HomeMy WebLinkAbout2024-03 DPW Bridges and Culverts
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Hawaiʻi County is an Equal Opportunity Provider and Employer
November 25, 2024
Honorable Heather Kimball, Council Chair
and Members of the Hawaiʻi County Council
Hawaiʻi County Council
25 Aupuni Street
Hilo, Hawaiʻi 96720
Dear Council Chair Kimball and Council Members,
In accordance with generally accepted government auditing standards and the Hawaiʻi County
Charter Section 3-18(d)(2), the Office of the County Auditor conducts or causes to be conducted
performance and/or financial audits of the funds, programs, services, and operations of any
county agency, executive agency, or program, as set forth by the county auditor in an annual audit
plan that shall be transmitted to the county council and the mayor and filed with the county clerk
as a public record.
We have completed our engagement focusing on bridge and culvert maintenance efforts at the
County of Hawaiʻi’s Department of Public Works. The objective sought answers to the following
questions:
1. Compliance – Does the Department of Public Works (DPW) comply with the Federal
Highway Administration (FHWA), state and local standards? What other governance
frameworks, regulations, or standards does DPW adhere to?
2. Infrastructure Assessment – How does DPW assess the current condition of bridges
and culverts, and are these assessments aligned with FHWA standards?
3. Repair and Maintenance Practices – How is DPW tracking, monitoring, prioritizing, and
completing repairs and maintenance activities for the County’s bridges and culverts?
4. Resources Utilization – How does DPW effectively manage its resources, including
workforce, equipment, and budget, to ensure the optimal maintenance of bridges and
culverts?
5. Emergency Response – How effective are DPW’s emergency response processes for
bridge and culvert maintenance?
Tyler J. Benner
County Auditor
County of Hawaiʻi
Office of the County Auditor
Ph 808.961.8386
County of Hawaiʻi
Office of the County Auditor
120 Pauahi St., 309
Hilo, HI 96720
F 808.961.8905
www.hawaiicounty.gov
While we found that the DPW generally complies with the FHWA’s National Bridge Inspection
Standards (NBIS) for bridge and culvert inspection processes, they are non-compliant with
Hawaiʻi Revised Statute Chapter 464. This finding revealed opportunities for improvement,
leading us to make seven recommendations.
We appreciate the department's cooperation during the audit. While the overall coordination was
satisfactory and most information was provided as requested, there were some minor delays and
a few instances where additional follow-up was needed to obtain all necessary documentation.
Despite these challenges, the audit was completed effectively.
In response to a draft of this report, management expressed general agreement with our audit
results.
To improve government accountability and ensure audit recommendations are implemented or
resolved, we will continuously monitor the state of recommendations using our remediation
tracker. To view the department’s status, visit us at https://www.hawaiicounty.gov/our-
county/legislative/office-of-the-county-auditor/remediation-tracker.
If there are any questions or concerns about the status of the recommendations discussed, feel
free to contact our office at 808.961.8386.
Respectfully,
Tyler J. Benner
County Auditor
County of Hawaiʻi
cc: Mitchell D. Roth, Mayor
Deanna Sako, Managing Director
Diane Nakagawa, Finance Director
Jon Henricks, County Clerk
Stephen Pause, P.E., Director of Public Works
Alan “Keone” Thompson, P.E., Engineering Division Chief
Neil Azevedo, Highways Division Chief
Table of Contents
Report Highlights ..................................................................................................................... 1
About Us ................................................................................................................................... 2
Objective, Scope & Methodology ............................................................................................ 3
Definitions ................................................................................................................................ 5
Chapter 1 Introduction ............................................................................................................. 9
Noteworthy Achievements .....................................................................................................13
Chapter 2 Audit Results ..........................................................................................................15
Non-Compliance with HRS 464 .............................................................................................24
Recommendation 1: Ensure compliance with HRS § 464-4 ...............................................26
Incomplete Culvert Inventory .................................................................................................28
Recommendation 2: Enhance and Expand the Existing County’s Culvert Inventory ...........29
Lack of Culvert Policies and Procedures ...............................................................................30
Recommendation 3: Formalize Written Policies and Procedures .......................................31
Undefined Roles and Responsibilities ...................................................................................32
Recommendation 4: Establish Clear Roles and Responsibilities ........................................33
Lack of Interdepartmental Communication ............................................................................34
Recommendation 5: Establish an Effective Communication Protocol .................................35
Lack of Routine Maintenance and Repairs ............................................................................36
Recommendation 6: Develop and Implement a Maintenance Schedule .............................38
Reliance on Contractors ........................................................................................................39
Recommendation 7: Establish a Process for Independent Reviews ...................................41
Chapter 3 Fraud, Waste, and Abuse ......................................................................................42
Conclusion ............................................................................................................................44
Chapter 4 Management Response .........................................................................................46
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1 | R e p o r t H i g h l i g h t s
Why OCA Conducted this Audit
The safety and reliability of the County's bridges and
culverts are critical to public safety, as these structures
ensure safe travel, protect communities from flooding, and
support emergency response efforts. Proper maintenance
and efficient management of resources, including work
order processes, are essential to prevent structural failures
that could endanger lives and property. This audit was
conducted to evaluate whether the Department of Public
Works' repair, maintenance, work order processes, and
resource utilization practices comply with federal, state, and
local regulations and standards. The audit aims to
strengthen public safety, ensure infrastructure resilience,
and promote efficient use of public resources.
What OCA Found
A review of DPW’s Bridge section revealed areas where
efforts could be better aligned, and improvements could be
made. More specifically, we identified the following
findings:
Finding 1: Non-Compliance with HRS 464
Finding 2: Incomplete Culvert Inventory
Finding 3: Lack of Culvert Policies and Procedures
Finding 4: Undefined Roles and Responsibilities
Finding 5: Lack of Interdepartmental Communication
Finding 6: Lack of Routine Maintenance and Repairs
Finding 7: Reliance on Contractors
What OCA Recommends
We make seven recommendations to help DPW’s bridge
section identify improvement opportunities and perform its
management responsibilities more effectively. Key
recommendations include:
• Ensure compliance with HRS § 464-4
• Enhance and Expand the County’s Culvert
Inventory
• Formalize Written Policies and Procedures
• Establish Clear Roles and Responsibilities
• Establish an Effective Communication Protocol
• Develop and Implement a Maintenance Schedule
• Establish a Process for Independent Review
These changes can help DPW support good decision-
making and continual improvement and ensure the current
processes continue to meet the needs of the County. DPW
generally agreed with our recommendations.
Performance Audit of the Department of Public Works
County of Hawaiʻi
November 2024
Office of the County Auditor
Bridge and Culvert Maintenance
Bridge #24-3 Kupulau Road Bridge, Nov. 2023 Bridge #24-5 Ainalako Road Culvert, Nov. 2023
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2 | A b o u t U s
About Us
Mission
It is our mission to serve the Council and citizens of Hawaiʻi County by promoting accountability,
fiscal integrity, and openness in local government. Through performance and/or financial audits
of County agencies and programs, the Office of the County Auditor examines the use of public
funds, evaluates operations and activities, and provides findings and recommendations to elected
officials and citizens in an objective manner. Our work is intended to assist County government
in its management of public resources, delivery of public services, and stewardship of public trust.
Audit Authority
Hawaiʻi County Charter § 3-18 establishes an independent audit function within the Legislative
Branch through the Office of the County Auditor.
Purpose
This engagement evaluated the safety, efficiency, and responsibility of managing county bridges
and culverts. Our audit reviewed safety, risks, asset management, performance, best practices,
and stakeholder involvement. Results assure stakeholders about bridge and culvert safety and
guide future decisions and spending.
Performance Audit Definition
Performance audits provide objective analysis, findings, and conclusions to assist management
and those charged with governance and oversight with, among other things, improving program
performance and operations, reducing costs, facilitating decision-making by parties responsible
for overseeing or initiating corrective action, and contributing to public accountability.
Our objective in performance auditing is to improve public services provided by the County
government. We do this by recommending specific actions to address the issues we raised and
by providing valuable information to the public, the administration, program leadership, the county
council, and the mayor.
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3 | O b j e c t i v e , S c o p e , a n d M e t h o d o l o g y
Objective, Scope & Methodology
Objective
Is the Department of Public Works’ repair and maintenance practices, work order processes,
infrastructure conditions, and resource utilization for the County’s bridges and culverts in
compliance with the US Department of Transportation’s Federal Highway Administration (FHWA)
standards and other applicable governance?
Scope
The audit engagement began in July 2023. The Office of the County Auditor engaged with the
Department of Public Works in September 2023.
This audit evaluated the repair, maintenance, and work order procedures for bridges and culverts
from July 2021 through June 2023. We also assessed infrastructure conditions and resource use.
Our examination encompassed regulatory compliance, inspection methods, and the overall
success of maintenance activities.
We focused on identifying areas for improvement and provided actionable recommendations to
enhance the safety, efficiency, and longevity of the County’s bridges and culverts.
Disclaimer: While the audit team possesses the collective knowledge necessary to review
processes, procedures, and compliance with regulatory standards, we do not possess the
technical expertise required to independently assess or judge the safety of the infrastructure. Nor
does our audit override any technical analyses, recommendations, or assessments made by
licensed engineers and other qualified professionals. Any conclusions or recommendations made
in this audit should be considered complementary to, and not a substitute for, expert technical
evaluation and safety determinations.
Methodology
To accomplish our objective, we conducted the following activities:
• Developed an understanding of policies, procedures, and maintenance processes and
identified key stakeholders.
