings as
required by law;
2. Prepare and provide minutes of all Council and committee meetings;
3. Help members of the public to obtain copies of public documents, file claims, and register
as lobbyists;
4. Explore ways to provide Council information on the Internet; and
5. Display a helpful, friendly and professional attitude.
The Reprographic Division seeks to provide prompt and efficient reprographic and mailing
service to all County departments.
The Legislative Auditor's Office
1. Helps the Council and committees by providing information required in deliberations and
in lobbying efforts before the state legislature;
2. Helps the Council in its representation on State and National Associations of Counties, and
the Western Interstate Region; and
3. Helps the Council comply with post -audit, budget and program review requirements of the
County Charter.
The Election Division conducts and administers all County elections in compliance with state
laws, and seeks to maximize voter registration and turnout and to provide convenient access to
registration stations and polling places.
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Findings
Following its review of documents, including the proposed 2002-2003 Operating Budget,
testimony furnished by the County Clerk and staff, and the Chair of the County Council, the Cost
of Government Commission finds:
The Clerk's office is undertaking efforts to reduce the high costs incurred for duplicating
proposed ordinances, notices and other documents. Those efforts include printing
documents on both sides, assessing duplication costs, printing the Charter in a loose-leaf
binder, and making it available on the Internet.
2. The Clerk's office has begun to computerize some County records, but hard copy records
are in physical danger where presently stored.
3. The cost of televising Council and committee proceedings on a gavel -to -gavel basis, with
captions for the hearing-impaired, is excessive.
4. The absence of street names and addresses in many areas adds to the cost of voter
registration and identification.
5. The Legislative Auditor's Office focuses on supporting the Council's legislative efforts but
does not regularly examine government operations for efficiency and economy.
6. Although morale in the Clerk's office is generally good, there are some concerns with a
few civil service employees.
The Mayor and members of the County Council confer regularly with department heads
regarding issues before the County Council.
8. As with all proposed ordinances, those providing for the acceptance of grants require two
readings before the Council.
Recommendations
Having considered and reviewed the documents and testimony provided by the County Clerk, his
staff and Chair of the County Council, the Commission recommends as follows:
The Clerk's Office should put the County Code on the Internet and in loose-leaf binders.
Rationale: Making the Code available on the Internet and publishing it in loose-leaf
binders will reduce duplicating costs and enhance accessibility for users.
2. The Clerk's Office should explore the use of volunteer help, including University of
Hawaii -Hilo student-intems, to computerize County records, starting with records covering
the last ten years.
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Rationale: Computerizing records will enhance their accessibility and physical safety, and
using student-intems for the project should reduce the cost of the effort.
3. The Clerk's Office should consider eliminating gavel -to -gavel coverage of Council and
committee meetings, and polling the hearing-impaired to ascertain their willingness to accept
more cost-effective ways, including post -meeting written summaries, to communicate the
substance of proceedings.
Rationale: Gavel -to -gavel coverage is costly and unnecessary to communicate the substance
of Council and committee deliberations, and the television exposure can lead to overlong
discourses. Polling the hearing-impaired will help to provide insight regarding an acceptable
yet economical method to provide them with information on Council and committee
proceedings.
4. The County should consider requiring that all streets, including private roads, be named or
numbered.
Rationale: Although TMK numbers are used to identify voters' residences where there is no
street name and address, the process is inefficient and time-consuming. Naming or
numbering all public and private streets will reduce the costs and increase the efficiency of
voter registration and identification.
5. The County should consider conferring tenure on the Legislative Auditor in order to
depoliticize the position and thereby facilitate the Auditor's study of possible cost -savings
and efficiencies in County government operations.
Rationale: Although the Auditor is charged with reviewing budgets and programs,
politicalization of the position can inhibit the review function.
6. The County should consider amending the County Charter to eliminate the requirement of
two readings for ordinances calling for the acceptance of grant funds in "routine" (to be
defined) circumstances.
Rationale: The two -reading requirement for acceptance of grant funds not entailing an
unbudgeted expense of County funds is unnecessarily time-consuming, costly, and
inefficient.
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•
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•
FINANCE DEPARTMENT
Organization and Responsibilities
The significant functions of the Finance Department, a major staff agency headed by the
Director of Finance who reports to the Mayor, are financial planning and administration. The
department is organized into five divisions: Accounts; Budget; Purchasing; Real Property Tax;
and Treasury.
The Accounts Division processes all County payments, including pension payments and
payroll for County employees, maintains financial and inventory records, disposes of surplus
assets, and provides administrative support to the Pension Board.
The Budget Division directs and coordinates the formulation, preparation, execution, review
and analyses of the County's operating budget, monitors appropriations and expenditures, and
advises on budgetary and long-range planning matters.
The Purchasing Division provides a centralized purchasing service in support of all County
agencies and programs, ensures compliance with applicable laws and regulations, promotes
economies in purchasing goods and services, and supports the Standardization Committee.
The Real Property Tax Division uniformly and equitably assesses all real property in the
County, collects real property taxes as levied, and provides administrative and clerical support
to the Board of Review.
The Treasury Division is the custodian of cash and securities, manages the County's
investment program, issues vehicle, dog and bicycle registrations and business licenses, and
collects the designated fees and taxes and improvement district assessments.
