01-67Council File # p�� G7
OR(GINAL
Green Sheet # � 11j)�b
RESOLUTION
Presented
Referred To
Committee Date
RESOLUTIONAccepting the Council Researc& Perfor�nance Audit ofthe Saint Paul Cifizen Service O�ce
1 WHEREAS, the Saint Paul City Council has directed the City Council Investigarion and Reseazch Center to conduct
2 performance audits of City departments to examine their policy compliance and determine the level of efficiency and
3 effectiveness of City operations; now, therefore, be it
4 RESOLVED, that the Saint Paul City Council accepts the report titled "Performance Audit of the City of Saint Paul's
5 Citizen Service Office," and requests the director of the Citizen Service Office to provide to the City Council a response
6 to the performance audit findings at the February 7, 2001 Council meeting.
7
Requested by Deparnnent of:
By: t� \`��-� ,���..��
Approved by Mayor: Date �ili( c �j � y� l
B _
OF SAINT PAUL, MINNESOTA
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Form Approved by City Attorney
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Approved by Mayor for Submission to Council
Adopted by Council: Date � �
Adoption Certified by Council Se tary
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Performance Audit of
Saint Paul's
Citizen Service Office
January 2001
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PERFORMANCE AUDIT PURPOSE
Saint Paul City Council
Council Research Report
0 � '`�
The Saint,Paul City Council established the Performance Audit Program to help fulfill two major legislative
oversight responsibilities:
■ Ensure City practices are consistent with City policies; and
■ Assess the degree of efficiency and effectiveness with which City policies are being carried out.
This performance audit examines the activities of the Citizen Service Office (CSO), which includes four
divisions: Information and Complaint, Marketing and Promotions, City Clerk/Records, and Code Enforcement
Programs.
CITY POLICIES
In its effort to identify policy statements relating to CSO activities, Council Research reviewed City Ordinances,
City Council resolutions and 2000 Budget Performance Plans. The City's Housing Plan Chapter of the
Comprehensive Plan and the 2000 Housing Action Plan were also reviewed.
EFFICIENCY AND EFFECTIVENESS
The City Counci) wants to know if the Citizen Service Office is operating at an optimal level of quality and, if
not, what can be done to remedy any deficiencies preventing it from achieving the level of exoellence expected.
Information needed to review the CSO was obtained through document-review, site visits, interviews and an
Offtce-wide survey. The seven criteria used to assess organizational development and to identify quality
organizations are: planning, leadership, training and development, information and analysis, processes for
improvement, customer focus and results.
MAJOR FINDINGS - POLICY COMPLIANCE
■ The CSO is generally in compliance with relevant City policies, with the exception of some Budget
objectives.
■ The CSO is in compliance with records retention requirements, but the CSO should develop more formalized
administrative practices to increase efficiency and ensure compiiance by other City departments.
■ We found no enabling legislation in City Code for the Marketing and Promotions Division.
■ The CSO should develop formal administrative practices to ensure compliance with trade secret storage
requirements.
MAJOR FINDINGS - QUALITY ASSESSMENT
■ The CSO prepares very few plans with the exception of the Ivlarketing and Promotions Division.
More Findings -�
�.ti
■ Staff feel the values of the organization, though informal, are exemplified by the Office's management staff.
■ Communication at all levels and between all divisions within the Office is relatively poor.
■ Staff are encouraged to attend training and training resources are readily available.
■ The work environment of Code 6nforcement has reportedly improved since they were moved to the CSO.
However, some problems still exist with staff being placed in different locations and the fact that the files are
located downtown, while most Code Enforcement inspectors are located at the Police Department's Eastern
Patrol District building.
■ The Citizen $ervice Office collects little data and performs virtually no analysis or results measurement.
■ Staff are very focused on providing goqd customer service. However, they do very little assessment of
customer needs and satisfactiom.
EFFICIENCY AND EFFECTIVENESS RATINGS
Council Research developed a summary rating system we believe conveys the essence of our findings concerning
the City's Citizen Service Office and the seven efficiency and effectiveness criteria used in the assessment. Each
area assessment was assigned a"star" rating based on how fully developed and practiced a criterion was
throughoutthe organization.
Key to Efficiency and Effectiveness Rakings
**** � Criteria fully developed and practiced throughout the organization.
*,t * � Criteria well developed and practieed throughout most of the organization
** —i CriYeria present and practiced in some parts of tha organization. ,
* � Criteria very rarely present or practiced in the organization.
Citizen Service Office
* Planning
*YZ Leadership
** Training and Development
*'/z ' Information and Analysis
RECOMMENDATIONS
and Effectiveness
* Improvement Processes
**%: Customer Focus
*'/a Resulks
Thirty-six recommendations are made concerning policy compliance arid twenty-nine recommendations are
offered conceming the'efficiency and effectiveness criteria. The most significant .recommendations pertain [o:
■ creating a useful strategic plan for the CSO;
■ improving communication and employee input;
■ measunng results;
■ measuring customer satisfaction and naeds; and
■ developittg meaningful budget objectives.
FOR QUESTIONS, COMMENTS OR A COPY OF THE REPORT
PLEASE CONTACT
Geny Strathman, Council Research Director
at
(651) 266-8575 or crry.strathmail(c�stpaul �ov
D l-��
CITY COUNCIL RESEARCH REPORT
Performance Audit of
The City of Saint Paul's
Citizen Service Office
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Saint Paul City Council
Council Investigation and Research Center
Saint Paul, Minnesota
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Saint Paul City Council
City Council Investigation &
Research Center
Saint Paul, Minnesota 55102
651.266.8560
http:/1www.ci.stpau I. mn. us/council/circ.html
Performance Audit of
The City of Saint Paul's
Citizen Service Office
January 2001
Director
Gerry Strathman
Policy Analysts
Jennifer Dunn
David Godfrey
Kenneth L. Smith
Questions?
If you have questions regarding this
report please contact
Gerry Strathman at
651.266.8575 or
gerrv. strathman Ca�ci.stpa ul. mn. us
City Council Research Report
TABLE OF CONTENTS
6l-��
Performance Audit of
The City of Saint Paul's
Citizen Service Office
INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . 1 Special Prograzns & Units of Code
Enforcement .................... 39
CITIZEN SERVICE OFFICE OVERVIEW .... 4 Rental Registration Program ..... 39
Vacant Buildings Unit . . . . . . . . . 40
POLICY ALIGNMENT Special Initiatives . . . . . . . . . . . . . . . . . . . 43
Information & Complaint Division . . . . . . . . 5 PP2000 . . . . . . . . . . . . . . . . . . . . . . . . 43
Objectives of the Ci6zen Service Program . 6 Daytods Bluff Initiative ........... 44
Common Complaints . . . . . . . . . . . . . . . . . 7 Sweep/Surveys . . . . . . . . . . . . . . . . . . 45
Snow and Ice Removal . . . . . . . . . . . . . 8
Abandoned Vehicles . . . . . . . . . . . . . . . 8
City Clerk/Records Division . . . . . . . . . . . . . 10
Records Retention . . . . . . . . . . . . . . . . . . . 10
Documents Maintained by the CSO ..... 12
Documents to the Public Library . . . . . . . . 14
Elections .......................... 15
Initiative, Referendum and Recall . . . . . . . 16
Abandoned Property . . . . . . . . . . . . . . . . . 16
Oath of Office and Bonds for
City Officials . . . . . . . . . . . . . . . . . . . 17
Peritions Regazding Public Nuisances .... 18
Trade Secret Information . . . . . . . . . . . . . 18
Public Information Meetings . . . . . . . . . . . 20
Campaign Contributions . . . . . . . . . . . . . . 20
Condominium Conversion Notices . . . . . . 21
Marketing & Promorions Division . . . . . . . . 22
Mazketing and Promotions Policies ...... 22
ORGANIZATIONAL QUALITY
ASSESSMENT ....................... 47
Planning ............................. 50
Leadership ........................... 54
Training & Development . . . . . . . . . . . . . . . . . 59
Information & Analysis . . . . . . . . . . . . . . . . . . 65
Improvement Processes . . . . . . . . . . . . . . . . . 70
Customer Focus . . . . . . . . . . . . . . . . . . . . . . . 74
R esults ..............................79
PERFORMANCE MEASURES . . . . . . . . . . . . . 84
CONCLUSION .......................... 87
APPENDIX A: Resources . . . . . . . . . . . . . . . . . . 90
Code Enforcement Division . . . . . . . . . . . . . 24
Code Enforcement Organizational Chart .. 26
Overlapping Interests of Code Enforcement &
Other Departrnents . . . . . . . . . . . . . . . 27
Code Enforcement Objectives . . . . . . . . . . 28
Minimum Property Maintenance Standards
& Excessive Consumption Fees . . . . . . . . 30
Certain Nuisance Dwellings . . . . . . . . . . . 32
Nuisance Abatement . . . . . . . . . . . . . . . . . 33
Truth in Sale of Housing . . . . . . . . . . . . . . 33
Housing Plan Chapter of the Saint Paul
Comprehensive Plan . . . . . . . . . . . . . . 34
Housing Action Plan 2000 . . . . . . . . . . . . 38
APPENDIX B: CSO "2000 Strategic Plans" .... 92
APPENDIX C: Excecpt from the "Agreement
Between Ramsey County and the City of Saint
Paul for Election Office ManagemenY' ...... 93
APPENDIX D: Vacant Building Categories ... 94
APPENDIX E: Compilation of
Recommendations ........ ... .... .... . 95
APPENDIX F:
CSO Performance Audit Survey . . . . . . . . . 102
o!-��
Pedortnance Audit of the Ciry of Saint PauPS Citizen $ervice O�ce
INTRODUCTION
The City Councii, as the goveming body of the City of Saint Paul, ls responsible for establishing
City policies and ensuring that City practices aze consistent with these policies. As the body
responsible for approving the City Budget and authorizing the ta�c levy, the Council must also
assess the efficiency and effectiveness of City operations. Therefore, the City Council
established the Performance Audit Program in the fall of 1996 to help it fulfili these legislative
oversight and budgetary responsibilities and directed Council Research to conduct performance
audits of City operations. Performance audits analyze the consistency of departmental practices
with City policies, as well as provide insight into how policy directives aze implemented. The
performance audit also examines whether an organization's practices aze efficient and reflective
of those used by high-performing organizations.
SCOPE OF PERFORMANCE AUDIT
This audit is an examination of the policy compliance, efficiency and effectiveness of the Citizen
Service Office (CSO). The Office is composed of four divisions: Code Enforcement Programs;
Marketing and Promotions; Information and Complaint; and City Clerk/Kecords.