• Conducted interviews and corroborated with department administration and staff.
• Collected and analyzed data, including maintenance records, budgets, inspection reports,
and other relevant information.
o Assessed compliance with applicable laws, governance, and standards such as:
4 | O b j e c t i v e , S c o p e , a n d M e t h o d o l o g y
o Federal Highway Administration (FHWA)
o National Bridge Inspection Standards (NBIS)
o Hawaiʻi Bridge Inspection Manual (HBIM)
o Hawaiʻi Revised Statute Chapter 464
• Reviewed, as necessary, information pertinent to the maintenance of bridges and culverts,
along with work order processes.
• Conducted site visits to observe monitoring and oversight practices.
• Noted exceptions and identified areas for improvement.
• Remained mindful of potential fraud, waste, and abuse during the audit.
We conducted this performance audit in accordance with generally accepted government auditing
standards. These standards require that we plan and perform the audit to obtain sufficient,
appropriate evidence to provide a reasonable basis for our findings and conclusions based on our
audit objectives. We believe that the evidence obtained provides a reasonable basis for our
findings and conclusions based on our audit objectives.
5 | D e f i n i t i o n s
Definitions
23 CFR 650: The abbreviation for the term “Code of Federal Regulations – Title 23”. The Code
of Federal Regulations (CFR) is a codification of the general and permanent rules published in
the Federal Register by the departments and agencies of the Federal Government. Title 23 is the
section designated for Highways, while Section 650 is designated for Bridges.
AASHTO Manual: The term “AASHTO Manual" means the American Association of State
Highway and Transportation Officials (AASHTO) “Manual for Bridge Evaluation”, including interim
Revisions, excluding the 3rd paragraph in Article 6B.7.1, incorporated by reference in § 650.317.
Bridge: Defined in CFR 650.305 as “A structure including supports erected over a depression or
an obstruction, such as water, highway, or railway, and having a tracking or passageway for
carrying traffic or other moving loads, and having an opening measured along the center of the
roadway of more than 20 feet between under coping of abutments or spring lines of arches, or
extreme ends of openings for multiple boxes; it may also include multiple pipes, where the clear
distance between openings is less than half of the small contiguous opening.”
BrM: A comprehensive bridge management system that can assist agencies in allocating scarce
resources to protect existing infrastructure investments, ensure safety, and maintain mobility. It
stores inventory and inspection information about an agency’s bridges, culverts, and other
structures and provides a rich set of modeling and analysis tools to support project development,
budgeting, and program development. It can be used to define and schedule projects for
individuals or groups of structures.
Critical Finding: A structural or safety-related deficiency that requires immediate action to ensure
public safety.
Culvert: A pipe or small structure used for drainage under a road, railroad, or other embankment.
A culvert with a span length greater than 20 feet is included in the NBI and receives a rating using
the NBI scale.
As defined by the Department of Public Works: Pipes or structures which are designed to
allow water to flow under or through roadways and other structures that might otherwise
impede the passage of stormwater.
Drywell: An underground structure that disposes of unwanted water, typically stormwater runoff,
by dissipating the runoff into the subsurface soils.
Federal Highways Administration (FHWA): The agency within the US Department of
Transportation that supports State and local govenments in the design, construction, and
maintenance of the Nationʻs highway system (Federal Aid Highway Program) and various
federally and tribal owned lands (Federal Lands Highway Program).
6 | D e f i n i t i o n s
Maintenance: FHWA Guidance on Highway Preservation and Maintenance, dated February 25,
2016, describes work performed to maintain the transportation system's condition or respond to
specific conditions or events that restore the highway system to a functional state of operations.
Maintenance is a critical component of an agency’s asset management plan, including routine
and preventive maintenance.
• Routine maintenance involves work performed in reaction to an event, season, or
activities that are done for short-term operational needs that do not have preservation
value. This work requires regular reoccurring attention. Per 23 USC 116 (d), owner
agencies are required to properly maintain projects financed with Federal-aid funds.
Therefore, routine maintenance activities are not eligible for Federal funds. Examples of
routine maintenance include:
o Trash, Litter, and Dead Animal Removal
o Graffiti Removal
o Hazardous Material Removal
o Asphalt Patch with No Membrane on Concrete Deck
o Accident Damage to Bridge and Its Appurtenances (Signs or bridge barriers)
o Storm Damage
• Preventive maintenance (PM) or preservation activities retard future deterioration and
avoid large expenses in bridge rehabilitation or replacements and are eligible for Federal
funds. PM is a cost-effective strategy for extending the service life by applying cost-
effective cyclical or condition-based treatments.
Examples of Cyclical maintenance activities
o Clean/Wash Bridge Deck and/or Super/Substructure
o Clean and Flush Deck Drains
o Clean Deck Joints
o Deck/Parapet/Rail Sealing and Deck Crack Sealing
o Seal Super/Substructure Concrete
Examples of Condition Based maintenance activities
o Deck Drain - Repair/Replace
o Deck Joint Seal Replacement
o Deck Joint Repair/Replace/Elimination
o Electrochemical Extraction (ECE)/Cathodic Protection (CP)
o Concrete Deck Repair in Conjunction with Overlays, CP Systems or ECE
Treatment
o Deck Overlays (thin polymer epoxy, asphalt with waterproof membrane, rigid
overlays)
o Repair/Replace Approach Slabs
National Bridge Inventory (NBI): An aggregation of the State transportation department, Federal
agency, and Tribal government bridge and associated highway data maintained by the Federal
Highway Administration (FHWA). The NBIS requires each State transportation department,
Federal agency, and Tribal government to prepare and maintain a bridge inventory, which must
be submitted to FHWA per these specifications annually or whenever requested (23 CFR
650.315).
7 | D e f i n i t i o n s
National Bridge Inspection Standards (NBIS): Federal regulations establish requirements for
inspection procedures, frequency of inspections, qualification of personnel, inspection reports,
and preparation and maintenance of a state bridge inventory. The NBIS applies to all structures
defined as bridges located on all public roads.
Non-NBI Bridge: Bridges or culverts are not in the NBI, as they are not subject to the NBIS
regulations. This is a type of “Non-Reportable Structure.” Non-NBI bridges may have one or
more of the following characteristics: (a) less than twenty feet long; (b) not subject to highway
loads (i.e., may carry only pedestrians, water, etc.); (c) publicly owned but not on a public road;
(d) not publicly owned.
Non-Reportable Structure: A structure that is not required to be included in the annual NBI or
NTI data submittal but may be included and managed in the BrM database. Examples include
pedestrian bridges, privately owned structures, culverts, and bridges less than 20 feet.
Private Bridge: A bridge open to public travel and not owned by a public authority as defined in
23 USC 101.
Routine Inspection: Regularly scheduled comprehensive inspection consisting of observations
and measurements needed to determine the physical and functional condition of the bridge and
identify changes from previously recorded conditions.
Undermining: An erosion phenomenon which can cause collapse, the rupture of dykes and
flooding. The hollowing action of flowing water (sea water or fresh water) on a riverbed, bank,
cliff, or engineering works (dykes, bridge, piers, etc.).
Underwater Inspection: Inspection of the underwater portion of a bridge substructure and
surrounding channel, which cannot be inspected visually at low water or by wading or proving,
and generally requiring diving or other appropriate techniques.
Water System: Defined in the context of bridge inspections as a system that includes any water
body or waterflow that affects or is affected by the bridge. This encompasses rivers, streams,
lakes, reservoirs, and other bodies of water, including their associated drainage systems.
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8 | I n t r o d u c t i o n
Chapter 1
Introduction
Department of Public Works (DPW) Primary Functions
DPW directs and administers departmental functions, programs, and activities for the public’s
health, safety, and environment through planning, design, construction, operation, and
maintenance of the County’s infrastructure. DPW administers applicable Federal, State, and local
laws and rules governing public works programs.
Department of Public Works’ Mission and Goals
Mission
DPW’s mission is to serve the community by building, operating, and maintaining the County’s
infrastructure in order to create a safe, resilient, and sustainable Hawaiʻi Island community.
Goals
Further, its goals are:
1. Safety – No one gets hurt on the job! Building a culture of safety through training,
education, and policy development; strive to minimize accidents; promote employee
personal responsibility; maintain a safe work environment for our employees, customers,
vendors, and the entire public.
2. People – Our employees are our greatest resource! Treat all employees with respect,
build highly functioning teams; encourage growth and technical development in the job;
foster a sense of personal worth for every employee.
3. Transparency – Promote honesty and openness with our employees and the public.
4. Customer service – Strive to provide high quality customer service, treating every member
of the public like ʻohana.
5. Continuous improvement – committed to continuously improve our operations and
enhancing our customers’ experience.
Department of Public Works - Engineering Division
Hawaiʻi County Code Chapter § 2-41(1) states, “The engineering maintenance division is
responsible for coordinating the planning, engineering, and implementation of the highway and
drainage capital improvement projects, coordinating all land surveying, conducting necessary
land rights acquisition, and providing construction inspectional services.”
9 | I n t r o d u c t i o n
The Engineering Division provides civil engineering, land surveys, and regulatory services in
accordance with Chapters 10, 22, and 27 of the Hawai‘i County Code (HCC). The Division is
comprised of the following six sections:
• Administration
• Land Surveying
• Regulatory Review
• Design and Investigation
• Bridge
• Inspection
The Administration section provides the following services:
1. Provides general supervision and administrative support.
2. Coordinates civil engineering (non-building) projects and programs using County, State,
and Federal funds.