Findings
Following its review of documents, including organization charts, the proposed 2002-2003
Operating Budget, a chart indicating expenditures and sources of funds, an explanation of the
accounting system, summaries of responsibilities, mission statements, current and proposed
efforts to increase efficiency and reduce costs, a chart showing a proposed reorganization, and
testimony furnished by the Finance Department Director and Division heads, the Cost of
Government Commission finds:
The WANG computer system used by the Finance Department is outdated and
inadequate for the purposes intended in that it requires multiple, manual entry of time
sheet data and accounting records, creates the likelihood of error, inhibits ready access to
needed information, frustrates efforts to increase efficiency, and fails to identify various
sources of funds for specific projects.
15
FINANCE DEPARTMENT
Organization and Responsibilities
The significant functions of the Finance Department, a major staff agency headed by the
Director of Finance who reports to the Mayor, are financial planning and administration. The
department is organized into five divisions: Accounts; Budget; Purchasing; Real Property Tax;
and Treasury.
'rile Accounts Division processes all County payments, including pension payments and
payroll for County employees, maintains financial and inventory records, disposes of surplus
assets, and provides administrative support to the Pension Board.
The Budget Division directs and coordinates the formulation, preparation, execution, review
and analyses of the County's operating budget, monitors appropriations and expenditures, and
advises on budgetary and long-range planning matters.
The Purchasing Division provides a centralized purchasing service in support of all County
agencies and programs, ensures compliance with applicable laws and regulations, promotes
economies in purchasing goods and services, and supports the Standardization Committee.
The Real Property Tax Division uniformly and equitably assesses all real property in the
County, collects real property taxes as levied, and provides administrative and clerical support
to the Board of Review.
The Treasury Division is the custodian of cash and securities, manages the County's
investment program, issues vehicle, dog and bicycle registrations and business licenses, and
collects the designated fees and taxes and improvement district assessments.
Findings
Following its review of documents, including organization charts, the proposed 2002-2003
Operating Budget, a chart indicating expenditures and sources of funds, an explanation of the
accounting system, summaries of responsibilities, mission statements, current and proposed
efforts to increase efficiency and reduce costs, a chart showing a proposed reorganization, and
testimony furnished by the Finance Department Director and Division heads, the Cost of
Government Commission finds:
The WANG computer system used by the Finance Department is outdated and
inadequate for the purposes intended in that it requires multiple, manual entry of time
sheet data and accounting records, creates the likelihood of error, inhibits ready access to
needed information, frustrates efforts to increase efficiency, and fails to identify various
sources of funds for specific projects.
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2. Communications within the Department, between the Department and other departments, and
with the public are inefficient and not uniform, which creates the likelihood of inaccuracies
and leads to dissatisfaction with government services.
3. The Department's organizational structure doesn't accurately reflect some current
responsibilities. For example, the Property Management Specialist in the Accounts Division
has been assigned duties beyond property management, and a proposed reorganization may
shift the position to a new General Services Division.
4. The system for valuating property for tax purposes fails to consistently identify
improvements.
5. The billing system doesn't closely track changes of ownership to assure that property tax
bills are sent to the current owner or lessee, especially when the state or the Department of
Hawaiian Home Lands owns the property.
6. The property tax billing system, which involves two mailings per year to each individual
taxpayer, is costly in terms of postage and labor.
7. The purchasing and procurement system can result in untoward delays and unnecessary costs
for needed equipment and services.
8. Various fees, including motor vehicle weight taxes and fees, are too low as compared with
those charged by other counties and private industry for similar services.
Recommendations
Having considered and reviewed the documents and testimony provided by the Finance
Department, the Commission recommends as follows:
1. The Department should, as soon as possible, obtain and install a new computer system
to handle payroll and other accounting and financial reporting functions, and centralize
employee records.
Rationale: A new system, though initially costly, will greatly reduce errors resulting from
multiple data entry, permit consolidation of employee records in one site, facilitate charging
time and expenses to discrete sources of funds, provide increased flexibility, permit efficient
reporting of financial data to County departments, and streamline the purchasing process.
2. The Department should develop and implement written procedures for dealing with and
responding to requests for assistance from the public and government employees.
Rationale: Written procedures can help to assure that the correct answers to commonly asked
questions are uniformly and promptly provided.
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The Department should move promptly to implement a reorganization that places
similar functions together in order to maximize the use of employee skills and
improve service.
Rationale: The proposed reorganization, which establishes four divisions (Fiscal Services,
Taxation, Vehicle Services/Licensing, and General Services) is a good start in that it attempts
to group like services under discrete divisions. Further refinement and study, however, is
needed. For example, Inventory Record keeping in the Fiscal Services Division might be
combined with Procurement & Contract Management in the General Services Division.
4. The Department, in conjunction with the Building Department, should establish a program to
share information regarding improvements to real property in order to accurately value the
property for tax purposes and assure that building code requirements are met. Homeowner
exemptions should be denied where improvements have been made without required permits.
Rationale: Information sharing will enhance and make more efficient the real estate
valuation operations of the Finance Department and inspection and permitting operations of
the Building Department.