Poticy Compliance
The City Council establishes policies to govem the operations of all City activities including the
divisions of the Citizen Service Office. While there are many general City policies which affect
all City activities, this report addresses only policies which apply specifically to the functions of
the CSO. In order to determine the extent to which CSO activities aze consistent with City
policies, it is necessary to identify policies the City Council has established regarding their
functions. To this end, we have reviewed CiTy Ordinances, City Council Resolutions, the
Housing Plan Chapter of the City's Comprehensive Plan, the Housing Action Plan 2000, and the
2000 Budget Activity Performance Plans to isolate any policies adopted by the City Council as
part of the annual budget procesa The first section of this report identifies City policies related
to the Citizen Service Office and assesses the extent to which actual practices are consistent with
CiTy policies. Where discrepancies aze found, the reason offered for these differences will be
provided along with recommendations to bring policies and practices into alignment. These
recommendations may suggest changes in Office practices, City policies or both.
City Ordinances and Council Resolutions
We have searched the City Charter, the Legislative and Administrative Codes, and City Council
Resolutions for policies pertaining directly to activities of the CSO. The City's Administrative
Code is the compilation of City Otdinances which pertains to how City govemment is structured
and should operate. The Legislative Code is the wmpilation of ordinances which regulates
citizens and property owners of the City. The Code is usually explicit and leaves little room for
administrative discretion concerning the execution of ordinances. The Council would view
2000 Samt Pau1 Crty Counci! Research
�`-� �
2 Perfortn Audi[ of ffie City of Saint Paul's Citiien Serv�ce Office
failure to comply with the City Code to be a serious matter. Council resolutions aze forma]
expressions of opinion, intent or will that, if passed by the Council and approved by the Mayor,
become City policy. The sections of this report which focus on City Ordinances and Resolutions
will identify any differences between policies and pracrices and offer recommendations to resolve
inconsistencies.
Comprehensive Plan and Kousing Action P[an 2000
The City of Saint Paul maintains a Comprehensive Plan that defines the City's plan for most
City services. The chapters of the Comprehensive Plan are created through a careful and usually
lengthy process invoiving many parties and interest groups. The most rec;ent version of the
Housing Plan Chapter of the Comprehensive Plan was formally adopted by the City Council in
Mazch, 1999. It stands as a written statement of the City Council's policy expectations for
housing in Saini Paul. The Housing Action Plan 2000 is an implementarion plan for action to be
taken during 2000 to implement the policies in the Housing Plan and the Saint Paul-Ramsey
County Five-Year Low Income Housing and Homeless Services Report and Plan.
Since the plans aze not explicit policy directives, some differences are eacpected between the
Plans and actual activiries. Eiowever, such differences should be periodically resolved by either
changes in practice or revisions of the Comprehensive Plan or Housing Action Plan. This report
will idenrify the differences between policies, as stated in the Comprehensive Plan and Housing
Action Plan, and current practices in the CSO and offer recommendations to resolve any
inconsistencies.
Budget Performance Plan
Each year, as part of the City budget process, the Citizen Service Office presents Activity
Performance Plans for each of its divisions and its "Strategic Plans°' to the City Council for
approval as part of its Office budget. These "Strategic Plans" identify both the ongoing and
annual objectives of each budget activity. The City Council then adopts these objectives as part
of its adopYion of the annual City budget, and, as such, these objectives represent City policies.
While the Council understands that objectives set as part of the budget process may be ambirious
and are sometimes thwarted by unforseen developments, the City budget is an official City
policy document and the CSO is responsible for operating in conformance with these adopted
poticy statements. The sections of this report which focus on budget performance plans will
identify differences between policies and practices and provide the division's explanations of
these differences. Recommendations will also be offered to minimize such differences in the
future.
Efficiency and Effectiveness
The Ciry Council is very interested in the value received by citizens for money eJCpended.
Taxpayers rightly expect that money provided for the Ci6zen Service Office will be spent to
�These "Strategic Plans" do not meet what most eacperts in public management define as a strategic plan. This
discrepancy will be discussed further throughout the audit.
2000 Saint Paul City Coumcil Research
Perfom�ance Audit of fie Ciry of Saint Paul's Cipzen Service Office
oi-�7
3
achieve the best result with the least expenditure ofpublic funds. The efficiency and
effectiveness of govemment operations can be assessed in many ways. One common approach is
for auditors to examine an organization at a micro-levei to try to determine if the organization is
following sound procurement practices, properly protecting its resources, and complying with the
requirements of laws and regu]ations. This micrwlevel approach to auditing is c3osely related to
financial auditing and is often conducted by accountants who spend a great deal of time and
effort examining the inner workings of the organization. While we accept there aze situations
where this type of micro-level auditing is appropriate, such as when fraud is suspected, we
believe a higher level audit is most appropriate here. The City Council is less concerned with the
minutia of daily operations and more concemed with lmowing if this is a top-quality
organization. If not, the Council is interested in knowing what can be done to remedy any
deficiencies preventing them from achieving the level of excellence expected.
The efficiency and effectiveness of the C50 are evaluated using an Organizational Quality
Assessment. While there aze several methods to evaluate effectiveness and efficiency, our
approach is based on work done by the organizers of the Malcolm Baldrige National Quality
Awazd who identified the characteristics of a high-performing organization. The categories and
criteria aze explained in the introduction of each Quality Assessment chapter of this report.
RESEARCH METHODS
Policies pertaining to the functions of CSO were gathered from the Saint Paul Administrative
Code, the Saint Paul Legislative Code, City Council Resolutions, the Housing Chapters of the
City's Comprehensive Plan, as well as the CSO's own internal plans, policies and budget
objectives. It is not Council Reseazch's intent to make specific findings on every in&vidual
policy statement. Rather, we focus on groups of policies that relate to specific functional azeas
within CSO. It is our belief this approach is more useful to both policy makers and par[icipants
in understanding how to improve the efficiency, effectiveness and compliance of the
organization.
We believe the best way to assess the level of organizational development is to ask those most
knowledgeable about the organization—the people who work in the organization. We believe
the employees who work in the Citizen Service Office best lrnow the strengths and weaknesses of
their organizations and will, when asked, candidly report their opinions. Therefore, we have
gone directly to CSO staffto ask them about their work. We were able to administer a written
survey to 29 of 40 (72 percent) CSO staff (there were two vacancies at the time of the survey),
and we also conducted 20 interviews with CSO staff members. Audit team members also
participated in a ride-along with inspectors to gain first-hand knowledge of how inspections aze
conducted. The findings and recommendations in this report aze based on these sucveys,
interviews and site visits, as well as an examination of written materials related to the CSO's
practices.
2000 Saint Paul Ciry Council Research
°l
PerFormance Audit of the City of Saint Paul's Ciuun Service Office
CITIZEN SERVICE OFFICE OVERVIEW
The Citizen Service Office is composed of four very distinct divisions, listed in the chart below.
The diversity of the furictions of the CSO made this audit both very interesting and somewhat
more complicated because at times it seemed as though we were examining four ofiices rather
than one. The Director of the CSO oversees all the divisions, and has d'uect responsibility for the
Information and Complaint Division, which does not have a separate manager, as the Code
Enforcement, Mazketing and Promotions, and City Clerk/Rewcds divisions have.
The following table outlines the basic functions of each area and the number of staff positions
assigned to each area. The policy compliance sections for each of the divisions will discuss
further their respective responsibiliries.
Divisions of the Citizen Service Office
City • keep all City records, proceedings, official books, papers, seal and
Clerk/Records documents
• provide documents upon request
• document preservarion
• pmcess peritions, claims, summons, wmplaints
3 employees • process norices of vacations for right of ways
• administer appeals to the Legislative Hearing Officer
• administer oath of office to elected and appointed officials
Information & • serve as an advocate for residential and corporate cirizens in responding
Complaint to requests and coruplaints regazding City services
• provide public informa6on to callers and walk-ins regazding City
S employees services and events
• provide call-backs to citizens who call in with concems
Mazkefing & • pmmote Saint Paul ttu�ough various events
Ptomotions • secure movie production contracts for filming in Saint Paul
• assist City neighborhood groups with marketing their events
S employees • produce the "Residents' Guide"
• develop and maintain the City's website
• publish "City Update" for City employees
Code • enforce minimum housing and health codes on all interior one- and
Enforcement two-family homes and on all extetior properties
Programs • monitor vacant buildings
• participate in special programs as requested by district councils and
31 employees other neighborhood groups
• administer the Tnrth-in-Sale of Housing prograin
• administer Rental Registration
2000 Saint Paul Ciry Council Research
6I-(�y
Perfortnance Audit of Ihe City of Stint Paul's Citizen Service Office
POLICY ALIGNMENT
This chapter presents the policies under which the Citizen Service Office is expected to operate
and the degree to which the current practices are consistent with those policies. Council
Research gathered policies from a number of sources including ordinances, resolutions, the
City's Comprehensive Plan and the City's Budget. They are organized according to which
division maintains the most responsibility for compliance. We have highlighted in boxes either
those policies that deserve special mention or those policies with which the Office is not in
compliance. The policies we examined are listed in total in Appendix A.
INFORMATION & COMPLAINT DIVISION
The Information and Complaint Division of the Citizen Service Office is responsible for
providing information concerning City matters to the public. It also serves as an advocate and
liaison by helping citizens resolve issues relating to City services. The complaint or request
process begins with a phone call, walk-in, or e-mail complaint or information request directed to
Information and Complaint staff. Walk-in customers speak with an analyst and fill out a
complaint form, and the information is then entered into the computer and the appropriate City
department is contacted by the analyst. Those phoning in complaints give their information to
the Citizen Service analyst who then follows the same process described above. E-mails aze
reviewed and responded to by a Citizen Service Analyst and logged into the computer in the
same manner as other complaints. If the department does not respond to the complaint within a
specified amount of time, usually five days, the analyst contacts the agency and asks them when
to expect a response.
A wide azray of complaints come into the Information and Complaint Division. On a given day
a Citizen Service analyst may deal with complaints about snow and ice removal, abandoned
vehicles, fallen trees, house parties, animals, excessive gazbage, pot holes, or water main breaks.
Information is sought on neighborhood and City-wide events, City department responsibility,
snow plowing, pazking and elections.