3. Supervises and coordinates land acquisition activities for the Department.
The Land Surveying section provides the following services:
1. Provides general land surveying services, including topographic maps and boundary
studies.
2. Produces parcel maps and their descriptions for the County.
3. Reviews privately generated survey maps and descriptions.
4. Addresses survey issues and complaints related to County facilities, such as road
encroachments.
5. Maintains an inventory/file of all road and drainage right-of-ways, Public Works parcels,
and survey records generated by the County.
6. Provides County maps and survey information to the public.
The Regulatory Review section provides the following services:
1. Implements/enforces the applicable regulatory requirements of Chapters 10, 22 and 27,
HCC.
2. Provides comments to the Planning Department on land-use related matters, such as
subdivision, ‘ohana, variance, and change of zone applications; and on Special
Management Area (SMA), Use, and Special Permits.
3. Investigates and resolves regulatory complaints (except for building permit plans), reviews
and/or coordinates the review and approval of all private construction plans, traffic reports,
flood studies, environmental documents, as they relate to the interests and regulatory
authority of the Department.
The Design and Investigation section provides the following services:
1. Plans, designs, and constructs civil engineering (non-building) County Capital
Improvement Projects (CIP).
2. Plans, designs, and constructs civil engineering (non-building) County Capital
Improvement Projects (CIP).
3. Investigates and resolves roadway, drainage, and other related complaints.
4. Provides drafting services.
10 | I n t r o d u c t i o n
The Bridge section provides the following services:
1. Plans, designs, and constructs County bridge repair, maintenance and replacement
projects.
2. Manages bridge inspections in accordance with National Bridge Inspection (NBI)
regulations.
3. Conducts structural analysis to determine NBI bridge load ratings as required.
The Inspection section provides the following services:
1. Inspects civil engineering (non-building) County CIP; private subdivision, and
development construction.
2. Inspects grading, grubbing and stockpiling work per Chapter 10 of the HCC.
3. Inspects construction within the County right-of-way (R-O-W) per Chapter 22 of the HCC.
Department of Public Works - Highway Maintenance Division
Hawaiʻi County Code Chapter § 2-41(4) states, “The highway maintenance division shall be
responsible for the construction and maintenance of all roads, streets, highways, footpaths, storm
drains, bridges, flood channels, and certain cemeteries.”
Highway Administration
The Highway Maintenance Division oversees and directs the maintenance of roadways,
drainage systems, and public flood control structures. The Division also completes in-
house resurfacing projects and responds to various road emergencies as well as natural
disasters.
District Baseyards
Each District Baseyard maintains and repairs roads, streets, highways, bridges, storm
drains and other flood control structures in their respective geographical area.
Highway Maintenance Districts
Hawaiʻi County is made up of nine unique districts covering a span of approximately 4,028
square miles. To better meet the demands of each unique district, the Department of
Public Works Highways Maintenance Division has incorporated six unique districts where
staff are tasked with the upkeep and maintenance of unique responsibilities. These
districts are as follows:
1. South Hilo
2. Puna
3. Kaʻu
4. Kona
5. North and South Kohala
6. Hāmākua
11 | I n t r o d u c t i o n
Funding of Bridge Activities
Bridge activities are funded through the County’s Highway Fund. This fund is sourced from the
Hawaiʻi fuel tax under Hawaiʻi Revised Statutes (HRS) § 243-6, § 248-8, and § 248-9. This tax is
comprised of three parts: a state fuel tax, a county fuel tax, and the environmental response,
energy, and food security tax. Rates vary on the type of fuel (i.e., diesel, gasoline, or alternative
fuel) and the use of the fuel (on highway or off-highway). County rates further vary by County
and are governed by Hawaiʻi County Ordinance pursuant to HRS § 243-5. Hawaiʻi County’s fuel
tax rate is $0.23 per gallon of gasoline or diesel.
12 | N o t e w o r t h y A c h i e v e m e n t s
Noteworthy Achievements
Engineering
Committed to improving infrastructure and transportation safety, DPW's Engineering Division has
made progress in creating and managing an inventory of non-National Bridge Inventory (NBI)
bridges in Hawaiʻi County. Through innovative planning and maintenance techniques, DPW has
demonstrated a commitment to engineering excellence, contributing to the stability, structural
integrity, and reliability of bridges and culverts essential for community connectivity.
DPW’s efforts help to ensure crucial transportation routes remain resilient, promoting economic
success and safety. Moving forward, DPW’s Engineering Division is dedicated to further
innovation and collaboration, fostering a resilient and interconnected infrastructure landscape.
Highway Maintenance
DPW is committed to enhancing the efficiency and effectiveness of its operations. As part of this
commitment, in November 2023, DPW Highways implemented its work management system,
iWorQ, aimed at better managing certain county assets and work orders. This new system will
revolutionize the way Highways Maintenance tracks, maintains, and optimizes the use of its
assets, ensuring that its resources are utilized to their fullest potential.
The new system will provide a centralized, digital platform for the real-time monitoring and
management of certain county assets. This includes infrastructure such as roads, bridges, and
drainage systems. Key features of the system include:
• Work order management: Streamlined processes for generating, assigning, and tracking
work orders, ensuring timely completion of maintenance and repair tasks.
• Inventory tracking: Real-time tracking of certain county assets, providing detailed
information on their location, conditions, and maintenance history.
• Work order management: Streamlined processes for generating, assigning, and tracking
work orders, ensuring timely completion of maintenance and repair tasks.
• Predictive maintenance: Utilizing data analytics to predict and prevent asset failures,
thereby reducing downtime and extending the lifespan of county assets.
• Resource allocation: Improved allocation of resources, ensuring that the right tools and
personnel are available for each task.
13 | N o t e w o r t h y A c h i e v e m e n t s
Image courtesy of DPW’s Highway Maintenance Division
In addition to implementing its work management system, DPW has recognized the need to
review and optimize its policies and procedures. To achieve this, DPW has contracted consultant,
Berry, Dunn McNeil & Parker, LLC, in April 2024, to review standard operating procedures (SOPs)
of the department’s Highways Maintenance Division. The consultant’s role will include:
• Identify missing policies and procedures in addition to updating all existing Highways
Maintenance policies and procedures where necessary.
• Comprehensive review: Conducting a thorough review of all current Highway Maintenance
Division policies and procedures to identify areas for improvement.
• Stakeholder engagement: Engaging appropriate staff to gather input and ensure that
proposed changes align with operational realities and best practices.
• Implementation support: Assisting in the implementation of new or revised policies and
procedures, providing training and support to DPW staff as needed.
The introduction of the work management system and the comprehensive review of Highway
Maintenance Division’s policies and procedures represent significant steps forward for DPW.
These initiatives will not only enhance the department’s operational capabilities but also improve
service delivery to the community.
The Highway Maintenance Division has taken a significant step forward in modernizing its
infrastructure management by establishing a Geographic Information System (GIS) mapping
system to assist in the management of culverts. This initiative reflects the department's
recognition of the importance of leveraging technology to enhance efficiency and effectiveness in
infrastructure management.
The GIS mapping system represents a valuable tool for visualizing and organizing culvert data,
including location, size, condition, and maintenance history. It can streamline decision-making
14 | N o t e w o r t h y A c h i e v e m e n t s
processes, improve asset management strategies, and prioritize maintenance and repair efforts
based on accurate and up-to-date information.
This development yields significant benefits for infrastructure resilience, efficiency, and safety.
DPW may enhance its capacity to manage and safeguard critical culvert assets, ultimately
contributing to improved transportation networks and community resilience.
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15 | A u d i t R e s u l t s
Chapter 2
Audit Results
Background
“The United States has a problem with its bridges: More than 30 percent are reaching the end of
their lifespan and need repair or replacement. Meanwhile, travel demands, and the costs of labor
and materials are increasing while many budgets stagnate or fall. Bridge owners have become
more reactive than proactive in their approach to managing and addressing their bridge program
needs, leading to a “worse first” management style. Unfortunately, this strategy leaves bridges in
good condition neglected until they become a public burden or safety hazard.”1
To ensure bridge safety, the National Bridge Inspection Standards (NBIS) were established in
1971 and overseen by the Federal Highway Administration (FHWA) to govern the rigorous
inspections of highway bridges across the United States. These inspections are pivotal in
distinguishing between bridges categorized under the National Bridge Inventory (NBI) and those
outside this classification. This distinction is crucial as it aims to prevent potential structural and
operational issues that could compromise bridge safety. Furthermore, the data collected from
these inspections enables bridge owners to make informed decisions concerning necessary
repairs and ongoing maintenance efforts.
Bridges within the NBI strictly adhere to stringent inspection protocols outlined in the Manual for
Bridge Evaluation by the American Association of State Highway and Transportation Officials
(AASHTO). Adherence underscores a commitment to upholding critical structures' structural
robustness and operational efficiency, setting them apart from non-NBI bridges. AASHTO further
requires states to maintain these inspections and information in a database known as the Bridge
Management system (BrM).
Overview
Hawaiʻi County road systems relies on a system of bridges and culverts to keep its transportation
infrastructure functioning smoothly. These structures are vital for connectivity, ensuring safe
passage and accessibility throughout the County. Maintaining these bridges involves thorough
assessment and upkeep, considering various factors such as safety, structural integrity,
environmental impact, and functionality.