The Department should support a requirement that the Bureau of Conveyances establish an
electronic data system to maintain records of property conveyances so as to facilitate tracking
ownership for tax purposes. With respect to state and Hawaiian Home Land properties, the
Department should support legislation requiring lessees of such properties to notify the
Bureau of Conveyances of lease terminations and transfers, indicating the name and address
of the new lessee.
Rationale: An electronic data system for maintaining records of conveyances will facilitate
obtaining information for tax billing and collection. Because the County cannot require the
state and the Department of Hawaiian Home Lands to furnish data identifying their lessees
(even assuming they have such data), it will be necessary to require the lessees to furnish the
information.
6. The Department should implement a program to mail tax bills to property owners and lessees
only once per year, with half due at that time. A tear -off coupon for the second installment,
due in six months, should be included with the billing
Rationale: Reducing the number of mailings by one-half can result in substantial savings in
terms of postage and labor. Although there are approximately 30,000 conveyances each year,
implementation of recommendation #5, above, should help assure that the tax bills are sent to
the current owners.
7. The Department should shorten the deadline for other County departments to submit
requisitions and specifications for capital equipment, and explore other avenues for reducing
the time involved in obtaining such equipment. Use of procurement cards, with appropriate
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controls, and implementation of a computerized system for large purchases, should be
implemented.
Rationale: Reducing the length of time between perceived need and acquisition will result in
improved service to the public.
8. The Department should consider requiring "Most -Favored -Nation" clauses in contracts for
the purchase of goods and services. Such clauses require that the seller charge the County its
lowest price.
Rationale: The County, as a major purchaser of many goods and services, should be assured
that it is receiving the best possible price from its vendors.
9. The Department should increase the charge for returned checks to $20 from the current
$7.50.
Rationale: The County's cost of processing returned checks is at least as much as is incurred
by the private sector, so County fees should be in line with those charged by industry,
currently $20 to $25.
10. The Department should raise motor vehicle registration fees to levels
commensurate with those charged by other counties in the state, and consider biannual
instead of annual renewals.
Rationale: Motor vehicle registration fees should be sufficient to recover the County's costs,
including labor, postage and materials. Otherwise, those persons not owning vehicles are
subsidizing those who do. Biannual instead of annual renewals can further reduce costs and
increase efficiency.
11. The Department should ensure that fees charged for publications produced by the County are
sufficient to cover the actual cost of printing, publishing and distribution.
Rationale: In addition to assuring that the County recovers its costs and that all taxpayers
don't subsidize those publications desired by only a few, the examination of publishing costs
will provide information regarding the cost-effectiveness of in-house versus outside vendor
printing.
flu
FIRE COMMISSION
Organization and Responsibilities
The Fire Commission was established pursuant to an amendment to the County Charter
adopted in 2000. The nine members, each representing a district, are appointed by the Mayor
and confirmed by the Council, and may be removed upon the Mayor's recommendation and
the Council's approval. The commissioners serve staggered five-year terms, and each may
serve no more than five years, except that those initially appointed to one and two-year terms
may serve an additional five years. Although unpaid, the commissioners may receive
compensation for expenses and, if not paid by their employers while performing commission
work, are paid by the County at their hourly rate, but no more than five times the state's
minimum wage, for actual work hours lost.
The commission is empowered, in its sole discretion, to appoint and remove the Fire Chief,
except that a motion for removal must contain a statement of reasons, to which the Chief must
be allowed to respond.
The commission is also empowered to:
a) Adopt rules for the conduct of its business and for the review of Fire Department
Administration;
b) Review the Department's annual budget and make recommendations thereon to the
Mayor, Managing Director, and Council;
c) Review Department operations to recommend improvements to the Chief,
d) Evaluate, at least annually, the Chief's performance and report to the Mayor,
Managing Director, and Council;
e) Review personnel actions for conformance with Department policies as enumerated
in the charter;
f) Hear citizen complaints concerning the Department or its personnel, and make
recommendations to the Chief on appropriate corrective actions if necessary;
g) Submit an annual report to the Mayor, Managing Director and Council on its
activities.
Findings
Following its review of documents, including the relevant charter provisions (Article VII,
Chapter 4, Section 7) organization chart, statement of responsibilities, and after hearing the
testimony of the vice chair of the Commission and the Corporation Counsel, the Cost of
Government Commission finds:
1. The Fire Commission, which meets monthly and borrows a secretary from the
Corporation Counsel's office, has, in the short time since its establishment, adopted rules
necessary for its efficient operation and is otherwise effectively and economically
fulfilling its statutory responsibilities.
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2. Actual Fire Commission expenditures during 2001-2002, and planned for 2002-2003, are
de minimus, consisting primarily of reimbursements for Commissioners' expenses for
travel to Commission meetings.
3. The Fire Commission perceives that Department personnel are pleased with the
Commission's operations, and that morale is generally good.
4. Fire fighting or emergency medical service experience is not a prerequisite, and may not be
desirable, for appointment to the Commission.
5. The charter provisions governing the Fire Commission's composition, authority, and
operations are, in all material respects, identical to those of the Police Commission.
Recommendations
Having considered and reviewed the documents and testimony provided by the Fire
Commission and Corporation Counsel, the Cost of Government Commission recommends as
follows:
The Mayor and County Council should prepare and recommend to the voters a charter
amendment that combines the Fire Commission and Police Commission into one, nine -
member "Public Safety Commission," with the authorities and responsibilities now
delegated to the Fire and Police Commissions.