This Division works closely with the Pazks and Recreation Division, the Police Department, the
Public Works Depactment, the Office of License, Inspections and Environmental Protection, the
City Council and the Mayor's Office. Within the CSO, the Information and Complaint Division
has a regular working relationship with the Code Enforcement Division. Many ofthe complaints
received by the public have to do with property code viotations. Once a complaint has been
taken, a letter is sent to the subject of the complaint and the complaint is forwazded to Code
Enforcement inspectors, whereupon they schedule a site visit. Analysts sometimes follow-up
with a call-back to the complainant to ascertain their level of satisfaction.
Information and Complaint Policies
The foliowing box highlights the City Code and City Budget policies that relate directly to the
Information and Complaint Division.
2000 Saint Pau! Ciry Council Research
° �7
6 Pe Audit of the City o f Saint Pa Cipzen Service Office
Objectives of the Citizen Service Program
AdministraNve Code Chapter 2. Office of the Mayor. Sec. 2.20. Objectives of Ci6zen Service
Program.
The following objectives aze hereby established for the Citizen Service Progam:
(1) To act as av advocate for citizens in responding to requests and complaints that pertain to City
services.
(2) To work closely with all City depamnents to constantly improve the City's response to requests
and complainu.
(3) To report regulazly to the mayor and the City council on the performance of City deparunents
in response to requests and complainu and the relative sarisfaction of the citizens with the
City's response.
(4) To work closely with City-wide information services to operate a fully computerized complaint
referrat and fo[low-up system.
(5) To pmvide public infotmation on City services, events, and who to contact for response to
requests and complaints.
2000 City Budget: Information and Comptaiut Divisiou Activiry Performance Plao
• Work closely with Information Services to develop a fully computerized compiaint refeaat and
follow-up system to be used Citywide. (i.e. postcards to complaints with complaims info,
survey, follow-up, etc.)
• Serve as an advocate for residential and corporate citizens in responding to requests and
complaints that pertain to City services.
� Work closely with all City offices/departments to consistent[y improve the City's response to
requests for service.
• Report regulazly to the Mayor and City Council on the performance of City departrnents/offices
in responding to requests for service and the retative satisfaction of citizens and businesses with
the City's responses.
• Work closely with Information Services to develop a fully computerized complaint referral and
follow-up system to be used Citywide.
• Provide public informarion to callers regarding City services and evenu.
• Build citizen-business loyaity by providing high quality customer service.
• Be proactive in gaining awareness regazding upcoming problems related to Ciry
depaztments/offices and make policy recommendations.
• Upon receiving a response Yo a complaint from a City office/depamnent, provide a callback to
citizen(s) within three working days.
• Make the Citizen Service phone number and www address readily available for citizens and
visitors.
• Administer employee progracu to enhance wmmunity involvement.
Findings
1) The Division compiles a five-day-late report for all unresolved complaints. This report is
distributed to the Mayor, City Council and department and office directors.
2) The Information and Complaint Division has not compiled customer satisfaction information
or distribute it to the Mayor and Council as stated in the 2000 Budget Objectives and in City
Code. They state they are unable to because the current computer system (EXL) is not able to
Z000 Saint Paul Ciry Council Research
ol -l�'1
Perfom�ance Audit of the Ciry of Saint Paul's Cf4zen Service Office
retrieve reliabie data (see the following finding for further discussion). Ttiey aze also not
working closely with other departments to unprove the City's response, nor are they actively
build citizen-business loyalty by providing high quality customer service since they have no
gauge of their level of service.
3) The Information and Complaint Division is working with the Office of Technology and
Management Services to deploy the AMANDA system throughout the Division. This system
wi11 replace the currern EXI, system which is old and incapable of ineeting the Division's needs.
AMANDA is currently being used in LIEP and is expected to be used by Code Enforcement and
Fire Prevenrion as well. According to the Director, funding for the new system has been sought
for several years. This year funding was finally included in the CSO's 2000 budget.
4) The Division provides very limited call-backs to citizens. It is unclear if they are done within
three days. No data aze kept to corrobonte this objective.
5) T'he Division does not administer employee programs to enhance community involvement.
Rather they encourage certain employees to attend community meetings and put out broad calis
for volunteers to staff City events and activities, such as Habitat for Humanity.
Recommendations
Recommendation #1. The Information and Complaint Division should resume providing
customer satisfaction data to the Mayor, City Council and department and offzce directors, as
well as to other staff in t&e Citizen Service O�ce. Other computer systems could be used to
prepare the reports until the AMANDA system is fully operationaL 77xey must also set a high
standard for doing call-backs, such as a setting a goal of calling back 90 percent of adl
complainants within three days.
Recommendation #2. The Citizen Service Office should prepare an annual report for the Mayor
and City Council clearly showing each deparhnenYs response times to complaints and inquiries,
as well as customer satisfaction data. The data should be delineated by departmenz They
should create an objective to provide this information af least annually, if not more often.
Recommendation #3. The City Council should direct Council Research, the Citizen Service
Of�ce, and the Planning and Economic Development Department to conduct a Ciry-wide survey
to ascertain tke Ieve1 of citizen sarisfaction with Cdry services and citizen service needs.
Common Complaints
The Information and Complaint Division is responsible for taking complainu and responding to
inquiries about all City ordinances. We have two common areas of complaints: snow shoveling
and abandoned vehicles. These examples provide a brief ilh�stration of how the CSO processes
complaints and inquiries.
Z000 Salnt Pmd City Council Ruearch
°j �7
Performance Audit ofthe Gry of Saint Paul's Citizen Service Office
Snow and Ice Removal
Saint Paut Legislative Cade Chapter 113: Snow and Ice on Sidewalks
Se�. 113.02. Snow and ice removal from sidewalks.
The owner or occupant of any building or lot abutting a public sidewalk is responsible for and shall
remove any accumulation of snow and /or ice from said public sidewalk within tw�nty four (24)
hours after the sr�ow and !or ice has ceased W fatl, gather or acc�unulate.
Sec. 113.04 Notice.
Before the departmeni shall abate such nuisance, ii shall serve or caase to be served upon the owner
or occupant of the abutting property a written norice informing the property owner or occupant that
a complaint has been received by the City indicating the ice and / or snow has not been retnoved
from Yhe sidewalk wiYhin twenty fo�s hours {24)... . If upon inspection by the department the
sidewalk is found to be in violation of Sec[ion 113A2, the department may immediately schedu]e
abatement.. .
Finding
When asked how they implement Section 113.04 of the Saint Paul Legislative Code, we found
all snow and ice removal complaints are entered into the computer and a letter is generated and
sent to the offending pariy. Staff claim the letter is helpful in getting compliance. Code
Enforcement verifies the compIaint and issues an order to make correcrions. If the snow or ice is
not removed witrun two to three days, a summary abatement is conducted and the City chazges
the property owner for the cost of the removal.
Abandoned VehicIes
Saint Paul Leg. Code Chapter 163. Abandoned Velucles
Sec.163.04 Custody of abandoned vehicles.
The city hea&fi officer or enforcement officiais oftfie division offiousing and bui[ding code enfomement for
the city aze hereby auzhorized to remove or have cemoved any motor velucle left at any place within the city
which seasonably aopeacs to be in violation of Hvs chapter or lost, s[olea or unclaimed. The impoundiag and
takiag iaio custody of a motor velucle pucsuart to this c}�apter shalI be done with the assisiance of a Qo&ce
of&oev A police officer, heaiffi officer or enforcement official of ihe division of housing and buiiding code
enforcemeat for the city may euter upon pdvate propecty at all reasonabie hours for the purpose of
iospecting such vehicle and impoimding such velticie, and it sfiall be uqlawful for any peison to prevent a
policeman, health officer or enforeement official of the division of housing and building code enforcement
for the city from eatering oa pdvate property for the pmposes of carryiag out Lis duries hereunder or to
interfere with Irim in the lawful perfocmance of his d�es.
Finding
We found the CSO informs the Police Department if an abandoned vehicle is on public property,
and Code Enforcement if it is on private property. I-Iowever, staff fek it was better to direct ihe
complainant to calt Pazking Enforcement directly for faster service. Complaints made througii
the CSO and then passed on to the Police Department and then to Pazking Enforcement can take
2000 Saint Pau7 Ciry Council Resecvrh
PerFoxmance Audit of ihe Ciry of Saint Pwl's Citizen Service Office
DL-{p`1
9
longer to be resolved because of the Police Department's internal complaint process. If Parking
Enforcement is called direcUy, Parking Enforcement officers mark the car with chalk and have it
towed or tagged if it is not removed within 48 hours. It is appazent from this example that
different deparunents, and perhaps even different staff, handle complaints differentiy. It was
reported thaz some staff in other depar[ments take complainu without notifying the CSO, others
take the complaint and forwazd the information to the CSO, and finally others simply tell the
complainant to contact the CSO direcfly themselves. The City has no set procedure for handling
complaints beyond the CSO's own intemal policies. This convoluted system can only contribute
to a compiainants dissatisfaction and frustration with the City.
Recommendation #4. The CSO should work with other departments, such as the Police
Deparhnent, LIEP, Fire Prevention, and Public Works to create a plan or system to follow so
that complaints are addressed quickty and uniformly. Spec�c data should be compiled on when
a complaint is received arrd forwarded to the department, to whom it is forwarded, when a
"service " was rendered, and when a response u received. Information on complaint resolution
should be made part of the five-day Zate report.
2000 Saint Pau! Ciry Council Research
0`-�7
1 � Per Audit of the Clty of Saint PauPs Ctizen Service Office
CITY CLERK/RECORDS DIVISlON
The City Clerk/Records Division is responsible for maintaining the City of Saint Paul's official
(govemment) recorded history. Three employees maintain and preserve all records of the City
including: minutes, resolutions, ordinances, official books, papers and notices of public hearings
as required by the Charter and other applicable law. The Division accepts petirions and
determines their sufficiency. It is also keeper of the City Seal which, by law, must be affixed to
certain documents. Because of its close physical proximity within the office to the Information
and Complaint Division, the Records Division interacts with the public by providing informarion
and assistance to walk-in and phone-in requests as well. The Division accepts summons, claims,
petitions and other legal documents on behalf of the City. The Assistant City Clerk works with
Ramsey County by overseeing the County contzact for City election services. The City Clerk
administers the oath of office to elected and appointed officials. Finally, the Division accepts the
paperwork and fees associated with appeals to the Legislative Hearing Officer, schedules the
hearings and sends the appeal notice to the appellants. The Division is govemed by State
legislation, City Ordinances and the Budget policies highlighted in the boxes throughout ttus
section.
Records Retention
Miunesota Statutes 138.17 Goveroment records; administration.