DPW’s Bridge Section adheres to the AASHTO Manual with the latest Hawaiʻi Department of
Transportation (HDoT) Bridge Management, Bridge Inspection Manual (BIM) to ensure
compliance with federal regulations CFR 650 Subpart C and Subpart E.
1 Changing How Engineers Think About Bridge Maintenance | FHWA (dot.gov) by Judy Francis 09/2017, accessed 01/10/2024
16 | A u d i t R e s u l t s
Further regulating the process of bridges and culverts and providing additional quality assurance,
the United States Army Corps of Engineers (USACE), in agreement with FHWA, has taken on
additional responsibilities to ensure compliance with the NBIS as it relates to levee systems within
the United States.
Bridges and Culverts
Bridges included as part of the NBI are defined as a structure including supports erected over a
depression or an obstruction, such as water, highway, or railway, and having a tracking or
passageway for carrying traffic or other moving loads, and having an opening measured along
the center of the roadway of more than 20 feet between under coping of abutments or spring lines
of arches, or extreme ends of openings for multiple boxes; it may also include multiple pipes,
where the clear distance between openings is less than half of the small contiguous opening.
This includes culverts with a span length greater than 20 feet, which are also included in the NBI
and receive a rating using the NBI scale.
Examples – NBI Bridge Lengths
Source: https://www.fhwa.dot.gov/bridge/snbi/snbi_march_2022_publication.pdf
17 | A u d i t R e s u l t s
Hawaiʻi County currently has 144 bridges qualifying under the NBI and requiring inspections on
a 24-month interval or routine inspection (RTN), and two underwater bridges that also require
underwater inspections (UW) not to exceed a 48-month interval.
Source: National Bridge Inventory | National Bridge Inventory | Hawaiʻi Statewide GIS Program
Map of Hawaiʻi County’s National Bridge Inventory
18 | A u d i t R e s u l t s
As of February 2024, the County currently has nine NBI bridges in poor condition, 6% of the
total. Two of the nine are closed, and one is not slated for repair.
• Pauahi Street Bridge (#22-2) – Bridge construction currently in progress as of April
2024.
• Hanawī Stream Bridge (#27-5) – Bridge design work is ongoing as of March 2022.
• Kawainui Stream Bridge (#27-7) – Bridge design work is ongoing as of February 2023.
• Waimaauau Stream Bridge (#28-1) – Bridge replacement design commenced in 2017.
• Kaʻahakini Stream Bridge (#29-1) – Closed; bridge replacement design ongoing as of
March 2024.
• ʻŌpeʻa Stream Bridge (#31-2) – Bridge design work is ongoing as of March 2022.
• Kaiwilahilahi Stream Bridge (#35-1) – Bridge construction repair commenced August
2024.
• Kaʻula Gulch Bridge (#41-1) – Bridge design work is ongoing as of February 2023.
• Lauhala Bridge (#42-1) – Bridge has been permanently closed since 2011.
Although not required, the FHWA and several engineering associations, including the USACE,
strongly recommend that states adopt guidelines to monitor shorter structures or those known as
non-NBI bridges. Additionally, the Hawaiʻi Bridge Inspection Manual states that owners [of Non-
NBI Structures] “may want to track or be aware of structures that do not meet the definitions
contained in the NBIS or the NTIS such as Pedestrian bridges, privately owned bridges, or
structures < 20 feet. These structures are not included in the National Inventories but may be
included in the BrM database at the owner’s discretion.”
Non-NBI bridges or non-reportable structures are those that are not subject to the NBIS
regulations and may have one or more of the following characteristics:
(a) less than 20 feet long,
(b) not subject to highway loads (i.e., may carry only pedestrians, water, etc.),
(c) publicly owned but not on a public road, and
(d) not publicly owned.
As of July 2023, there are currently 17 non-NBI bridges in the County’s inventory, which is
continually being updated and developed. Currently, there are no requirements for the inspection
frequency of non-NBI bridges, and they are typically investigated only when complaints are
received.
Contracted NBI Inspection Engineers
In November 2023, the audit team joined DPW’s Engineering Consultants in inspecting four NBI
bridges and culverts. The inspections revealed the conditions of the bridges inspected and the
challenges the engineers encountered. The engineers demonstrated high expertise, complied
with strict criteria and guidelines, and were proficient in explaining and addressing the queries
raised by the auditors. The contracted engineers noted that DPW staff had never accompanied
them during inspections and expressed concerns regarding the comments and edits requested
by engineering staff to bridge reports.
19 | A u d i t R e s u l t s
Bridge #24-4 Ho’aka Road Box Culvert: Vegetation on
NBI box culvert.
Bridge #24-5 Ainalako Road Culvert: Excessive
vegetation on NBI road culvert.
Bridge #24-3 Kupulau Road: Contracted Engineers
conducting NBI inspections. Bridge #24-6 Komohana Street Bridge - Waiakea
Stream Bridge: Graffiti may impact inspections.
Photos courtesy of the Office of the County Auditor
External Challenges
Private Property Owner Obligations
Many layers affect the County’s ability to maintain the bridges and culverts properly. For example,
DPW staff can only complete maintenance or repair efforts within the County’s right-of-way. This
may pose issues when overgrowth or blockage occurs on private property. Under Hawaiʻi Revised
Statute § 46-11.5, each County must ensure that channels, streambeds, streambanks, and
drainageways are maintained to carry off storm waters and remove debris to prevent public
nuisances. Private owners are responsible for upkeep, but the County can enforce this obligation.
Failure to comply may result in a civil penalty of up to $500 per day. The County is responsible
for maintenance unless the areas are privately or state-owned, in which case the respective owner
is responsible.
Further, Hawaiʻi County Code Chapter 27, § 27-37 states, “In addition to any other section, if any
encroachment or obstruction exists, under, over or through any portion of a drainage, floodway,
levee system, or watercourse within the County and the encroachment or obstruction is observed,
or a complaint made to the department of public work of the County of Hawaiʻi, then the
20 | A u d i t R e s u l t s
Photos courtesy of DPW’s Highway Maintenance Division
Structural encroachment on private property
along the Paʻauau Channel.
Vegetation encroachment on private property
along the Paʻauau Channel.
department of Public Works shall investigate and forthwith, give notice to the owner to remove
the encroachment and/or obstruction in the manner provided in this article.”
Generally, this process involves an investigation initiated through a complaint, and if warranted, a
notice of violation to the property owner is issued for any potential obstruction.
Property owner obligations add a layer of complexity, potentially inhibiting the County’s eligibility
to retain insurance or obtain emergency reimbursement funding. One such example relates to
the Paʻauau Stream, which impacts up to 30 properties. The waterway system was declared
inactive in August 2008 due to encroachments, mainly on private property, including fences,
sheds, and vegetation. Staff have commenced efforts to increase public communication, and
department staff have sent correspondence, held meetings, and gone door-to-door.
Map image of Hawaiʻi County Road Ownerships courtesy of DPWs Highway Maintenance GIS portal
21 | A u d i t R e s u l t s
Additionally, County efforts to maintain bridges and culverts can be delayed by regulatory groups
including the State’s Department of Land and Natural Resources (DLNR) Division of Conservation
and Resources Enforcement and the State Historic Preservation Division (SHPD).
Division of Conservation and Resources Enforcement
The Division of Conservation and Resources Enforcement is “responsible for enforcement
activities of the department. The division, with full police powers, enforces all State laws and rules
involving State lands, State Parks, historic sites, forest reserves, aquatic life and wildlife areas,
coastal zones, Conservation districts, State shores, as well as county ordinances involving county
parks.”
One specific example of the delays experienced can be noted in the Wailoa Stream. Repair
efforts commenced in response to Hurricane Lane (August 2018). Initially identified as a Federal
Emergency Management Agency (FEMA) project, a plan of action was underway. However, this
was sidelined due to the USACE indicating the waterway was under their jurisdiction.
Subsequently, their efforts were put on hold when DLNR stepped in with concerns regarding
possible turtle nesting in the sedimentary material. Ultimately, it has now been deemed the
County’s responsibility due to required dredging, where DPW is currently trying to secure funding
to hire a consultant to design and plan.
State Historic Preservation Division (SHPD)
SHPD is responsible for protecting and preserving the state’s cultural and historical sites. They
ensure that projects follow state and federal laws related to historic preservation or those
structures 50 years or older.
Bridge #25-2, Piʻihonua Bridge, qualifies under SHPD and was identified in March 2019 as a
critical finding. The Hawaiʻi Department of Transportation’s Highway Division defines critical
findings as a “structural or safety-related deficiency that requires immediate follow-up or action,
as described in CFR 650.313(h)”. As of April 2024, DPW has experienced SHPD delays and is
currently in the project's design phase, where DPW is awaiting permitting and approval of final
design plans.
22 | A u d i t R e s u l t s
Upstream end of North abutment footing/scour protection
exhibits undermining measuring approximately 6’ long x 5’
high x 4’-6” deep.
Photos obtained from Piʻihonua Bridge Critical Findings Report provided by of the DPW’s Engineering Division
Concrete spall measuring approximately 12” long x 14”
high x 1.5” deep, with exposed reinforcement (minor
section loss observed).
Delaminated area measuring approximately 4’ long x 10”
high occuring in downstream fascia of Girder 1 at North
abutment.
Delaminated area measuring approximately 30” long x 10”
high occurring in the upstream fascia of Girder 2 at North
abutment with diagonal crack measuring up to 0.04” wide
occurring in web and bottom flange of girder.
The downstream end of North abutment footing/scour
protection exhibits undermining measuring approximately
10’ long x 4’ high x 5’-6” deep.