Rationale: As earlier indicated, the charter provisions governing the Fire and Police
Commissions are virtually identical, and fire and police experience are not prerequisites for
commission membership. Although the Cost of Government Commission acknowledges
that the Police Commission, unlike the Fire Commission, has focused on hearing and
resolving citizen complaints, we believe that a single Public Safety Commission, meeting
monthly, can effectively perform the required functions, thereby eliminating the redundant
costs, little as they may be, of maintaining two commissions with similar duties.
2. The Mayor should consider appointing one member to the Public Safety Commission with
fire protection experience (and one person with law enforcement experience).
Rationale: Although experience in fire protection (and law enforcement) is not a
prerequisite for appointment to the Fire (and Police) Commissions, the Cost of Government
Commission believes that the practical experience can help the Public Safety Commission
in its work. We acknowledge, however, that there are valid arguments against appointing
commissioners with specific experience in the field, including a tendency to rely solely on
past experience in making decisions. Nevertheless, we include the recommendation in the
belief that the Mayor (and County Council) should be encouraged to consider such
appointments.
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FIRE DEPARTMENT
Organization and Responsibilities
The Fire Department's goal is to prevent loss of life and minimize property losses from fire. It
provides fire suppression services, emergency medical (pre -hospital) services, land and sea
rescue services, and vehicle and other emergency extrications. The Fire Chief is appointed by,
and reports to, a nine -member Fire Commission appointed by the Mayor and confirmed by the
County Council. The Department is organized into seven divisions: Fiscal; Personnel; Fire
Prevention; Volunteer Training; Emergency Medical Services; Fire Auxiliary Services; and
Fire Protection.
The Fire Chief coordinates the allocation of the Department's resources, activities, and
services. The broad responsibilities encompass all aspects of fire safety. In addition, the
Chiefs duties include policy formulation, planning, and administrative coordination, control
and communications. The Deputy Chief position (presently vacant) is responsible for directing
fire suppression forces.
The Fiscal Division plans and coordinates the Department's fiscal activities. It controls budget
development and expenditures, manages the purchasing, accounts receivable and payroll
functions, prepares reports as required, serves as liaison with other government and private
agencies on fiscal matters, and evaluates all fiscal organization procedures.
The Personnel Division administers the Department's personnel functions, classifying
positions, creating position descriptions, administers the plan and benefits, ensures compliance
with laws affecting employment, maintains an employee appraisal system, counsels for
workers' compensation, and provides technical assistance to division heads on personnel
matters.
The Fire Prevention Division coordinates fire education programs, conducts life safety and fire
hazard inspections, corrections and enforcement programs, conducts fire cause and arson
investigations, maintains fire prevention codes, and recommends fire safety laws to minimize
loss of life and property. The Division reviews new -construction plans to assure compliance
with applicable fire safety codes, access to hydrants, and access by fire -fighting apparatus.
The Volunteer Training Division directs the training of volunteer firefighters
The Emergency Medical Services Division provides pre -hospital life-support services,
emphasizing the treatment of trauma and acute medical illness patients.
The Fire Auxiliary Services Division maintains the Department's equipment and provides
communication services.
The Fire Protection Division provides direct emergency services, including fire suppression,
control and removal of hazardous materials, and rescue.
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The Budget Division directs and coordinates the formulation, preparation, execution, review
and analyses of the County's operating budget, monitors appropriations and expenditures, and
advises on budgetary and long-range planning matters.
Findings
Following its review of documents, including organization charts, statements of major
functions, the proposed 2002-2003 Operating Budget, and testimony furnished by the Fire
Chief and Division heads and staff, the Cost of Government Commission finds:
1. The dual role training resulting in the ability of firefighters to also provide EMT
(paramedical) services, which program is unique to Hawaii County, is highly
commendable.
2. The Department is seriously understaffed and key vacancies exist, resulting in excessive
overtime costs, lowered morale, and delayed building inspections.
3. The Department does not charge fees for inspections and many other important services,
and the State of Hawaii does not pay for state -mandated inspections.
4. Fees collected go to the County's general fund.
5. Fire equipment is routinely called to the scene of auto accidents.
6. Fire equipment used by Hawaii County and other state and federal fire agencies is not
standardized.
7. Courier, janitorial and other common services are not shared with other county
departments.
8. The Department's computer software system is old and inadequate.
9. Equipment and material requisitions at the station level are subject to duplication.
Recommendations
Having considered and reviewed the documents and testimony provided by the Fire
Department, the Commission recommends as follows:
1. The County should, as soon as possible, provide funding needed to fill key vacancies,
including the position of Deputy Chief.
Rationale: Because the Department's services are among the most essential of those
provided by County government, their efficient performance is in the public interest. The
desired efficiency, however, is unduly compromised by delays in the performance of vital
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services such as inspections and lowered morale, if the Department is understaffed. In
addition, increases in costs due to greater staffing will be offset in large part by reductions
in overtime expenses.
2. The Department should charge fees for all required inspections, and seek, if necessary,
charter amendments to permit the County to charge, and statutory amendments to require
the State to pay for inspections mandated by state law. Such fees should be sufficient to
cover the actual cost of such inspections, and should be credited to the Department.