Subdivision 1. Destruction, preservatioo, reproduction of records; prima facie evideoce. (a) The
attomey generat, legislative auditor in the case of state zecozds, state auditor in the case of local iecords, and
d"uector of The Minnesora lvstorical society, hemina8er dizectoz shall constitute the records dispositioa
panel.lLe membeis of the panel shall Lave power by majority vote W direct the desRUCtion or sale for
salwage of gov�;mment cecords determined to be no longer of any value, or to direct the disposition by gift to
the I�Twnesota historical society or otherwise of govemmem records determined to be valvable for
preservat(on... .
Subd. 7. Records management program. A records m��a progam for the application of efficient
and economical managemeat methods to the cieation, utili7ation, maintenance, xetention, preservatioq and
disposal of official records shall be administered by ffie commissioner of adminisua4nn wifh assistance
&om the d'uector of the Iristorical society.... . It sball be the duty of the head of each state agency avd the
govemiag body of each oounty, mmicipatity, aad other subdivisioa of govemmeat to 000pera[a with ihe
commissioner i¢ conducting surveys and to establish and maintain an active, comimrng progam for the
economical and efficient managemeat of the cecoids of each agency, coimty, municipality, or other
subdivision of govemmeut. When iequested by the commissioner, public officials sY3231 assist ia the
piepazatiott of an inclusive inventory of records in their custody, w which shall be attached a schedule,
2Pp;6Vtu uy wc ncaci vi [¢c gUVemnlcviai iuui Cu nSca.Cj' �3P..^.b �.�+YL•C.i� n.fthg rrrn�c ?IId th0
commissioner, establishiug a time period for the reteution or disposal of each series of records. Whea the
schedvte is imanimously approved by the reoords disposition panel, the head of the governmeatal unit or
agency having custody of the records may dispose of the type of records listed in the schedule az a time and
in a mavner prescribed in the schedu[e for particular records wEucfi were creaked after tfie approval. A list of
records disposed of p�usuant to this subdivision shall be forwazded to the commissioner and the arcluvist by
the head of the govemmental mit or agency. The archivist shall maintain a list of all records desanyed
Z000 Saint Paul Ciry Covncil Resetvch
o!-(�'1
Performance Audit ofthe City of Saint Pau]'s CiNxn Service Office
Records Retention, Cont�
11
Minnesota Statutes Chapter 13. Data Practices Act
13.03 Access to government data.
Subd. 2. Psocedures. (a) "S'he responsible authority in every state agency, political subdivisioq and
statewide system shall establish procedures, consistem with this chapter, to insure that requests for
govemment daza are received and complied with ia an appropriate and prompt manner... .
A responsible authority may desigvaze one or more designees.
Minnesota Rules 1205 Department of Administration - Data Practices
Minn. Rules 1205.1000 Appointment of the Respunsible Authority.
Pursuant to Minnesota Statutes, section 13.02, subdivision 16, the goveming body of each political
subdivision and the goveming body of each state agency whose activities are subject to the direction of a
governing body sLatl, by September 30, 1981, if it hu not done so, appoint a responsible authority. 'Ihis part
shall not affece the appointments of responsible authorifles made previous to the adoption of these rules. The
goveming body shali confer on the responsible authority ful] administrarive authority to cazry out the duties
assigned by the act and by ttds chapter. Goveming bodies may use the forms set forth in part 1205.2000 to
appointthe responsible authority.
1205.0200 Definitions.
Subp. 14. Responsible suthority in political subdivisions. In political subdivisions, the responsible
authority shall be as follows, unless otherwise provided by state Iaw
B. For cities, the city council shall appoint an individuai who is an employee of the city.
Saint Paul City Council Resolution 99-881
RESOLVED, pursuant to the requiremenu of Mirmesota Statutes Section 13.02, Subd 16, of the Minnesota
Crovemment Data Practices Act, and Minnesota Rules Section 1205.1000, Fred Owusv, City Clerk, is hereby
desi�ated as the Responsible Authority for the City of Saint Paul; and be it
FIJRTE�R RESOLVED, that the Responsibie Authocity is authocized to establish guidelines and procedutes
for the purpose of ineeting ali requirements of the Mirmesota Govemment Data Practices Act and the
Lelated, validty adopted rules.
Findings
Chapter 138.17 of Minnesota Statutes provides a plan for managing governmental records by
giving authority to cities to dispose of records with certain limitations. No municipal records
may be destroy or removed wiffiout authorization of the Records Disposition Panel, which is
essentially authorization from the Minnesota Historical Society. Cities may adopt the General
Records Retention Schedule and any revisions by filing a Not�cation ofAdoption of City
General Retention Schedule form with the State Archives DepaRment of the Pvlinnesota
His[orical Society. The Historical Society will sigri and retum the form as a signal the City may
dispose of govenunental records as indicated on the schedule.
The CSO maintains a copy of the City General Records Retention Schedule, but responsibility
for documents being disposed of deposited at the Historical Society falls to individual City
departments, as Minnesota Statutes allows the responsible authority to designate designees to
fialfill these responsibilities, and department heads aze the designees. Currently, no formal
2000 SaintPavlCiryCour+cilRuearch
a!-G �
1Z PerFonnance Audit offie City of Saint Paul's Citiun Service Office
process exists for City departments to inform the CSO thaz they are disposing of or sending
documents to the Historical SocieYy. Though it does not occur frequently, according to staff,
some departments inform the CSO when they are disposing of documents or sending them to the
Historicai Society. Also, ifthe CSO discovers a departrnent is "c[eaning house," a note is sent to
the director offering the assistance of the Assistant City Clerk to review the soon to be discarded
documents to assess their azchival value in complying with the Schedule. Under Resolution 99-
881, the City Clerk is authozized to establish guidelines to ensure the requiremeats of the
Govemment Data Practices Act aze met.
Recommendation
Recommendation #5. The CSO should establish specific guidelines requiring departments to
submit to the CSO, on a biannual basis, a Records Retention Schedule. They should also devise
guidelines to ensure departments noh; fy the City Clerk when documents are permanently removed
from Ciry fzles or disposed of, and these natifzcations should be maintained by the City Clerlc
Documents Maintained by the CSO
Saint Paol Administrative Code Chapter 4. Of6ce of the City Clerk
b) The city clerk shall keep all minutes, records, proceeding,s, official books, papers and documents charged
to 1vs care in such anangement and coadition u to make them easily accessible for convenie� use. He shall
be responsibte for the prescrvation and caze of such records and shall take necessary steps to carefiilly
protect and preserve them from deterioration, mutilation, loss or desiruction. Records or record books may
be repaired, renovated or rebound when necessary for peoper preservatioa Photogiaphic, photostatic or
mecrofi7med mcords shall be considered accessiWe for snch purposes. F�cept as oiharNise expressly
provided by taw, he shatl permit all such public records ia his custody to be inspected, e�mined, abstracted
or copied during norma! Misiaess ho7as subject to tds svpervision aad regalation. He shall, upon demand of
any petsoa, fianish certified copies thereof upon paymem in advance of reuonable fees ffierefor.
Saint Paul City C6arter Sec.17.02. Cnrrent 51es.
The city clerk shall keep a properly indexed current 51e of all city ordinaaces and resolutions, and this file
shall be available for public inspection duriag the cus[omary working hoi¢s observed by city employees.
Copies of ordinances, resolutions aod Charter amendmenis shall be distributed b or sold to the pubiic az
reasonable prices w be fixed by the co�mcil.
2000 Saint Paul Ciry Counci[ Ruearch
Perfo`mance Audit of the City of Saint Paut's CiUZen Se[vice Office
Documents Maintained by the CSO, Cont
e 1-L�'1
13
2000 City Budget� �ty Clerk Records Activity Performaoce Ptan
With additional fimding the Office of the City Clerk could more ciosely follow Chapter 4 of the Administrative
Code in `Yaking necessary steps to cuefvily protect and preserve° these fi-agile records. Furthermore, the current
micro-film reader is becoming ubsatete and requaes regulaz xepaics.
• Maintain and preserve the minares and records of the proceedings of the City Coimcil in accordance with
the Charter.
• Be the legal custodian of & maintain official copies of all ordinances and:esolutions of the City Cotimcil.
• Notices of City Coimcil meetings be served in accordance with state siatutes, CBarter provisions, city
ordinances and Coimcil niles.
• Cause ffie publicazion of all City Coimcil minutes, ordinances and notices of public heazing as required by
the Charter or other applicable law.
• Have custody of the seal of the city and affix it to such documents as may be required ad authorized
� piusuaat to law.
• Give information and direction to private citizens having busiaess with the city... .
• Keep all minutes, records officiat books, papers and documents in such azrangement and condition as to
make ffiem easily accessible for convenient use.
• Accept claims, summoas and complaints, petitions and other lega] documents on behalf of the City.
• Process and record vacations of pubiic right of ways.
� Claim and appeai forms are now availabte on ihe City Cletk web page.
� Index City Comcil proceedings and disffibute proceedings book
• Adminis[er appeals to Legislative Hearing Officer.
Findings
1) We found the Division maintains the documents for which it is responsible. Historical
documents are kept at the Minnesota Historical Society and more recent documents are housed in
the CSO's file room and on microfiche. The Office is in the process of buying new file cabinets
to upgrade the protection of City documents. LJltimately, the Office would like all documents to
be preserved on a document imaging system. It has been an ongoing goal of the CSO to obtain
funding for a document imaging system, and a system is on order.
2) Officiai City documents aze available for public viewing. Trnerested parties call or waik-in
when in search of City documents. If an individual is doing a lengrhy research project, they may
be given open unsupervised access to the documents during business hours.
3) According to staff, the binding of the Council proceedings books are two years behind
schedule. They aze currenfly published in bound form through 1997. T'he CSO must ind� the
proceedings before they can be sent out for binding. The Office is indexing the proceedings for
1999 and has completed inde�cing for 1998 but they have not been sent to the Legal Ledger for
binding because the $11,000 it cost to bind the books was allocated for other uses witrun the
Office. The Office plans to send the 1998 Council Proceedings to the Legal Ledger for binding
in 2001. The Legal Ledger is the only organization that bids on the binding contract.
4) According to staff, new or amended ordinances available on the City's Intemet site aze six to
seven weeks behind Counci] enachnent. This time is required to print, codify and have the CAO
review the e]ectronic version produced by the Legal Ledger before the Cterk's Office fonvazds it
to Technology and Management Services (TMS) personnel to post the web page. It was reported
that TMS personnel take one to two days to get the changes and additions made.
2000 Somt P¢ul Ciry Council Research
�i ��
14 Perfo�m�ce Audit ofihe Ciry of Saint Paul's Citizen Service 06cz
5) The Division provides appeal and claims information and fonns on their website.