Erosion and undermining of the south fascia of center pier
scour protection.
23 | A u d i t R e s u l t s
If components fail, it can disrupt an entire water system. For example, a blocked inlet or a
damaged culvert can cause water to back up, leading to flooding upstream. A failed storm drain,
or a leaking catch basin might overwhelm the system, causing water to spill over and damage
properties. Bridges that collapse or become obstructed can block water flow, exacerbating flood
risks in affected areas. Failures in maintenance structures can lead to unchecked blockages and
system inefficiencies. When multiple components fail, the consequences are magnified, leading
to widespread flooding, property damage, and costly repairs
Therefore, holistic management of the County's bridges and culverts as essential components of
the larger water system are necessary for the safety, longevity, and economic vitality. It ensures
structural integrity, aligns with environmental standards, and fosters public confidence. Proactive
upkeep safeguards safety, infrastructure functionality, and community well-being, emphasizing
cost-effectiveness, resilience, and historic preservation.
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24 | A u d i t R e s u l t s
Non-Compliance with HRS 464
Overview
When considering the management and maintenance of critical infrastructure projects, success
hinges on having highly qualified individuals in key roles. These projects require general expertise
and a high degree of specialized knowledge. These certifications are essential because they
ensure that individuals possess the technical skills and industry-specific competencies necessary
to oversee complex projects, maintain high standards, and mitigate risks. In the case of bridge
and maintenance work in Hawaiʻi County, ensuring that key positions are filled with certified
professionals is not just a best practice but also a legal requirement. Hawaiʻi Revised Statutes
(HRS) Chapter 464 mandates that certain professionals engaged in the design and oversight of
infrastructure projects must be duly licensed. This statutory requirement underscores the
importance of professional qualifications in safeguarding public safety and ensuring the integrity
of infrastructure developments.
HRS 464 delineates two levels to regulate professionals' qualifications in critical infrastructure
projects. First, the statute requires that any new construction projects involving infrastructure
must have plans prepared and overseen by a licensed professional engineer. This ensures that
the design and planning stages are managed by individuals with the specialized knowledge
necessary to address the complexities and risks inherent in new developments. Second, while
maintenance work on existing infrastructure does not require formal plans, it still mandates that a
licensed professional engineer oversees the project. This approach ensures that even routine
maintenance is conducted under the supervision of a qualified professional, thereby maintaining
the integrity and safety of existing infrastructure.
Audit Activity
We reviewed applicable guidance, including Hawaiʻi Revised Statutes, historical documents such
as job postings and position descriptions, reviewed application packets and interviewed
appropriate management, staff and conducted tests of some of the application packets requested
and found:
• Hawaiʻi Revised Statute (HRS) § 464-4 Public Works states (a) Notwithstanding any other
provision to the contrary, public works projects involving:
Alteration or new construction shall be required to have:
o Plans or specifications prepared by or under the supervision of an appropriately
licensed professional engineer, architect, or landscape architect. The licensed
professional engineer, architect, or landscape architect, as the case may be, shall
stamp the plans or specifications and indicate that the licensee has prepared or
supervised the preparation of the plans or specifications and
o A licensed professional engineer, architect, or landscape architect designated by
the State, county, or political subdivision that is undertaking the public works
project to observe the alteration or new construction. For the observation of
construction of these types of public works projects, the licensed professional
25 | A u d i t R e s u l t s
engineer, architect or landscape architect, as the case may be, shall not be
required to stamp the plans or specifications.
Maintenance work shall:
o Not be required to have plans or specifications prepared by or under the
supervision of an appropriately licensed professional engineer, architect, or
landscape architect; and
o Be required to have a licensed professional engineer, architect, or landscape
architect designated by the State, county, or political subdivision that is undertaking
the public works project to observe the maintenance work. For the observation of
construction of this type of public works project, the licensed professional engineer,
architect, or landscape architect, as the case may be, shall not be required to
stamp the plans or specifications.
• Position descriptions and qualifications for most of the bridge section have not been
updated in at least nine years, leaving them outdated and misaligned with current
regulatory standards.
• A review of the positions revealed that the job description and qualifications for the
maintenance work do not require an engineering license, a critical omission given the
work's technical nature and law requirement.
• Highways maintenance work lacks personnel with the appropriate engineering license as
required by HRS § 464-4 (2) (B).
• The Highway Maintenance Division previously had a Civil Engineer IV position, which was
reallocated to a GIS Analyst in 2018.
In summary, DPW needs to bring its practices into compliance with HRS § 464-4 by ensuring that
appropriately licensed professionals oversee critical infrastructure projects assessing its
organizational structure to align with current legal requirements. Management should determine
the appropriate placement of these licensed professionals within the hierarchy.
Cause of the Condition
DPW doesn't have a licensed engineer to oversee maintenance work as required by HRS § 464-
4.
Effect of the Condition
DPW is operating out of compliance with state law, leading to maintenance work being conducted
without mandated professional oversight, which may result in discrepancies between the
executed work and required standards.
26 | A u d i t R e s u l t s
Finding 1: DPW is non-compliant with HRS § 464-4.
Recommendation 1: Ensure compliance with HRS § 464-4
We recommend that DPW review and, where necessary, revise its organizational structure to
ensure compliance with HRS § 464-4. This should include, but not be limited to:
• Updating position descriptions and job qualifications to require the appropriate skillsets.
• Establishing protocols for project oversight by licensed professionals appropriately placed
within the department ensures that all activities are conducted with the necessary
expertise and accountability.
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27 | A u d i t R e s u l t s
Incomplete Culvert Inventory
Overview
A comprehensive culvert inventory serves as a foundational asset in infrastructure management,
providing a systematic record of culvert structures, critical for efficient water flow and infrastructure
preservation.
Adequate infrastructure management relies on a detailed understanding of culvert systems.
Culverts, as defined by the County, are pipes or structures which are designed to allow water to
flow under or through roadways and other structures that might otherwise impede the passage of
storm water, necessitate meticulous documentation to ensure effective maintenance,
infrastructure planning and environmental conservation.
Audit Activity
We conducted site visits, interviewed management and staff, reviewed various documents and
industry best practices, and identified the following:
• DPW is improving its operations with a new system called iWorQ, launched in November
2023. This system will help DPW’s Highway Maintenance Division manage certain county
assets and work orders more effectively. This digital platform will assist in tracking and
managing assets such as roads, bridges and drainage systems in real time and will include
features:
Images courtesy of DPW’s Highway Maintenance Division’s GIS portal
28 | A u d i t R e s u l t s
o Work order management
o Inventory tracking
o Predictive maintenance
o Resource allocation
• DPW lacks a comprehensive inventory of all County culverts. While the Highway
Maintenance Division has prioritized compiling this information into a County GIS system,
updates have been inconsistent.
• DPW’s Highway Maintenance Division does not have policies and procedures governing
culvert mapping and inventory.
• While staff know many problematic culverts that require maintenance, they lack
information regarding the total number and condition of culverts within each district.
• Historical maps and culvert information have often been inaccessible, limiting the accuracy
of inputting data into maps without additional fieldwork or site visits.
• GIS personnel inputting information may lack the necessary training or permissions to
interpret engineer legacy maps and legal descriptions effectively.
Cause of the Condition
As of March 2024, the Highway Maintenance Division did not have a complete culvert inventory.
Effect of the Condition
The lack of a comprehensive inventory increases inefficiencies in maintenance planning and
allocation of resources, leading to potential delays in repairs, increased risk of infrastructure
failures, and difficulties in addressing critical issues promptly.
Finding 2: DPW lacks a comprehensive culvert inventory.
Recommendation 2: Enhance and Expand the Existing County’s Culvert Inventory
We recommend that DPW’s Highway Maintenance Division refines and strengthens its existing
culvert inventory to ensure it more effectively supports the management and maintenance of
county-owned culverts. This should include, but not be limited to:
• Standardized Procedures: Develop precise guidelines for data collection,
inspections, and maintenance procedures.
• Staff Training: Educate employees on the significance of and processes involved in
inventory management.
• Resource Allocation: Assign personnel dedicated time and tools to capture culvert
location and data input accurately.
• Mapping All Culverts: Utilize historical records and field assessments to document
all county culverts.
• Prioritization: Establish criteria for ranking culverts based on their importance.
29 | A u d i t R e s u l t s
Lack of Culvert Policies and Procedures
Overview
Preserving the structural soundness and operational efficiency of culverts across Hawaiʻi County
is pivotal to maintaining infrastructure functionality and durability, regulating water flow, and
minimizing environmental impacts.
Comprehensive policies and procedures ensure a prolonged lifespan, increase safety, and
sustain efficiency. While not explicitly highlighted, FHWA and various engineering associations,
such as the National Society of Professional Engineers (NSPE), advocate for local governments
and municipalities to develop meticulous protocols.
Audit Activity
We reviewed FHWA guidelines, historical policies, and industry benchmarks, conducted on-site
inspections, and interviews with appropriate management and staff. Our assessment revealed
the following:
• Our evaluation found that the Highway Maintenance Division was practicing a process for
culvert maintenance; however, as of August 2023, formal written policies and procedures
were lacking. The last set of written policies and procedures, which were used in
December 2011, are obsolete.
• Highway Maintenance staff acknowledged the necessity of documented policies and
procedures and confirmed efforts were underway to compile and formalize these essential
guidelines.