Rationale: Because fees for required inspections will facilitate hiring more inspectors, the
delay in inspections should be reduced, thereby enhancing safety. Crediting fees to the
Department will provide an incentive to collect the fees and enable the Department to use
the revenue for inspection and other fee for service activities.
3. The Department should evaluate the practice of routinely sending emergency
vehicles (ambulances and fire trucks) to the scene of auto accidents. Although
their presence might often be required, it may be possible to develop a "triage"
system within the communications section to evaluate the need for fire fighting
and medical equipment in given situations.
Rationale: The routine dispatch of emergency fire equipment to the scene of all auto
accidents is expensive. It is more efficient and cost-effective to evaluate the need for such
equipment when the report of an accident is received. Furthermore, unnecessary
assignment of emergency vehicles could make them unavailable in the event of their actual
need in another emergency.
4. The Department should continue to work with state and federal fire agencies to
achieve equipment standardization.
Rationale: Standardizing equipment will facilitate achieving economies in purchasing and
maintenance costs.
5. The Department should work with the County to develop cross -island courier and janitorial
service programs that can be used by all County departments.
Rationale: Because cross -island courier and janitorial service programs are common needs
of many County departments, economies can be achieved by sharing their use between
departments.
6. The Department should upgrade its computer system as soon as possible.
Rationale: Because the existing system cannot operate new software, its update is required.
7. Order logs should be kept at each station.
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Rationale: In the absence of a station supervisor, material and equipment requisitions are
subject to duplication. Maintaining order logs should eliminate the problem.
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OFFICE, OF HOUSING & COMMUNITY DEVELOPMENT
Organization and Responsibilities
The Office of Housing and Community Development was originally created to administer the
HUD -Federal rent subsidy program. It was later combined with the Community
Development Block Grant program under the administration of the Mayor's Office. Except
for in-kind services from the County, the Department is funded with federal funds. With a
staff of 43, the Department administers federal grant programs worth between $11 and $13
million dollars a year.
The Department is divided into four divisions. The Administrative Division provides support
services to the other divisions. The Community Development Division is responsible for
federal grants, which primarily benefit low and moderate -income persons. The Development
Division provides opportunities for the residents of the County to secure reasonably priced,
safe, sanitary homes located in suitable environments. The Existing Housing Division is
responsible for the management of the County's rental housing programs and projects.
The Department's mission is to provide for the development of viable communities in the
County by providing decent housing, suitable living environments and expanded economic
opportunities.
Findings
1. The Department docs not actively pursue Community Development Block Grants.
2. The Department's offices are separated from other County departments with which it
works.
3. Department administration and planning are not federally funded.
4. The Development Division is under -staffed.
5. The processing of contracts with the State is slow and cumbersome.
Recommendations
1. Pursue Community Development Block Grants with priorities for public facilities,
economic development and public services needs.
Rationale: To provide a funding source for public service needs in the County's rural
districts.
2. Office space for the entire staff should be centrally located and in close proximity to
other County departments.
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Rationale: The location and physical space of the Armory has inhibited the Department's
ability to implement and coordinate its mission and goals.
The County should provide general fund monies to pay for administrative and planning
functions.
Rationale: At times, federal funds are difficult to obtain, and may not be used to pay for
administrative and planning functions.
4. The County should look into long-range planning and monitoring of eur-ent housing
conditions by staffing the Development Division.
Rationale: With the current economic condition of the work force, the County should
initiate, with the private sector, development of affordable housing.
5. The County should work with the State to process contracts on a timely and expedient
basis.
Rationale: Time constraints in contract processing between the State and County can
result in undue delays in program implementation.
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OFFICE OF MANAGEMENT
Organization and Responsibilities
The Office of Management includes the Mayor, Managing Director, County and Assistant
County Physicians, and clerical support staff. A Deputy Managing Director, four full-time and
one part-time Executive Assistants (one position is vacant), along with Immigration
Information and Public Relations Specialists report to the Managing Director.
The Office of Management's primary functions are to provide leadership, direction and
supervision for County departments and agencies; to ensure that the duties and responsibilities
of the executive branch are faithfully discharged in accordance with the provisions of the
County Charter; and to represent, plan for and address the needs, concerns and interests of the
people of the County.
The Office seeks:
1. To create a framework that encourages economic stability, job opportunities and
public participation in the decision-making process.
2. To develop government/community partnerships that work in cooperation to improve
the health, safety and quality of life on the island of Hawaii.
3. To anticipate the challenges confronting the County's future and effectively plan for
the community's expected needs.
4. To provide for the public safety and the basic public services of the community.
The Clerical Services Center's objective is to improve the centralized clerical pool concept,
which provides clerical support for the entire County government.
The Office also supports volunteer committees on People With Disabilities, Children and
Youth, and Status of Women, all of which work to ensure that interests, needs and concerns of
those segments of the population are served.
Findings
Following its review of documents, including organization charts, the 2002-2003 Budget
Proposal, and testimony furnished by the Mayor and Managing Director, the Cost of
Government Commission finds that the Mayor has effectively assumed the reins of, and is
managing County government by, among other things:
1. Implementing a policy to reduce cost in government by ordering a zero -increase budget,
cutting back on travel expenses, and not filling the Executive Assistant vacancy.