Recommendations
Recommendation #6. The City CZerk/Records Division should prepare a plan to transition paper
documents to the new document imaging system.
Recommendation #7. The City CZerk/Records Division should prepare a spec�c plan to ensure
that Council Proceedings cne prepared annually mrd indexed in a timeZy fashion. Funds should
not be re-allocated for other uses if they m�e specified for binding.
Documents to the Public Library
Saiut Paul Administrative Code Chapter 87. Depository for pocuments
Sec. 87.01, Deposit required.
All muvicipai cocpomtions, departments, agencies and officials of tfie City of Saint Paut aze required to
submit a m�inimum of three (3) copies of each official published documern to the Saint Paul Public Library.
Sec. 87.02. Official documents defined.
Such official published dce�ents shouid iaciude ihe following.
(a) Any book, document, joumal, map, pamphiet or report issued for public distriburion. �
(b) Any book, document, joumal, map, pamphlec or officiai public report which is not issued for public
distribation bui contains aay lustoricai sigvificance or raFerence value.
(c) Suc6 official pubiished documenu, for e�mple, should include, but na be limited to, the following
(1) The annual compilatioa of the city ordinances and council proceedings.
(2) The aanual reports of tlte various depatmteats aad bnreavs.
(3) Ihe City Codes and amendmems.
(4) The City Chazter and amendmenTS.
Finding
CSO staff stated that City documents are not being submitted to the Saint Paul Public Library
and no one is responsible for ensuring t3us is done. We also inquired as to whether ttus
ordinance is reasonabie given today's technologies. Staff were not sure it was reasonable since
computers could generate elecuonic versions that do not require as much space.
Recommendation
Recommendprion #8. The Citizen Service Office should take responsibility for educating
departments on what documents need to be provided to the Public Library. Council Research,
the City Council, the Public Library and the Citizen Service Offzce should work together to
review the requirements of the ardinance to determine whether three paper copies need to be
submitter� or ifthe number ofpaper copies required coudd be reduced ifan electronic copy is
provided. Following this review, an ordinance change should be made zf necessary.
2000 Sairet Paul City Council Researck
Perfoxmance Audit of the CiTy of Saint PauPS Guzen Se�vice Office
Elections
oI-1�7
IS
Saint Paul AdministraSve Code Chapter 4. Office of t6e City Clerk
Sec. 4.04. Elections.
(a) Commissione� vf �egisiration The city clerk shail serve as the commissioner of regisuation for the city
and provide such printed forms, blanks and other supplies and equiQmen[ as are necessary and proper to
cazry out the regimation of quatified voters as prescribed by law. The office shail establish and keep,
p�usuant to siatute, a plan of registrarioq iacludiag an originat record of votecs, propedy indexed and
safeguarded, and a dupiicate registration file open to reasonable public inspection.
(b) Conduct of elections. The city clerk shail give public notice of the time and piace of the holding of alt
municipal elections, including the hours during which polls wiil be open, by posting in every election
distriM appropriate etection aotices containing a list of offices to be filled az such election. He sLall take ail
other cecessary steps to ensute that ffie conduM and procedure of all elections aze govemed in accordance
with applicable state laws and such supplementary ordinances as are adopted by the counciL
Saiot Paul City Charter Chapter 7. Elections
Sec. 7.04. Name on primary ballot.
Not later than six (6) weeks aor more than eight (8) weeks before the primary election, any person eligible
may, by filing an affidavit and paymeat of fifiy doliars ($50.00) to the city clerk, have Iris or her name
placed on the primary election ballot. Each person desiring to have his or her name placed on the primary
batlot foi councilmember shall state in the affidavit of candidacy the distria for w}ric6 he or sbe is a
candidate.
Sec. 7.10. Caovass of returns.
Within seven (7) days after the electioq the city couucil shatl canvass the retums and dectam the results of
the elecaon.
2000 G1ty Budget: City Clerk Records Activiry Pedormaece Plan
Oversee Ramsey Covnty contract for City election services, including evaluation of ffie level and quality of
service, and maintain duplicate records of elections.
Finding
The Office has a ten-year contract with Ramsey County that expires at the end of 2004 to provide
the elections process. According to staff, the CSO approves polling places, election judges and
conducts canvassing for primary and general elections. The Office also prepazes election-related
resolutions for council approval. Ramsey County is responsible for voter registration, absentee
ballots, candidate filings and the preparation and maintenance of voring machines. ARer an
election, Ramsey County submits the unofficial canvass report, which examines wtes for
authenticity, to the CSO which then submits the report to the City Council.
Z The County's duties u agreed to in ffie contraa between Saint Paul and Ramsey County for Eiectlon Office
Management aze outlined in Appendix C.
2000 Soini Pau1 City Councif Researth
° i - �7
i6 Pafocmance Audit of tfie Ciry of Saint Paul's Citizen Service Office
Initiative, Referendum and Recail
Saiut Paul City Charter Chapter 8. IDIITIATIVE, REFERENDUM, AND RECAI,L
Sec. 5.02.4.
Aay person whose eame appears on a peaaon may withdraw his or her name by a statecaent in writing filed
with ihe city clerk before the clerk advises the council as to the sufficiency of the petition. Any name
appearing on any petition wluch dces not rnmply with the foregoing requirements, except as to wazd or
legislative district and precinct desi�atioq shall be stricken, and no names shall be counted wluch have not
beea verified
Sec. &03. Determinatioo of suffcieocy.
Any petition seeking initiazive, referendum and recall hereunder shail be deemed received by the cowcil when
it is filed wiih the city clerk, for which filing there shall be no fee. Immediazely upon receipt of the petition
the city clerk sha11 e�mioe the petitioa as to iis s�ciendy and report ro the council within twenty (20)
calendaz days, except that in the case of a recali petitioa it sha(1 be thirty (30) calendaz days. Upon receiving
the report, the council shall detecmine by resolution the sufficiency of the petirion
Sec. &08. DisposiKon of insufficieot petitions.
If the counci2 determines that the petition is insufriciear or irregulaz, the ciry clerk shail de&ver a copy of the
petition to the pecson or persons therein named to receive it, together with a written statement of iu defects.
The persons circulating the petition shatl be given thirty (30) days in wluch to 51e additional signature papers
and m correct the petition in all other particulars. If at the end of Uiat period the council finds that the petition
is still insafficieat or erregulaz, the cify clerk shatl fite the peauon in flre clerk•s office artd notify ffie persons
previously notified of the defecis. The final finding of insufficiency or uregulazity shall not prejudice the
filing of a new petition for the same purpose noy in tho case of an initiazed or refeaed ordinance or resolution,
shaiI it preveat t6e council from referring the ordinance or resolu[ion to the voteis at the neaa regulaz or
special election at its optioa.
Finding
The CSO works with the CounTy to comply with the requirements for initiative, referendum and
recall. The oniy petitions found to be insufficient in recent yeazs by the Office were the baseball
stadium and billboazd petitions. Insufficiency is communicated to the person responsible for the
petition by a letter or phone catl &om the County.
Abandoned Property
Saint Paul Leg. Code CSapter i4. imp,wadmeat sa� L°'s�.osa' ¢fA3z=coaed Persoust Progeriy
�ec. i4.us. auandoned pnrsaan� p a—�.:�. --- - ----_.
It s6a[I be ilIegal to abandon pesonal property on property owaed by tfie city. Disposirion of this property is
in the public interesi and the method to be used is to empoand The property and dispose of ii accordiag to this
chapter.
Sec. 14.04. Pracess.
(a} Whenever the head of any department may deem it in t6e best Snterests oftfie city, he or she may order the
impounding of any abandoned personal property located on city property. The departmenk head or 1ils or her
designee shall take reasonable steps to atTempt to identify the owner of the pmperty and, where the owaer has
been identified, issue a writtrn notice to the owner that the city inteuds to impoimd ihe property. If no
response is received with twenty (20} days of such notice, or ao owaer can be identified, the depaztment head
or designee shall post a notice describing the pmperty in the office of ffie city clerk.. .
2000 Saint Paul Ciry Council Rese�ch
--- ol-to7
Perfom,ance Audit of the CiTy of Saint Paul's Citizen Service Office 17
Finding
Currently notices of abandoned personal property, along with other public announcemenu, aze
posted on the bulletin boazd across from the Citizen Service Office on the southwest corner ofthe
fust floor of the City Hall.
Oath of Office and Bonds for City Officials
Saiot Paul City Charter Chapter 17. GENERAL PROVIS[O1�S
Sec. 17.03. Oat6 of office.
Every elected or appoimed of£icial of ihe city shall, before enteriag upon the duties of his office, take and
subscribe an oath in subsrantialty the following form: "I do solemvly swear (or affirm) io support the
constitutions of the United States and of the State of Minnesota and to discharge faithfully the duties devoiving
upon me as (... tiUe of office ...) of t6e City of Saint Paui to the best of my judgnent and ability."
Sec. 17.05. O�cisl boods.
The mayor and such other officecs or emptoyees of the city as may be required by administrative ordinance
shall each, before entering upon the duties of lus or Her respective office or employmevt, give a bond to the city
as securiTy for the faiUtful perfoxmance of his or her official duties and the safekeeping of public funds. The
bonds shall be in such form and amount as may be fixed by ffie council and may be either individuai or blanket
bonds at the discretion of the council. They shall be appraved by the council, approved as to form by the city
attomey, and filed with the city clerk. The pcemiumt on such bonds shal( be paid by the city.
2000 City Budget: Ctity C7erk Records Activity Performance Plao
Administer oath of office to ali elected and appointed officiais.
Findings
I) Staff reported the Director tries to stay awaze of newly appointed and elected City officials
and depattments inform the CSO of relevant staff changes. However, there aze instances when
the City Clerk was not notified and therefore some appointed City officials have not taken the
oath in a tnnely manner.
2) According to staff, they have never requested nor received a bond &om any City Official, nor
were they awaze of Charter Section 17.05. However, staff &om the Risk Management Division
stated that all City staff, not just elected officials, are currently covered under a fidelity bond.
This fidelity bond is required by the State for public treasurers, and the City has chosen to cover
all staff under it as the additional cost is minimal.
Recommendarion
Recommendarion #9. The City Clerk shauld devise a moreformal system for departments and
other relevant City o, f,�icials to notify rhe Clerk of newly elected and appointed o, f,�cials who need
to receive the oath of office. The Clerk's budget objeciive should be mod�ed to indicate it the
oath of of,�'zce will be administered within a speci, fied amount of time, such as thiriy days.