• Subsequently, during the audit, the Highway Maintenance Division Chief took proactive
steps. In November 2023, written policies and procedures were formulated and
disseminated among division staff.
o Additionally, staff were encouraged to openly discuss any concerns or changes
necessary to better integrate policies and procedures into daily practices.
• In an effort to ensure all activities are considered and have appropriate guidance, DPW
has contracted a consultant to identify, review and update all policies and procedures for
the Highway Maintenance Division.
Our audit monitored the transition from a functional yet undocumented process to formalizing and
distributing written policies and procedures.
30 | A u d i t R e s u l t s
Cause of the Condition
The Highway Maintenance Division lacked written policies and procedure.
Effect of the Condition
The Highway Maintenance Division’s lack of policies and procedures impaired effective
management, accountability, and decision-making for the County’s culvert infrastructure, reducing
system resilience and increasing potential maintenance oversights.
Finding 3: DPW’s Highway Maintenance Division lacked documented policies and
procedures specifically designed for managing and maintaining culvert inventories.
Recommendation 3: Formalize Written Policies and Procedures
Subsequently, policies and procedures were developed and distributed.
Status: Partially Implemented
DPW’s Highway Maintenance Division should continue to develop, implement, and formalize
written policies and procedures to guide staff. To align with industry best practices, the
Highway Maintenance Division should:
• Conduct annual reviews and updates: of policies and procedures to ensure they
remain current and relevant.
• Document dissemination and understanding: ensuring employees are fully informed
of and are compliant with the latest policies and procedures.
31 | A u d i t R e s u l t s
Undefined Roles and Responsibilities
Overview
Bridge and culvert management depends on clear roles and responsibilities, eliminating confusion
and ensuring task completion. Defined roles streamline workflows for better prioritization and
resource allocation, and risk management tasks, including assessments and emergency plans,
are assigned, enhancing regulatory compliance.
The Government Accountability Office's (GAO) Greenbook Section 3.07 supports this approach,
stating that management should assign key roles based on unit responsibilities, maintaining a
clear accountability chain. Effective management extends beyond task assignment, emphasizing
the need for roles matched to individual expertise and qualifications, fair workload distribution to
prevent burnout, clear communication for collaboration, and performance metrics to track role
effectiveness and identify improvement areas.
Audit Activity
We reviewed relevant documents and guidance, policies, procedures, and past audits related to
bridges and culverts, conducted site visits, and interviewed relevant management and staff. Our
review revealed the following:
• The Highway Maintenance and Engineering Divisions are not delineating their respective
roles and responsibilities.
• Hawaiʻi County Code Chapter 2, Section 2-41 assigns bridge and culvert maintenance to
the Highway Maintenance Division:
(1) Engineering Division. The engineering division is responsible for coordinating the
planning, engineering, and implementation of the highway and drainage capital
improvement projects, coordinating all land surveying, conducting necessary land
rights acquisition, and providing construction inspectional services.
(4) Highway Maintenance Division. The highway maintenance division shall be
responsible for the construction and maintenance of all roads, streets, highways,
footpaths, storm drains, bridges, flood channels, and certain cemeteries.
• Historically, the Highway Maintenance Division was responsible for performing concrete
spall and crack maintenance on bridges in addition to vegetation work requests.
o Larger bridge and culvert repairs (>20 feet or higher) that pose significant safety
concerns or require equipment beyond the county's capabilities are not performed
by the Highway Maintenance Division but are instead contracted out.
• In August 2021, the Engineering Division identified a partial collapse and undermining of
the Wilder Road Culvert, possibly due to inconsistent maintenance. The Engineering
Division is currently in the design and permitting stage to reconstruct and replace the
culvert, estimated to cost $3.4 million. Without intervention, the road may experience
significant undermining, leading to unsafe conditions and accelerated deterioration of the
roadway and culvert.
32 | A u d i t R e s u l t s
•
Caption: Total corrosion of the Wilder Road Culvert.
• Additionally, challenges have emerged concerning timber bridge maintenance projects,
such as the Kawainui Stream Bridge. Meetings were conducted to coordinate and
assign responsibilities for various project aspects. When the Engineering Division
requested a status update, the Highway Maintenance Division questioned the
assignment of roles instead of providing the requested update.
• The Highway Maintenance Division is responsible for storing and inventorying timber
bridge deck materials. In April 2023, Engineering requested an updated inventory. To
date, no inventory has been provided by the Highway Maintenance Division.
Cause of the Condition
The lack of clearly defined roles and responsibilities stems from a lack of communication and
coordination within DPW, coupled with discrepancies between position descriptions and actual
responsibilities regarding various bridge and culvert maintenance elements.
Effect of the Condition
The absence of clearly defined roles and responsibilities has led to confusion and a lack of
accountability, hindering the department’s ability to manage maintenance, allocate resources, and
effectively fulfill its responsibilities in maintaining bridges and culverts.
Finding 4: DPW lacks clearly defined roles and responsibilities over the department’s
various duties.
Recommendation 4: Establish Clear Roles and Responsibilities
We recommend that DPW work to thoroughly review its organizational structure and establish
clear roles for all staff members, ensuring alignment with project needs and departmental
objectives.
Photos courtesy of the DPW’s Engineering Division
33 | A u d i t R e s u l t s
Additionally, divisions should properly document communication to facilitate coordination and
mitigate risks associated with ambiguous responsibilities.
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34 | A u d i t R e s u l t s
Lack of Interdepartmental Communication
Overview
DPW’s Highway Maintenance and Engineering Divisions play complementary roles in the overall
management of the County’s bridges and culverts. The Engineering Division is responsible for
planning, engineering, construction, and management of roadways, bridges, drainage structures,
and similar civil engineering capital improvement projects. In contrast, the Highway Maintenance
Division is tasked with maintaining County roads and rights-of-way, including repair, construction,
and other works to improve road conditions for safety. Effective communication and coordination
between these divisions are essential to ensure timely responsiveness and successful completion
of their various tasks.
The GAOʻs Greenbook Principle 14 emphasizes the importance of clear communication within an
organization. This includes sharing high-quality information across all levels and departments.
This information empowers staff to fulfill their roles, manage risks, and contribute to a strong
internal control system.
Effective interdepartmental communication holds paramount importance within any organization.
It ensures coordination, increased efficiency, and better decision-making within a department.
Conversely, poor communication can hinder progress, lead to conflicts, and costly mistakes.
Audit Activity
We reviewed relevant documents and guidance, policies, procedures, and past audits related to
bridges and culverts, conducted site visits, and interviewed relevant management and staff. Our
review revealed the following:
• A 2009 limited-scope performance audit of Hawaiʻi County’s Highway Fund by the Office
of the Legislative Auditor2 found that the department's lack of regular communication and
coordination during various planning and execution phases hindered its productivity.
• Staff from both the Highway Maintenance Division and the Engineering Division expressed
concerns regarding the status of specific tasks, roles, and responsibilities of various
individuals and the division, as well as overall expectations.
• The current process for managing bridge and culvert maintenance requires coordination
between the Engineering and Highway Maintenance Divisions. However, staff have
identified challenges in tracking the progress of assigned tasks, particularly when projects
are transferred from one division to the other. These challenges include issues with setting
timelines, providing updates, and establishing clear deadlines.
• When tasks or projects require escalation beyond routine maintenance capabilities, there
have been challenges in receiving timely feedback. A review of historical documents
identified a case involving a problematic drywell reported over 24 years ago, which has
resulted in much more costly repairs. Subsequently, repairs are now underway. This
2 Our audit did not include a detailed assessment of the underlying data or procedures used in the previous audit. Therefore, we do not express
an opinion on the effectiveness or accuracy of the work.
35 | A u d i t R e s u l t s
highlights the need for improved communication and follow-up processes between
different levels of maintenance.
Cause of the Condition
DPW has not fully developed mechanisms for effective interdepartmental communication.
Effect of the Condition
Persistent over time, the absence of strong communication mechanisms has led to challenges in
project coordination, resulting in unresolved tasks, confusion regarding roles and responsibilities,
and delays in maintenance timelines.
Finding 5: Interdepartmental communication plagues DPW, impacting maintenance
oversight and productivity.
Recommendation 5: Establish an Effective Communication Protocol
We recommend that DPW institute an effective communication protocol between the
Engineering and Highway Maintenance Division. This protocol should include, but not be
limited to:
• Standardized reporting procedures
• Regular updates on maintenance statuses
• Training and guidelines on various assessments to improve accuracy in maintenance
evaluations.
36 | A u d i t R e s u l t s
Photo 1: DPW’s Highway Maintenance Division conducting
pre-storm clearing of brush and vegetation.
Photo 2: Problematic area needing additional clearing post-
storm events.
Lack of Routine Maintenance and Repairs
Several water structures, like levees and floodwalls, are labeled
inactive by the US Army Corps of Engineers due to poor conditions.
In the event of failure, Hawaiʻi County would be ineligible for funds
under the Restoration and Inspection Program and responsible for
covering the costs associated with the failure.
Overview
Maintenance, in accordance with FHWA Guidance on Highway Preservation and Maintenance,
“describes work that is performed to maintain the condition of the transportation system or
respond to specific conditions or events that restore the highway system to a functional state of
operations.” Maintenance includes both routine and preventive maintenance.
Routine maintenance includes tasks performed in response to short-term needs, like removing
trash and graffiti or fixing storm or accident damage. Preventive maintenance aims to prevent
future deterioration and avoid costly repairs. It includes cyclical maintenance, such as cleaning
and sealing, and condition-based maintenance, such as replacing deck joints or repairing
approach slabs.