2. Convening meetings twice a month with department heads to monitor progress in their
areas of responsibility and improve inter -department coordination and communication.
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3. Referring inquiries raising policy issues to the relevant departments for consideration and
advice.
4. Recognizing the serious issues facing the County, including the need to improve
infrastructure, improve police and fire protection, provide for solid waste recycling and
disposal, reform the property tax system, facilitate the County's economic recovery,
preserve natural resources and the island's ambience, and provide for the maintenance of
900 miles of "roads in limbo," all within severe budget constraints.
Recommendations
1. Expedite the conversion to a new computer system in departments that are still on the
Wang system.
Rationale: As noted in our recommendations for the Finance Department, a new system,
though initially costly, will greatly reduce errors and facilitate inter -department
communication of data.
2. Continue to encourage measures to increase revenues from outside sources, reduce
unnecessary cost and increase efficiency, including simplifying the grant application and
approval process, exploring the availability of grant and other outside sources of funds to
subsidize compliance with EPA rules regarding sewer system upgrades, ADA requirements
for public facilities compliance, and maintenance of "roads in limbo."
Rationale: The Mayor's office is uniquely positioned to champion measures that reduce
unnecessary cost and improve efficiency, and to explore outside revenue sources, all with a
view toward decreasing the property tax burden of the County's residents.
3. Forward to the County Council and support an ordinance extending the term of the Cost of
Government Commission members for one year and establishing the Commission as a
permanent body.
Rationale: Although the Charter Amendment adopted in 2000 calls for the appointment of
the Commission, it effectively limits the term to 11 months every four years, which is
insufficient to complete the assigned task. Extending the terms of the current members for
one year will permit the Commission to efficiently complete its initial review of County
departments and provide a complete base line for future reviews of County operations.
Furthermore, the Commission believes that ongoing review of County government to
assure that its operations are cost-effective and economical is in the best interest of the
public.
f•
MASS TRANSIT AGENCY
Organization and Responsibilities
The Mass Transit Agency is responsible for planning, directing, coordinating and
administering the County's public transportation system, which includes bus transportation,
ride sharing and shared -ride taxi programs. The Agency also provides administrative support to
the County's nine -member Transportation Commission, which is responsible for granting taxi
licenses, enforcing Hawaii County rules and regulations concerning taxis, and serving as an
advisory board for the Agency.
Essentially, the Agency's goals are: 1) to improve transportation mobility for the public, with
emphasis on serving the mobility impaired; and 2) to facilitate public use of transportation
alternatives to the private automobile such as buses, vanpools, car-pools, and shared -ride taxis
for to travel to work, health care centers, educational institutions, business and commerce
centers, and recreational sites.
Findings
Following its review of documents, including organization charts, the 2002-2003 Budget
Proposal, the Agency's Functional Statement, and testimony furnished by the Transit
Administrator, the Cost of Government Commission finds:
1. The shared -ride taxi program involves six taxi companies in Hilo and one in Kona.
Reduced rate coupons are sold at KTA stores, UH -Hilo and in the Agency office, and the
proceeds go into the County's general fund.
2. Cash fares for bus transportation range from 75 cents to $6, while discount fares range
from 50 cents to $4, depending on distance. Bus drivers are provided pursuant to a contract
with a private vendor, and are not County employees. The contract calls for payment to the
vendor of $21 per hour of driving, and the drivers are paid $13 per hour by the vendor.
3. Vanpools have largely supplanted the ride -sharing program,. described as a "dating service"
for transportation, and the Department of Parks Recreation handles transportation for the
physically handicapped.
4. The Agency has six authorized positions, but one additional position (Transportation
Specialist) has remained unauthorized for the past two years for lack of funding. Absence
of the position requires the Director to spend time on operations matters rather than
administration and planning, and often results in inadequate office staffing and clerical staff
performing supervisory functions.
5. The County provides approximately $1.2 million of the Agency's annual funding needs,
with revenues from transportation services accounting for 75 percent of that amount.
RM
The balance comes from Federal sources. To obtain volume discounts, the Agency
piggybacks with the County of Honolulu for bus purchases.
6. The Transportation Commission, which normally meets quarterly, has authorized the
Agency Administrator to investigate and resolve alleged violations of taxicab regulations,
and must afford the accused an opportunity for hearing within thirty days. Such hearings
have not been needed for the past six or seven years.
Bus route design is determined by supply and demand, and the County Council determines
bus fares.
S. State law prohibits advertising displays on buses, thereby reducing ad revenues.
9. Agency mechanics provide routine maintenance services for Fire Department automobiles
when time permits.
10. Agency buses transport approximately 380,000 passengers per year.
Recommendations
Having considered and reviewed the documents and testimony provided by the Mass Transit
Agency, the Commission recommends as follows:
1. The County Council should restore the Transportation Specialist position to the budget for
fiscal year 2004.
Rationale: Restoration of the position will permit the Agency Director to spend more time
on long-range planning and administration, allow a supervisor to be on -duty during
daytime working hours, and facilitate adequate office staffing to handle phones and walk-in
customers.
2. The Agency should conduct an experiment to determine the effect of bus fare reductions on
ridership and revenue.