2000 Saint Pau! Ciry Counci! Research
v�-�
�8
Peritions Regardiag Pablic Nuisances
Perfo�mance Audit of the C'rty of Saint Paul's Citizeu Setvice Office
Saint Paul Admin. Code Chapter 91. Procedure for Public Hearings Regarding Public Nuisauces
Sec. 91.03. Peti6on procedure.
(a) Upon the filiag of a periaon in writing sigped by sixty (60) percen[ of the owners and tenan[s of atl private
residences, dwellings and apartrnent houses located in an area one block in any dirutioa from ihe alleged
public nuisance, and upon verification of those signatures by the office of the city clerk, the council sLall
schedule a public hearing conceming the allegations set forth. All petirions, including those containing an
iasufficient number of signann�es, shait be refeaed to the council by the city clerk With respeM to petitions
coataiaiag tess thaa the si�y (60) pe�ent required signa[ures, the council may, in iis discretion, accept the
petition and schedule a public hearing or rennn the petirioa io The petiiioners for add'erional signanues.
Finding
We asked staff about the process for placing a public nuisance hearing on the Council agenda.
T'he Assistant City Clerk sends a resolution to the Cotmcil staring the number of legirimate
signatures on the petition for a hearing. The Council then decides whether to schedule a public
hearing if it is signed by less than the required 60 percent of homeowners and tenants within a
one block radios of the atleged public nuisance. The Office reports it has a good working
reIationsfiip with Councit staff and has no problem scheduling public hearings. It was also
reported the organizer of the petition is notified as to when the public hearing wiIl be held.
Trade Secret Information
Saini Paut Admiuistrative Code Chapter 94. Protecaou of Trede Secret Intormadon
Sec. 94.01. De5n;6ons.
Unless specifically deSned in tivs section, ffie terms contained in this cLapter shall be given the definitions
as set forth in Minnesota Statutes, Section 13.02.
Desigrrees: Individuals desigvated by the mayor W work on, process, examine or sNdy the economic
developmeat or regulatory matter in which tnde secret informatioa may be filed
Responsible mrthority: 7Le city clerk, who shall be respnnsible for the eaforcemeni of Uee provisioas of this
chapter.
Trade secret iaformation: Govemment data, including a formula, pattem, compilatioa, progam, device,
method, tec[mique or process that:
(1) Was suQptied by the aflecbed iadividual, person or organiaarion;
(2) Is the subject of efforts by the individual or organi�ation wat are reasonaSle w We cix::r.^sizees to
maintain its seccecY; and
(3) Derives independent ecoaomic vaiue, ac[uai or poceut�ny �W aa. �:,.� �r.�a'.; !��w�?o,-andnot_ _
6eing readily ascertainable by proper means by, other individuals, pexsons or oxganirerions who can oMain
ecorromic value from its diselosure or use.
Sec. 94.02. C7assi5cation of data.
All doc�ents, data, sNdies and offier iaformazion supplied to the city wluch the penon or 5rm regazds as
"�ade secret" ieformazion within the definition in Section 94.01 should be stamped by the person or fixm
see}dng pmoaetion "Trade Seccet Information—Not fnr Public Disclosure." The maztcing must appeaz on each
page sought to be protected.. .
2000 Saint Paul City Council Ruemch
D l - (c'T
Perfortnance Audit of the Ciry of Saint Paul's Cilizen Se�vice Office
Trade Secret Information, Cont.
19
Sec. 9a.03. Notice.
All designees who have access to trade secret informarion will be given a copy of the ordinance from which
flus chapter derives by the mspons3ble airthority.
Sec. 94.04. Access.
Access to "trade secret" infoimation s6a11 be limited to designees. Access shall be for the purpose of
reviewing a economic development project, permit application or other filing, or for other administrative work
pertaining to a economic developmeat project or regulazory matter.l'he hade secret information may be made
available to a representarive of a coasuitaat hired by the city and desig�ated by the responsible authority as a
desigtee, but only if the consulianYs repxesentative has signed a nondiscloswe agreemem and a copy of the
sigped ageement is provided to the person or fixm who filed the document prior to the consultanYs access to
trade secret iaforaiation. If the consultanYs reptesentazive Las signed the nondisclosure agreement, the city
will not be heid responsible for the actions of such consultant and/or its representative witb regazd to the
aondisclosure agreement
Sec. 94.05. Sturage.
tlll "trade secret" informafioa filed in accordance with Section 94.02, and copies thereof, shalt be stored when
not in actual use in locked file cabinets under the exclusive coutrol of the designee of the city. A control sheet
identifying the designees who are authorized to access the infoTmation will be attached.
Finding
Staff admit the Office has not been adhering to its responsibilities in relation to trade secret data.
Senior leaders do consider this an important issue and cited the Peanuts on Parade eachibits as an
example given that the memorabilia and the format were closely controlled by the Schulu family
and was protected for commercial reasons. Staff stated the CSO will be working with the City
Attorney's Office to enhance the role the Office plays with respect to trade secret storage.
Recommendation
Recommendation #10. The Citizen Service ()ff:ce should immediately develop a strategy to
inform a11 City departments of the requirements and process for trade secret storage.
Z000 Saint Paul C�y Counci! Ruearch
oi -6 �
ZO Perfo*mance Audi ofthe City of Saint P Citizen Service Office
Public Information Meerings
Saiot Paul Administrative Code Appendices Chapter A- 3. All Public Meetiogs - Notice Requirements
WF[EREAS, The councii deems it necessary and in the public interest thu advance notice be forwarded w
elected officials prior to ihe holding of public informatioaat meetings by sny departrnent bureau, agency or
committee of the City of Saint Paul, now, therefore, be it
RESOLVED, By the council of the City of Saim Paul:
1. That any city personnel a**anTng or causing to be held any pubiic informazion mcering by or on behaif of
aay city depaztmeat, bureau, ageacy, board, commission or advisory committee shall provide a minim�un of
five (5) days advance written notice of such meeting io all membecs of the city council, the mayor, the city
clerk and the city atxorney. Five-day notice may be waived in the event of an emergency. The city clerk shatl
first be notified if any such public infocmational meeting is to be held in the council chambers located within
the City Hall and Court House.
2. For purposes of such notice, pvblic informationat meetings shatl mean any meeting for wtich members of
the general pubiic receive notice or invitation to appeaz for the p�npose of presentation, testimony,
consukation or otherwise.
3. Such notice shatl contain tfie date, time and place ofthe meeting to be fie(d and a brief statemeM oftfie
svbject matter to be discussed.
4. The city clerk is hereby d'uected to foxward copies of ttis resolution to the mayor, all departrnent heads, the
chairmen of every boazd, commission or advisory committee to the city.
Finding
The Planning and Economic Development Department maintains the Eazly Notification List, a
list containing everyone and every organization that is to receive notification of public meetings.
Departments are directed to contact PED for tfie labels when ihey need to send notice of a pubiic
meeting. PED aiso maintains a Neighborhood Nofifiption List which contains contact names
and addresses for a11 of the dislrict councils. The CSO receives notices from agencies and
commissions if tfie meeting is to be held in City Hati, compiles the meeting list, and places
notices on the pubiic bulletin board, the City's web page and in the Saint Paul Legal Ledger.
Camoaign Contributions
Saint Paul Legislative Code Chapter Z1S. �:ampaigu Courri:,u.:a�s
Sec. 28.02. Adm:nistrarion.
(a) Ciry clerk to administer. The city clerk sfiall be in ckiarge of administering and cazrying out the vazious provisions
ofthis chapter.
@) Cirycler.�' powers mrd duties. 1Le ciry clerk shall have Uie following duties a�ni poweis:
(1) Pmscribe, adopt and disaibute ffie foim for cegis4-ation foims, stazeme�[s and repom required w be
filed wLich shall, whenever possible, be ideMical to or consistent with state forms.
(2) Receive and accept for filing m the ciry clerks office the xegistration forms, stateme�vs and �eports
rzQuimd by ttvs chaPter-
(3) Make the sptemems and reports filed with the city clerk available for public iaspection and copying. A
reasonable ck�arge for the cost of cop}�ng may be chazged.
(4) Preserve all stazemems and reports for a period of four (4) yeazs from rhe daze of Sling, or, in the event
ihaz ffie committee represenu a candidate or party wlilch permanrn8y fecminates activity within two (2)
yeazs, Uun said records and accounts shall be kept for two (2) yeazs.
(5) Repor[ Sndings of noncompliance to the elecfions board.
2000 Saira Paul City CounciT Resemch
PerFomiance Audit of ihe Ciry of Saint Paul's Citizen Service O�ce
Finding
21
It was reported that campaign contribution forms aze huned over to the County, though the CSO
retains a copy for five years after an individual leaves office. This is in keeping with State
reqwremenu for document storage.
Condominium Cooversion Notices
Saint Paul I,eg. Code CL. 48. Condominium and Conversion Condominium Notice Filing Requirements
Sec. 48.04. Notice of condominium creation or conversion.
(a) A deciarant of a conversion condominium shall �ve the city aotice of the conversion or intent to convert a
building to a condominium no later than one hnadred twenty (120) days before the declarant requires any tenant or
subtenant ia possession in such buiiding to vacate.
(b) A"notice of condominium conversion" in the form required by Minnesota Statutes, Secrion S ISA.41 ] 0(a),
together with a"supplemental notice of condominium conversion" in the form provided for in paregraph (c) of this
section, filed in the office of the city cierk shal] covstitute the notice required by pazagraph (a).
Sec. 48.05. Certificarioa uf compliauce. �
Upon the filing of the notice, supplemental norice of condominium convexsioa or stazement in lieu thereof as
required in section 48.04, the city clerk shall provide the declarant with a signed, written statemeot certifying
compliance with the filing requiremeats of this chapter. The clerk shaU vansmit copies of each certificate given
and each notice, supplement notice and statement filed to the housing infocmation office, the division of planning
and division of housing of the departmeat of planning aud economic deveiopment, and the division of housing and
building code enforcement of the department of community services of the city.
Finding
Staff reported the condominium conversion form is being filed in the CSO on a regulaz basis.
The Office also provides information by copying the relevant sections of the code and giving it to
interested parties. According to staff, supplemental notice of condominium conversion is sent to
ihose departments identified in the Code, though technically those deQartments do not exist as
outlined in the ordinance.
Recommendation
Recommendation #11. The Ciry Council should update the language in Legislative Code Chapter
48.05 to reflect the current City depcmtments.