The FHWA’s guide advises roadway agencies to establish vegetation management programs to
determine optimal maintenance practices for each area. Such a program involves various
strategies like mowing, mechanical and hand brush cutting, herbicide use, livestock grazing,
cultivating desired plants, and re-vegetation.
The USACE established the Rehabilitation and Inspection Program (RIP) to ensure the continued
effectiveness of flood control projects in agreement with the FHWA. This program applies to
Photos courtesy of the Office of the County Auditor
37 | A u d i t R e s u l t s
federal and non-federal projects, with inspections for rehabilitation needs and the condition of
federally authorized hurricane/shore protection projects.
The primary goal of RIP is to maintain reliable flood protection for people, communities, and
property. It aligns with Public Law 84-99 (PL 84-99) and other relevant USACE authorities,
emphasizing the responsible use of taxpayer dollars entrusted to the Corps.
Inspections go beyond the structures themselves. They also consider stream characteristics like
meandering, braiding, and sediment buildup. Additionally, inspectors look for signs that might
affect future stream changes, such as bridge debris buildup or historical accounts of flooding.
Failing to maintain these structures properly can result in a poor condition report, making them
ineligible for RIP funding and potentially placing them in an "inactive" status.
Audit Activity
We reviewed historical records and documentation, including Department and Council records,
conducted site visits to examine repair and maintenance efforts, reviewed other relevant
guidance, such as work orders, and interviewed appropriate management and staff, compared to
industry best practices and Federal regulations, and found:
• After inspections or public complaints, the Engineering Division assigns and forwards
appropriate work orders to the Highway Maintenance Division for bridge and culvert
maintenance.
o These work orders detail each structure's condition and necessary maintenance,
like deck cleaning or repainting.
o The Highway Maintenance Division Chief is responsible for assigning the work.
o Work orders are scheduled by District Road Overseers.
o Not all work has been scheduled.
• While some requests in the work orders are complex or costly, many are minor tasks such
as removing debris from surfaces, cleaning and sealing bridge joints, painting bridge
elements, and clearing vegetation. Routine maintenance items typically do not involve
substantial costs but require a maintenance schedule and adequately trained personnel.
• Several water structures, like levees and floodwalls, are labeled inactive by the USACE
due to poor conditions. In the event of failure, Hawaiʻi County would be ineligible for funds
under the RIP program and responsible for covering the costs associated with the failure.
• From September 2021 to June 2023, 116 work orders were generated for the Highway
Maintenance Division to complete. During this time, 26 of the 116 were completed, leaving
93, or 80% of the work orders, outstanding.
• Further exacerbating the issue, Ordinance 2022-003, made effective July 1, 2022, by the
Hawaiʻi County Council, prohibited glyphosate-based products, also known as weed killer,
in County parks and recreational facilities. DPW voluntarily followed suit and prohibited
using such products in July 2023. DPW administration have provided some alternatives
38 | A u d i t R e s u l t s
to help with vegetation maintenance and management, but staff have expressed concerns
about whether these measures are sufficient.
• Highway Maintenance Division staff expressed frustrations in their inability to properly
handle vegetation growth with limited alternatives and noted vegetation growth occurs
quicker in Hawaiʻi conditions.
Cause of the Condition
The Highway Maintenance Division lacks a schedule for prioritizing and managing routine
maintenance and repairs.
The Engineering Division does not provide deadlines for work order requests to be completed.
DPW’s decision to voluntarily prohibit the use of certain products potentially increases the demand
for maintenance and repairs as the department works to rebalance its workload.
Effect of the Condition
The Highway Maintenance Division’s lack of maintenance schedules and the Engineering
Division’s absence of work order deadlines cause inefficiencies in handling routine maintenance
and repairs.
DPW’s decision to voluntarily prohibiting the use of certain products increases pressure to conduct
more frequent routine maintenance.
Finding 6: DPW lacks a maintenance schedule and clear deadlines to effectively manage
the County’s bridges and culverts.
Recommendation 6: Develop and Implement a Maintenance Schedule
We recommend DPW develop a comprehensive maintenance schedule inclusive of but
not limited to:
• Develop a cohesive maintenance schedule for various tasks to reduce
unnecessary work orders while increasing timeliness, consistency, and overall
efficiency.
• Implement a data monitoring system to oversee, verify, and provide details related
to maintenance and repair activities.
• Improve collaboration efforts between the Engineering and Highway Maintenance
Divisions and other stakeholders to strengthen communication defining
expectations and goals.
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39 | A u d i t R e s u l t s
Compiled by the Office of the County Auditor Based on Information provided by DPW’s Engineering Division
Reliance on Contractors
Overview
Inspecting bridges and culverts under the NBIS represents a key aspect of infrastructure
management, ensuring their safety, functionality, and longevity. In many cases, governmental
bodies, or private entities responsible for infrastructure maintenance often rely on engineering
contractors to conduct these inspections. While this approach can offer several benefits, such as
expertise, efficiency, and cost-effectiveness, it also presents certain challenges and potential
risks, particularly when there’s a lack of independent confirmation or review of the inspection
findings.
Independently inspecting bridges and culverts and conducting sampling is necessary for verifying
contractor findings, ensuring quality, and reducing errors. It mitigates risks, demonstrates
compliance, and streamlines the process, minimizing back-and-forth edits between DPW and
contractors.
Audit Activity
We reviewed relevant documents and guidance, policies, procedures, conducted site visits and
accompanied DPW’s contracted engineer team to inspections, and interviewed relevant
management and staff and found:
• DPW staff has not ever accompanied contractor engineers during NBIS inspections. DPW
explained this is to remain independent of the process.
• Contracted engineers concurred that DPW staff never accompanied them during an
inspection and that until the auditor ride-along, they had never met staff in person.
NBIS Bridge Inspection Report Process
Final Inspection
Reports
Published Contractors must
provide a draft to
Engineering within
30 days. Revised
drafts may involve
several versions
Engineering will
provide edits back to
contractor to be
incorporated.
Revised drafts may
involve several
versions
NBIS
Inspection
Conducted
Day 0 Day 90 Day 45 Day 30 Day 60
40 | A u d i t R e s u l t s
• Contracted engineers expressed concerns regarding edits and changes requested by
DPW to reports. Contractors stated that of the three state counties they conduct
inspections for, Hawaiʻi County is the only jurisdiction that scrutinizes the reports to such
an extent, which may prolong the time it takes for the contracted engineers to complete
and publish the required reports.
o Despite these delays, Hawaiʻi County has not had past due or late bridge
inspection reports as required by the NBIS.
• Drawing out timelines further, comments by DPW are not all requested after the initial
review. Occasionally, the drafts are returned to the contractors three to four times with
additional comments.
o The current bridge inspection program manual requires inspectors to specify the
precise location and measurements of defects in close-up photos. DPW frequently
asks contractors to incorporate redundant details into overall images referring to defect
details observed and noted in close-up photos. Replicating these notes in the overall
photo is unnecessary and can sometimes clutter the image.
o Defect sizes are requested to be added to photos when the information is noted in the
photo’s caption.
o Historically, contractors would mark crack locations and measurements using arrows.
Instead, DPW requested cracks be indicated by drawing a line over their length in the
photos. This change has two drawbacks:
1. Cracks are no longer naturally visible in the image.
2. It becomes challenging for future inspectors to visually discern differences
between inspection photos and the real-time condition of the crack.
Photo courtesy of Nagamine Okawa Engineers Inc. Biennial Routine Bridge Inspection Report 2023
Ho’aka Road Box Culvert # 24-4
41 | A u d i t R e s u l t s
Cause of the Condition
DPW’s Bridge Section staff does not accompany contracted engineers on inspections to confirm
what is being reviewed.
Effect of the Condition
Increased edits and questions from the Engineering Bridge Section delayed the publishing of
required reports. Additionally, DPW cannot independently confirm the condition of various
structures without at least completing spot checks or sample testing on bridges inspected during
the year.
Finding 7: DPW Lacks a Process for Independent Reviews.
Recommendation 7: Establish a Process for Independent Reviews
We recommend that DPW’s Bridge Section establish processes to verify and confirm accuracy
and continuity in contracted bridge inspections.
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42 | F r a u d , W a s t e a n d A b u s e
Chapter 3
Fraud, Waste, and Abuse
As a practice, we remain mindful and document instances of fraud, waste, and abuse within the
scope of the audit objective and not specifically Countywide.
Management reported no fraud, ongoing investigations, or pending litigation that may impact this
audit.
What is Waste?
“Waste” involves needless and careless expenditures of county funds or the misuse or
mismanagement of county resources and property. Waste can be both intentional or
unintentional.
The deferral of necessary maintenance tasks, intended to preserve infrastructure conditions and
prolong operational life, has led to considerable inefficiency. This delay elevates routine
maintenance into substantial capital projects, escalating expenses, and strains public funds.
This trend represents a hazard to public safety. Postponing maintenance raises the probability of
infrastructure failure, potentially causing severe consequences. Failing to address maintenance
requirements promptly increases costs and jeopardizes public welfare, emphasizing the critical
necessity of prioritizing timely maintenance practices.
Ultimately, the lack of investment in proactive maintenance wastes resources and poses a
significant risk to public safety, thus contributing substantially to inefficient expenditure within the
Department of Public Works.