Rationale: Although bus fares have remained relatively constant, ridership remains low. A
six-month experiment with lower fares on one or more lightly used routes may show that
ridership increases occasioned by lower fares can result in increased profitability.
3. The Agency, Mayor and County Council should seek an amendment to state law allowing
the display of advertising messages on buses, thereby increasing revenue and helping local
businesses.
Rationale: Although there may be a concern that advertising placards on buses might
despoil the landscape, the Cost of Government Commission believes that the concern is
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minimal given that most commercial vehicles already display their company name and
logo.
4. The County should display its website address on County buses.
Rationale: Prominent display of the website address will remind residents that information
regarding County government activities is readily available on the website.
5. The County should consider abolishing the Transportation Commission, assigning its
regulatory and enforcement responsibilities to the Mass Transit Agency and, when
necessary, convening an independent panel for appeals from the Agency's decisions.
Rationale: The Transportation Commission has already authorized the Agency to
investigate and resolve complaints, and it has not been necessary to conduct a hearing for
the past six or seven years. There appears little justification for retaining the Transportation
Commission under the circumstances.
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32
PARKS AND RECREATION DEPARTMENT
Organization and Responsibilities
The principal function of the Parks and Recreation Department, one of the largest departments in
the County, is to oversee the care and staffing of all County parks including soccer fields,
baseball diamonds, beach parks, community centers, community swimming pools, golf courses,
cemeteries, and county activity centers. Included under this Department are the County band, the
zoo, elderly activities division, and the culture and arts department.
The Parks Maintenance Division is responsible for tree trimming, rubbish collection, lawn
mowing, and herbicide application, building maintenance (painting, cleaning, rubbish removal,
cleaning, and general repairs) and parks construction, including nursery maintenance for
replanting as necessary.
The Recreation Division oversees all County parks and community center facilities and is
responsible for scheduling activities within those areas under its immediate control and
responsibility and for meeting the staffing requirements for each community center.
The Aquatics Division is responsible for staffing at all County swimming pools and ocean beach
parks with qualified lifeguards, scheduling activities, and maintaining all pools.
The Municipal Golf Course is a separate division that maintains and oversees the County golf
course in Hilo.
The Special Activities Division includes Elderly Activities, the Panaewa Zoo, the County Band,
and the Culture and Arts activities. Each of these activities is a specialized function run
independently to fit the needs of each.
Findings
Following its review of documents, including organization charts, the proposed 2002-2003
Operating Budget, summaries of responsibilities, mission statements, proposed efforts to
increase efficiency and reduce costs, and testimony furnished by the Parks and Recreation
Director and Division heads, the Cost of Government Commission finds that the Department,
while an income-producing branch of the County, does not, with the exception of the Culture and
Arts Division, generate enough income to offset its expenses.
Recommendations
1. Initiate a standard fee for non -fund raising events that minimally covers all direct expenses,
and a percentage -of -income -based fee for income-producing events using any County park or
recreational facility under its control and from which no organization or person is exempt
exclusive of the County Golf Course, prior contractual agreements between other County and
State departments, and County run youth and adult activities.
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Rationale: The Department should seek to recover its actual costs in order to reduce
subsidization of private events by taxpayers.
2. Work with other County and State offices to identify and eliminate duplication of effort.
Rationale: There may be areas where duplication of effort can be identified and eliminated,
resulting in cost savings for all.
3. Implement an "on-line facility use" program capable of taking charge cards and automatic
checking account withdrawals.
Rationale: Ease of payment will facilitate timely payment and reduce delinquencies.
4. Review fees for the County Golf course every two years and adjust them, as necessary, to
meet current and anticipated expenses.
Rationale: Golf course fees should be sufficient to avoid subsidization by non-users.
5. Enlist qualified volunteers to help in all areas of Parks and Recreation facilities and services
as soon as possible.
Rationale: The Department's use of qualified volunteers will reduce costs, permit expansion
of services, and give the community a feeling of "ownership."
6. Seek individualized agreements with community organizations willing and able to operate
and maintain County recreational facilities, and to use fees collected for the maintenance of
the facility, for additional property development, and for additional program offerings.
Rationale: This will reduce costly maintenance expenditures from the Department's budget
while helping to assure that facilities are maintained in optimal condition and that new
programs are funded.
The population to be served by each facility should determine the staffing of County parks
and recreation facilities.
Rationale: This would eliminate inequities caused by over -staffing at various County
facilities and facilitate the provision of services to under staffed areas.
8. A manual should be written and personnel supervision training provided for all department
heads and supervisors to help them deal with personnel issues from a position of knowledge
and strength, with full backing by higher departmental supervisors and directors.
Rationale: There is no Policies and Procedures manual to help administrative personnel deal
with personnel issues and work with union officials toward equitable solution for all
concerned.
9. The Department should prepare a "Use of Facilities Policy and Procedure" statement that
clearly sets forth the expectations for cleanup and rubbish disposal, what will or won't be
provided by the County, what the user is expected to provide, and any special charges that
might be required, and provide a copy to anyone using or renting a park facility.
34
Rationale: There is no clear statement of policy regarding the use of park facilities, leading to
confusion and misunderstanding of the requirement for facility cleanup and the need to
provide supplies by those using the facilities.