2000 Saint Pou] Ciry Council Research
oi-� 7
zz
Pecformance Audit of the Crty of Samt Pwi's Cirizen Service Office
MARKETING AND PROMOTIONS DIVISION
The Marketing and Promotions Division is invoived in promoting City events to residents and
visitors. They also work with other organizations such as the Capital City Parinership to mazket
To businesses considering locating in Saint Paul, and with the Saint Paul Convention and Visito�s
Bureau to market evenu to visiYOrs. In addition, they have the task of promoring Saint Paul as a
place to produce films. While many of the results of their work are visible, efforts such as
Peanuts on Parade take an enormous amount of staff time, sometimes more than anticipated
because some programs have achieved an overwhelming, unanticipated level of success.
Marketing and Promotions Policies
The Mazketing and Promotions Division has very few policies which pertain to its functions.
The onty policies we discovered were those found in the 2000 Budget, listed in the box below
and our findings and recocamendations follow. It is problemaric that there are no references in
City Code to the responsibilities of this Divisioa They are a pazt of the administrative branch of
the City's govemmenT and therefore must have enabling legislation outlining their
tesponsibilities_
2000 Proposed Budget: CSO Strategic Plans related to Marketiog aud Promotions
Mazketfng and Promotion of City evenu both downtown and in the neighbofioods.
2000 (.tity Budget: Marketing and Promodons Activity Performance Plau
• Continue to work collaborarively with the City Councit and neighborhood assceiations for
coatinued gowth of their respective events and mazketing/promotional goals.
• Coaiiaue to improve web aciivity with departments and neighborfiood organi7ations.
• Implement payment systems and expand City deparlmenis' use of forms and processing
software.
• Continue semi-moathly publication "City Update° but decrease printed quantity by whatever percentage
ofCity employees t5a[ have Inhanet Access. Tazget distribution to City employees without City Intanet
Access.
• The "Residem's Guide" will be published annually (not semi-anauatly), all cost savings will be directed
towazd a larger production nm aed broader dis�ibution.
• Keep film liaison staff and associa[ed budget in Mazketing and Promorions Division.
- n'o:e 3a co'.a°;.,^:a��� -:s<_ •�e Y��*a Fi!� 3oa*d *o secrue nroducaon conVacts in the Saint Paul
Market.
Findings
1) The Marketing and Promotions Division has been working with neighborhoods to assist them
in promoting their events. In the past, the City has simply provided monetary assistance to
neighborhoods, but they have recently begun to work more closely with the neighborhoods to
provide markering services and help the neighborhoods mazket evenu more successfully.
2) The webmasters aze part of Mazketing and Promofions, and are working with various
departments to improve their websites. They are aiso helping departments expand their services
to be able to accepi payments on-line and conduct other transactions over the Intemet.
2000 Saini Paul City Council Research
Perfoimance Audit of the City of Saint Pau]'s Cidzen Service OfEce
3) The CSO is now publishing the "City Update" on the City's Intranet site.
ot -�'7
23
4) The CSO is no longer producing hard copies of the "Resident's Guide," as all of the
information is available on the City's website. This is contrary to their objective to produce a
larger number of guides once a year, rather than fewer twice a year. They state they are no longe�
producing hard copies because the information is available on the Intemet T'hey have also stated
that numemus copies were left over &om the previous prinring when the Guide was dish�ibuted to
libraries, convenience stores, and other such locations.
5) The film liaison staffwere transferred from the Planning and Economic Development to the
Citizen Service Office in 1999. There is no talk, at this time, of moving them elsewhere. This
does not seem appropriate as a budget objective.
6) Mazkering and Promotions staff aze active in seeking film production contracts in the Saint
Paul market
7) As mentioned in the introduction to this section, there is no specific language in the City Code
establishing the responsibilities of the Marketing and Promotions Division. This is a glaring
oversight.
Recommendations
Recommendation #12 . The Marketing and Promotions Division shoudd resume production of
hard copies of the Resident's Guide and ensure that all residents have access to the informarion.
Recommendation #13. The Administration should prepare, for City Council consideration, an
amendment to the Administrative Code outlining the duties cmd powers of the Marketing and
Fromotions Division.
2000 Saint Paul Ciry Council Research
O/-� 7
24
Perfo�mance Audit ofthe City of Saint Paul's Citizeo Service Office
CODE ENFORCEMENT DIVISION
The Code Enforcement Programs Division (Code Enforcement) of the Citizen Service Office is
responsible for ensuring that residents and property owners of Saint Paul observe the property
maintenaace laws of the Ciry. Code Enforcement is responsible for investigating interior and
earterior code violations aT single-family and duplex properties in Saint Paul, an@ exterior
violations on all other properties in the City. The chapters of the City Code that Code
Enfarcement is responsible for enforoing aze listed in Appendix A.
Code Enforcement has been a division oftfie Cirizen Service Office for about two years. in the
past, Code Enforcement was a division of the City's Public Heaith Division. When the City and
County Health departments merged in 1997, Housing Code Enforcement was administratively
moved to the Depaztment of Fire and Safety Services, though they were never actually physically
relocated to the Fire Department They remained within the Fire DepartmenYs adminisu�arion for
about a year. In 1999, they were moved, both physically and administratively, to the Citizen
Service Office. Senior leaders stated one of the reasons for this decision was over half the
complaints received by the Information and Complaint Division are related to pmperty code
violations, and therefore it made sense to have the two divisions under the same department
Lieutenant Warren Bostrom was also brought in from the Police Deparpnent to oversee Code
EnforcemenYs technoIogy upgrade activities_ About a year later, Lt Bostrom retired, and L�
Mike Morehead was brought in to manage Code Enforcement. Inspectors are cunrentiy housed
both in City Ha]i and at the Police DepartmenYs Eastem Patrol District Offices. The ciurent
organizational strucKiue of Code Enforcement is illustrated in the cl�art on page 26.
The process for checldng, recording and correcting code violations varies based on the situation,
but some common elements eacist. When a compiaint is received by Information and Complaint
staff, it is logged into the EXL, system, printed by Code Enforcement support staff and given to
the appropriate inspector. Code Enforcement support staff play a vital mle in maintaining
records for the Division The inspectors do not do their own data entry, and support stafF are
required to work with EXL., an azcane, inefficient computer system, also used by Information and
Complaint Division staff. They a[so retrieve hard copy files for the inspectors and are generally
responsible for ensuring that operations run srnoothty.
A^ i��*.ar's day oR� starts with a visit to the office to review complaints received and
prepare for ihe property visits scheduled for the day. The inspectors prioritize complaints based
Vu i4c 3cvcii y vi u W2S�'CCC1VEd. HC OT SIlE
may make phone catts to verify appointraents and may add more property visifs based on new
complaints received. The inspectors will also do the papenvork from previous visits anc3 tum it
in to supervisors and support staff for processing.
Upon visiting a property, ihe inspector will determine whether to issue a verbat ordet, a written
correction notice, a citation, a summary abatement order, substantial abatement order, or a
3 The Fire Prevention Division of Fire and Safety Services is primazily responsibte for interior code violazions of
residential properties witfi ihree or more uviu and aIl commercial pmperties.
4 The City is divided imo census tracu, and inspectocs aze assie,ped to specific �acts.
2000 Saint Pau[ City Council Research
o t -(0'7
Perfocmance Audit of the City of SaiEit Paul's Citizen Service �ce
zs
vehicle abatement order. The method, determined by the inspector, is based on the past history
of propeRy code violations at the property, whether the property owner seems responsive and
willing to correct the violation, and the severity of the violation (whether it is a life-safety
concem). With a sumrriary abatement, if the property owner fails to eliminate the nuisance
condition, a work order is issued. The inspectors sometimes take pictures and videotape the
situation, both for use as evidence and to show the clean-up crew the problem and what needs to
be done. If the clean-up work is done by the City or by one of its contractors, the fee for the
work is billed to the property owner. If they fail to pay the fee, it is assessed to the property
owner's ta�ces.
If it is determined the work required to restore a property to meet the minimum property
maintenance code requirements equais or exceeds $3,000, the property may receive a substantial
abatement. If the owner fails to correct the problems for which the abatement was issued, the
City Council is notified that substantial abatement is necessary and appropriate, and a hearing
before the Council is scheduled. After the hearing, the Counci] will adopt a resolution describing
what abatement action, if any, the Council deems appropriate. If the resolution calls for
abatement action, the Council may either order the city to take the abatement action or set a time
within which the nuisance must be abated by the owner and provide that if corrective action is
not taken within the specified time, the City will abate the nuisance. Upon conclusion of the
hearing, the council shall, by resolution, provide for the collection of those costs in the same
manner as a special assessment. If it is possible the building will have to be demolished, the
process also involves some additional notification requirements, and the Vacant Buildings Unit
may assume responsibility for monitoring the property.
A property owner or tenant can appeal an inspector's decision by filing an appeal with the City
Clerk, who then sends it to the City's Legislative Hearing Officer (LHO). The appellant then
appears before the LHO, who makes a decision and fonvazds it to the City Council. The
appellant, if dissatisfied by the decision of the LHO, may appeal to the City Council. If
dissatisfied with the Council's decision, he or she may file for review by the District Court. If
the property owner or resident refuses to comply with the orders of the enforcement officer, the
City may prosecute them criminally. A housing court has been established especially to hear
violations of the housing codes. Code Enforcement works closely with the City Attorney's
Office to build the case to prosecute the offending property owner or tenant.
S A sununary abatemeut is generalty issued for gazbage and tall grass and weeds. A substantial abatement is issued
when the value of the work required exceeds $3,000. A vehicle abatement is an order for an vehicle owner to
remove theic inappwpriately pazked vehicle.
2000 Saint PaulCity Courtcil Research
O/-� 7
26
Pedormance Audit of [Ae Ciry of $ain[ Paul's Ci[izen Service Office
Code Enforcement Organizational Chart
Electorate
City Council
_ � ��.. .
...................
� Cade E�orcement �
P�^�.
Managar'
FreW Scvviees
Suppo�t
6ayton's Blulf
Initlative"
ReMal
Registration
v�
Naternent
Fidd Services,
Supervisorof
Inspee(iors
Mayor
Clerical Suppat
Unit,
0/Fce Manager
ComplaiM,
Investigafive 8
Patrol Unit (East
and West Teamsj
PP2000
Yaczct Build[�gs
Unit
Adminis6afive
Support, Budgd,
6lanagernerrt
AssistaM
Tnrth in Sale d
Housing
� Code Enforcement staff aze assigned to this azea to support the Graffiti Abatement program in Public W orks.
x' The Dayton's Bluff Initiative was scheduled to run through the end of December, 2000.
*•' The Manager is a loaned official from the Police Depaztmrnt, and is not a permanent position witliln the CSO.