In closing, the improper use of government resources or positions are commonly uncovered by
employees and the public. We strongly encourage reporting of any concerns through our fraud
and whistleblower hotlines:
Fraud and Waste Hotline:
Whistleblower Hotline:
(808) 480-8213
(808) 480-8279
Email: concern@hawaiicounty.gov
Fax Number: (808) 961-8905
Mail: Office of the County Auditor
120 Pauahi St. Ste. 309
Hilo, HI 96720
43 | F r a u d , W a s t e a n d A b u s e
To access the complaints directory:
https://www.hawaiicounty.gov/our-county/legislative/office-of-the-county-auditor/inquiry-
and-complaint
Submit a claim:
https://www.hawaiicounty.gov/our-county/legislative/office-of-the-county-auditor/inquiry-and-
complaint/intake-form
44 | C o n c l u s i o n
Conclusion
Through our evaluation of the Department of Public Works’ (DPW) practices and procedures
related to bridge and culvert maintenance, we determined that while DPW generally complies with
the FHWA’s NBIS for inspection processes, there are notable areas needing improvement.
Notably, DPW’s failure to fully comply with Hawaiʻi Revised Statutes (HRS) Chapter 464, which
mandates that key engineering functions be overseen by licensed professional engineers, raises
concerns. The current lack of qualified engineering oversight in some areas exposes the County
to potential legal risks and compromises the integrity of inspection and maintenance operations.
In addition to this statutory non-compliance, deficiencies in inventory management, procedural
guidelines, information accessibility, and staff training were noted. These gaps hinder effective
culvert management and may compromise full compliance with FHWA standards. Unclear
delineation of responsibilities between the Highway Maintenance and Engineering Divisions leads
to inefficiencies, conflicts, and project delays, affecting task statuses, roles, and overall staff
expectations.
Increased issues in vegetation management due to restrictions on certain products and delays in
completing work orders further impede maintenance efforts and could lead to increased future
costs. Restrictions on certain products compound these issues. Furthermore, interactions
between DPW staff and contracted engineers regarding inspection reports reveal concerns about
efficiency and clarity, with scrutiny over inspection reports and redundant detail requests
potentially delaying report completion and compromising future inspections’ effectiveness.
In conclusion, addressing these challenges requires a comprehensive approach that includes
improved communication and coordination, clarification of roles and responsibilities, compliance
with HRS 464 requirements, enhancing inspection processes, and providing adequate resources
for maintenance and vegetation management. By tackling these issues, the Department of Public
Works can better ensure compliance with FHWA standards and other relevant regulations while
safeguarding the integrity of the County's bridges and culverts.
To improve government accountability and ensure audit recommendations are implemented or
resolved, we will continuously monitor the status of pending recommendations using our
remediation tracker. To view the status, visit us at: https://www.hawaiicounty.gov/our-
county/legislative/office-of-the-county-auditor/remediation-tracker
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45 | M a n a g e m e n t R e s p o n s e
Chapter 4
Management Response
November 25, 2024
Mr. Tyler Benner
County of Hawaii
Office of the County Auditor
120 Pauahi Street, 209
Hilo, HI 96720
Subject: Response to Audit Report No. 2024-03
Department of Public Works – Bridges and
Culverts Dear Mr. Benner,
The County of Hawaiʻi Department of Public Works (DPW) is providing this response to
the referenced Audit Report dated November 25, 2024. In general, DPW agrees with the
findings, however, as noted within this response, DPW offers clarification on some of the
conclusions drawn by the Auditors.
Finding 1: Non-Compliance with HRS 464
This finding is a result of DPW bringing to the attention of the Auditors that HRS 464-4
Public Works requirements are not presently being met, as the Highways Division
undertakes maintenance work as defined in this Chapter without a licensed professional
engineer observing the work. The Audit confirms that “DPW needs to bring its practices
into compliance with HRS 464-4 by ensuring that appropriately licensed professionals
46 | M a n a g e m e n t R e s p o n s e
oversee critical infrastructure projects assessing its organizational structure to align with
current legal requirements.” Further, the Audit indicates that “management should
determine the appropriate placement of these licensed professionals within the hierarchy.”
DPW agrees with this finding. Similar to Building, Traffic and Engineering divisions, the
Highways Division should be led by a licensed professional who has responsibility to oversee
maintenance work being performed. Other options to consider would be placing a licensed
engineer in the Highways organization, or possibly re-organizing DPW so that Engineering
and Highways are under the responsibility of one chief who is a licensed engineer. Once a
path is selected, DPW will work with Human Resources to ensure compliance.
Finding 2: Incomplete Culvert Inventory
This finding states that “DPW lacks a comprehensive inventory of all County culverts.”
Further, the Audit indicates that “lack of a comprehensive inventory increases
inefficiencies in maintenance planning and allocation of resources, leading to potential
delays in repairs, increased risk of infrastructure failures, and difficulties in addressing
critical issues promptly.”
DPW acknowledges that preparation of the inventory of culverts is incomplete and will
incorporate the findings into the plan forward to enhance and expand the County’s culvert
inventory. Use of the asset management system (iWorQ), training of field personnel, and
GIS mapping tools will improve the overall inventory. Highways have two workers in each
District tasked with locating culverts to complete the culvert inventory. DPW estimates the
culvert inventory could be completed within a year.
Finding 3: Lack of Culvert Policies and Procedures
The Audit found that “the Highway Maintenance Division was practicing a process for
culvert maintenance; however, as of August 2023, formal written policies and procedures
were lacking. The last set of written policies and procedures, which were used in December
2011, are obsolete.”
DPW acknowledges the need to complete work tasks efficiently and in a consistent manner.
To this end on April 15, 2024, DPW Highways contracted consultant Berry Dunn to update
all work policies and procedures, including standard operating procedures (SOP’s) for safety
and work practices. The documents are expected to be finalized by early 2025. Sessions will
be scheduled with each District to introduce the documents and help staff develop a good
understanding of proper operating procedures.
Finding 4: Undefined Roles and Responsibilities
This finding suggests that lack of clearly defined roles and responsibilities within the DPW
organization arises from a lack of communication and coordination within DPW divisions,
coupled with lack of consistency perhaps between position descriptions and actual
47 | M a n a g e m e n t R e s p o n s e
responsibilities regarding various bridge and culvert maintenance elements. The causes of
this are likely historical differences amongst divisions in authority and responsibility
assigned for completing work assignments.
DPW acknowledges the need to improve processes and establish better structure and
clearly assigned roles so that work can be assigned, performed, and monitored in a manner
that continues to ensure the public’s safety. DPW is working to improve in defining roles
and responsibilities throughout the department and County.
Finding 5: Lack of Interdepartmental Communication
The Audit found the need to improve interdepartmental communication, as current
weaknesses in the area have the potential to delay or cause regular maintenance to be
missed. Much of this appears to be due to silos which have developed through many years
of DPW work, likely caused by management styles and personalities of division leaders.
DPW acknowledges the need to improve communication amongst its staff tasked with
planning, scheduling, performing, and checking maintenance of culverts and bridges. Some
of the ways to improve could include joint training in the updated SOP’s; improving the
work order system; joint use of the asset management tools for scheduling maintenance by
Engineering and Highways; and formal process to document that maintenance work meets
applicable State and Federal standards.
Finding 6: Lack of Routine Maintenance and Repairs
This finding states that “DPW lacks a maintenance schedule and clear deadlines to
effectively manage the County’s bridges and culverts.” This comment likely comes from
the current practice of the Engineer Division writing work orders for Highways, not
assigning a “due by date,” and not having a process to check that the work has been
completed sufficiently.
DPW acknowledges the need to develop a better process for scheduling bridge and culvert
maintenance. DPW will utilize Highways’ asset management system (iWorQ), train field
personnel, and create consistency in work practices using updated SOP’s, which will go a
long way toward improvement.
Finding 7: Reliance on Contractors
The Audit indicates that DPW should “establish a process for independent reviews to verify
and confirm accuracy and continuity in contracted bridge inspections.” It seems that DPW
Engineering is not as engaged in the inspection process as it should be, not accompanying
contracted engineers on inspections to confirm what is being reviewed.
DPW acknowledges that this is an area for improvement. Engineering has recently
awarded another consultant to review bridges. Engineering completed a review of the
contract to ensure that the scope of work is complete, and expectations for work products
48 | M a n a g e m e n t R e s p o n s e
are clear. Further, Engineering will develop a process to accompany the contracted
inspectors on up to twenty percent of site visits. The recent addition of a second bridge
engineer provides the additional capacity to accompany inspectors.
Final Thoughts
While the results of the Audit Report have identified a number of issues, it is important to
note that despite the identified areas for improvement, DPW continues to maintain
infrastructure and the safety of the public has not been compromised. There is always
room for improvement in areas of inter-departmental communication, inventorying of
assets, documentation of standard operating procedures, consistency of maintenance
practices, use of automation to improve efficiency of work practices, and better
management of staff and consultants.
Thank you for the opportunity to provide this response.
Very truly yours,
Stephen M. Pause, PE
Director
cc. M. Kekai, Deputy Director, DPW
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Tyler J. Benner
County Auditor
County of Hawaiʻi
Office of the County Auditor
120 Pauahi St., 309
Hilo, HI 96720
808.961.8386
www.Hawaiicounty.gov
The Office of the County Auditor is tasked with promoting accountability, fiscal integrity, and openness in local
government. Our work is intended to assist County government in its management of public resources, delivery of
public services, and stewardship of public trust. Copies of this audit report can be obtained by contacting the
Office of the County Auditor or visiting our website: https://www.Hawaiʻicounty.gov/our-county/legislative/office-of-
the-county-auditor/audit-reports