10. The Department should establish close liaison with the Planning Department in particular, and
with other County departments in general, to assure that it is promptly notified of plans to
create a new or modify an existing park.
Rationale: The Parks and Recreation Department needs to know of plans for new and
expanded park facilities as soon as possible so it can work with other County agencies on
issues affecting the placement, size, and requirements of the park, and prepare to include
additional resources that will be needed for maintenance of the park in its budget planning.
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36
DEPARTMENT OF WATER SUPPLY
Organization and Responsibilities
The Department of Water Supply is a semi -autonomous agency (as are the water supply
departments in the three other counties in the state). The County Charter charges the Water
Board, a nine -member board appointed by the Mayor with the Council's approval, with
responsibility for managing, controlling and operating the County waterworks, and adopting
rules and regulations having the force of law related to the management, control, operation,
preservation and protection of the waterworks. The Water Board also has the power to acquire
property by eminent domain, to issue revenue bonds, and to appoint and remove the manager
of the Department of Water Supply.
The Department, with headquarters in Hilo, operates and maintains the water systems with
revenues derived primarily from water sales. It employs 146 people and is subject to the
provisions of the Civil Service regulations and the Hawaii Government Employee Association
(HGEA) and United Public Workers (UPW) union contracts. The Corporation Counsel provides
legal representation.
The Office of the Manager (Administration) directs the day-to-day operations of the Department
through three (3) major divisions.
The Management/Administration Division is responsible for managing the operation of the
Department and for implementing policies, rules and regulations adopted by the Water
Commission.
The Operations Division, which includes the Field, Plant, and Maintenance Sections and the
Mechanical Repair Branch, maintains and operates the water distribution systems, transmission
mains, sources, reservoirs, pumps, treatment plants, communication and controls; and
coordinates work with the Engineering and Finance Divisions.
The Engineering Division, which includes Engineering, Water Resources and Planning,
Land, Water Quality Assurance and Control, and Support Sections, is responsible for the design
and construction of water system projects, reviewing the water systems, and anticipating and
solving problems.
The Finance Division, which includes Customer Service, Management Accounting and
Computer Service Sections, bills water service customers and maintains the Department's
financial records.
The Water Department has divided the island into four districts, each served with a base yard for
equipment and supplies, plus an office where customers can pay water bills.
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The Department's goals (from Dept. of Water Supply Goals & Objectives 2000) are:
1. Compliance with all applicable Environmental Protection Agency's (EPA) regulations.
2. Water systems efficiency through review and analysis.
3. Planning to provide water for future needs.
4. Financial planning necessary for the accomplishment of major goals.
5. Continual organizational reviews and revisions necessary to attain efficient use of personnel.
6. Continual review and analysis to attain spatial data retrieval efficiency technologies.
Findings
Following its review of documents, including organization charts, goals and objectives, 2001-2
and 2002-3 Budgets, and testimony furnished by the Director and selected staff, the Cost of
Government Commission finds:
1. The Department operates economically and efficiently, providing quality water while
keeping the cost of water service at a minimum.
The Department has a plan for growth in place, and maintains a capital improvement reserve
fund.
3. The Department has the best employee safety record and lowest turnover rate of all County
departments.
4. Thirty percent of the County's population does not have access to county water. Of that 30%,
5-8% are connected to a private system. The County has available to the remainder an
improvement district process utilizing low interest bonds. A recently enacted County
ordinance stipulates a subdivision cannot be approved without a completed water system
acceptable to the Department of Water Supply.
5. Thirty-three percent of the cost of water is for electricity for pumping, but the Department
has worked to reduce costs through greater use of renewable energy sources.
6. Although there is no shortage of high quality water on the island, the cost of supplying water
to some areas can be prohibitive.
7. The Department has instituted several new policies and programs designed to address the
40% delinquency rate. They include removing the meter after a four month (previously six
month) delinquency, automatic bill payment, and acceptance of credit cards. The Department
also offers flexible payment plans. If necessary, it uses a private collection agency.
8. The employee morale is excellent and the Department has a substantially lower accident rate
than all other County departments.
M.
Recommendations
1. The Department of Water Supply should change its motto from "Water is Progress"
to "Water is Life."
Rationale: The current motto may imply an unchecked growth philosophy. "Water is
Life" implies that quality water should not be wasted and reinforces the need to
conserve our natural resources.
The Department should use precise language to describe potential problems of
reserve water volume and pressure in its reports to the Planning and Public Works
Departments in connection with applications for rezoning and variances.
Rationale: To ensure the availability and quality of water for health and safety, and to
minimize adverse economic effects of business downtimes, decisions regarding
rezoning and variances should be based upon, among other things, on the availability
of sufficient, quality water for consumption, fire control, and other emergencies.
3. The Department should look into state and other resources to resolve the long-
standing issue of delinquencies from Hawaiian Homes leases. Other methods,
including direct payments by Hawaiian Home Lands to the Department for services
and water should be investigated.
Rationale: The Department is caught in the middle, between the lessees of Hawaiian
Home Lands and the Department of Hawaiian Homes, and the Department's other
customers are subsidizing the delinquency.
4. The Department should share it's secret for maintaining high employee morale with
other County departments.
Rationale: Low morale can lead to high employee turnover and accident rates,
inefficiency, and lost time.
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