1Lerefore, if the posidon is returaed to the Police Department, the other positions would report direc[ly to the CSO
D'uector.
1000 Saint Paul Ciry Council Kesearch
Pe[formance Audit of the Ciry of Saint Paul's Citizen Se�vice p�ce 27 O f— � `
Overlapping Interests of Code Enforcement and Other
Departments
The work of Code Enforcement relazes closely to the work of other departmenu throuahout the
City. For instance, Code Enforcement may receive calls regazding properties about which the
Police Department has also received complaints. If the calls are about a suspected drug house,
the two departments will coordinaze efforts through the Police Department's FORCE unitb, which
coordinates the Ciry's efforts to reduce street-level drug-related crime. Two Code Enforcement
inspectois aze on call for the FORCE unit at all times, and check in with them daily to review
cases and determine whether they need to accompany officers to execute wazrants.
Code Enforcement also works with the Office of License, Inspections and Environmental
Protection (LIEP). The two offices coordinate efforts when a property that has been cited for
code violations applies for building permits, or when a registered vacant buildings requires
permits to restore the property to the City's minimum property maintenance standards. The two
offices have a conflict over building pe�mits that remain open for long periods of time. Code
Enforcement views them as problematic, feels they create blight, and states there aze numemus
cases of this in the City, while LIEP suggests that there aze relatively few of these long-term
ogen permits and they aze not that problematic.
The Fire Prevention Division of Fire and Safety Services overlaps some responsibilities with
Code Enforcement, particulazly related to vacant buildings. Fire Prevention staff check vacant
buiidings every 90 days when a Certificate of Occupancy is revoked, and the Vacant Buildings
Unit monitors all vacant buildings every 30 days, Vacant buildings pose a substantial risk for
fires, and the Fire Prevention Division is vigilant about monitoring these buildings, as is the
Code Enforcement Division.
Code Enforcement and the Pazks and Recreation Division work together thmugh the abatement
process. Pazks and Recreation receives work orders from Code Enforcement for tall grass and
weeds and garbage violations, and Parks and Recreation performs the abatement.
Finally, Code Enforcement also interacts with the community through block clubs and district
councils. The Weed and Seed progrun, a federally funded program that provides money directly
to neighborhoods for ciean-up and other neighborhood improvement activities, allows them to
work close]y with selected communities. The community will contract with Code Enforcement
for increased services such as targeting basic code violations. Code Enforcement is also involved
with communities through other special programs, such as the Dayton's Bluff Initiative, (a short-
term progam in the Dayton's Bluff neighborhood that encourages residents to monitor the
property maintenance standards of the azea) and neighborhood surveys (code enforcement
sweeps), which are discussed on pages 444b.
Code Enforcement Policies
We found Code Enforcement in compliance with most relevant policies, but we will point out a
few instances in which they either need to change or solidify their practices, or where it seems a
6 Focusing Our Resources on Community Empowerment
2000 SaintPaul CiryCouxci7Research
b/-� 7
Z8
PerFormance A�dit of the Ciri of Saint Paul's Citizen Service Office
change in the Code would be the most logical solution. In most cases, we have listed only the
sections of the ordinance or policy with which we found compliarice problerres.�
2000 Proposed BudgeY Program Objectives
The City's annual budget is an official City document that contains not only the spending and
revenue projections of all City departments and offices, but also their ongoing and project
objectives. Much of the information contained in the 2000 budget activities for Code
Enforcement is simply a description of the services they provide, with a few goal-oriented
objectives included A short discussion of the objectives and whether they are currenUy being
met follows this box. Many of the priorities and objectives will be discussed in other sections of
this report. Here we will highlight only those not discussed in other subsequent sections.
Code Enforcement Objectives
2000 �ty Budget: Ac[ivity Pertormance Plan for Property Code Enforeement
This progrnm enforces minimum hoosing and health code on all interior one- and two-family homes and on all
exterior properties. The p�upose of this program is to protect ffie public health and safety and maintain and
improve ihe housing in Saint Paui in order to make ffie City a safe place to live. .
The progcem priorities aze to:
1. Investigate citizen complainu and respond to calls for service.
2. Case manage chmnic probtem properties.
3. Ptovide support to police officeis, KC.H.S., RC.H.D. (Ramsey County Human Services, Ramsey Coimty
Healih Department).
4. Conduct proactive inspection patroLs.
1'hese goals are accomplished by.
i. Uniform, consistent enforcement of ifie Legisiative Code, State Statutes and federal regulations.
2. Working in collaborstioa with police to sotve neighborhood problems.
3. Working with diuriM coimcils, ore ni�ed block clubs, problem property committees, landlord and ienant
advocacy goups and individuals to eliminate iaban blight
4. Working with child and aduk protection to protec[ vulneiabte children and adults from hazm.
5. Pazticipating in problem pioperty resolution meetings.
2000 City Betlget: property Code Enforce�enh Objectives
i. Identify and target those properties wSdch generate repeat complaints, and xfiich comprise comtinual
nuisances and blight in tfie residentiai neigflborhoods. E,;w.;,t �as°, �.y o aud oaea�a[s
tLrough use of all existing enforcement options, including enforceme¢t of excessive use of service
2. Redvice the number of comptaint calls ta the City by proactive surveiltance patrols.
3. Conduct scheduled s�m�eys of neighborhoods ia ihe City where coadidons wanant closer monitoring by
enforcement officeis.
Findings
1) Code Enforcement has developed a program called PP2000 to handle some chronic problem
properties. This program will be discussed in more detail later in this section.
� The list of alt the codes relevant to Code Enforcemecit are listed in Appendix A
2000 Saint Paul City Council Research
PerFotmance Audit of the Ciry of Saint Pwl's Civzen $ervice Office 29 �`—� �
2) Code Enforcement works with the Potice Department through its support of the FORCE unit,
as mentioned earlier in the introduction to this section.
3} Code Enforcement works closely with the Ramsey Courny Human Services Department when
they discover situations where children and vulnerable adults may be at risk. In some of the ride-
alongs done by Council Research, we witnessed the open dialog inspectois have with child
protection workers, and were impressed with the care the inspectors we visited with took in these
very difficult situations.
4) Code Enforcement is not meeting the objective stating they will reduce the number of
complaint calls to the City by proactive surveillance patrols. Code Enforcement is currently
unable to gather any meaningful data on complaints. Therefore, it is difficult to lmow if they are
meeting the objective to reduce the number of calls. They also have not been able to do routine
proactive surveillance patrois due to a lack of funding and limited staff. Inspectors may look for
non-reported violations when they aze checking the reported violations, but they do not have
specific time set aside to patrol their areas. Sweeps have, in recent years, been done at the
request of Councilmembers or neighborhoods, but beyond those Code Enforcement finds them
difficult to conduct. Code Enforcement recently determined they have some unexpected
financial resowces because of some open stat�'positions. As a result, they have asked
Councilmembers to determine whether they would like sweeps conducted in their respective
wazds.
Recommendation
See Recommendations 53-56 in the Informatfon and Analysis Chapter, on pages 68-69, which
address data collection and analysis.
2000 S¢in[ Paul Ciry Couttcil Ruearch
Ol —b 7
30
Per£ormance Audit ofthe City of Saint Paul's Citizen Service Office
Minimum Property Maintenance Standards and Egcessive Consumption Fees
I.eg. Code Chapter 3d: Mivimum Property
StruMUres
Sec. 34.25. Conflict wit6 other ordivauces.
Ia any case where a provision of ttis chapier is found to be in conflict with a provision of avy mning,
building, fue, safety or health ordinance, chapter or code of ttds city, the provision which establishes the
lugher standazd for the promotion and protection of the health and safety of the perople sha(1 prevail.
See. 34.08.5 Ezcessive Consumpaon of esterior inspectiou services, fee and liabiliry.
(a) The city shall be entitled to collect its costs of enforcement from a property owner wLo consumes
excessive ea2erior inspection services. An excessive consumprion of e#erior inspection services occurs at
each element of an exterior inspection cycIe beginniag after:
(1) Written notice of a violation is served imder seclion 34.OS.3 following an iniriai inspection; and
(2) Three (3) additional exterior inspection cycles are performed at the same locarion witivn a
consecutive twelve-month period after the iniriai inspection; and
(3) Diuing each of the three (3) additional e#erior inspection cycles under subpazagcaph (2), the
enforcement officer 6nds violations of section 34.08.3 w6icfi aze eiiher new vidations or violazions
based upoa failure to conect previous viola�ons.
(b) The fee for ihe fourth iaspection cycle shall be two h�mdred dollars ($200.00). The fee for each inspection
cycle thereafter shall be fiRy dollacs ($50.00).
(c) Owners who fiave received a aotice of waming shall be joim[y and severalty 1ia61e for the erzcessive
consumpROn of eaterior inspectioa services fee.
(d) The amouat of the eaccessive consumption of e�aerior inspection services fee shall be a debt owed to the
city by the responsible person or pecsons.
(e) Action under this sectioa does not preclude any ot6er civil or criminal eaforcement pcceedure.
(fl A aew owner wlw has duly recorded ihe iastrument of conveyance for the subject pmperty avith the
Ramsey County Depaztment of Records and Reveaue witl�in the time provided in Minn. Stat. §§ 507.235 shall
not be liable for any excessive consumption fees azising from inspection services provided to the previous
owaer of the subject pxoperty.
Sec. 34.OS3. Initiat eaterior inspecrion by enforcement officer.
When an enfomement officer conducts an initial inspection of an eueiior property area and determines that
violations of section 34.08 exist, the enforoement officer shall, in addition to any other action the enforcement
officer may imdertaka, serve written notice of ffie violaAion in confrnmance widt the requiremeats set forth in
section 34.21 of dus chapter.
The initial norice must contain a notice of wazning infoiming the owner tLat subsequent e#erior property area
inspections at that same locarion wiUdn the ne� consecutive twelve (12) months may be deemed an e�ccessive
consumption of e#erior inspection services and that the owner may be liable for an e�erior inspection
services fee.
-- ��gS -------------
1) When asked how they handte situations where Chapter 34 confIicts with other relevant
sections of the code, we received varying answets. Some staff stated they use the most stringent
code, othets stated they use whatever reqairements make the most sense given the situation.
Staff stated that perhaps the most problematic of these situations retates to property code
violations ia historic districts. The inspectors may order repairs to shuctures govemed by the
lristoric preservation code. The Historic Preservation Commission may put strict requirements
on the materials that can be used, and the properry owner may not be able to afford those
required changes. Thus, the repairs may go undone and the inspector may let violations go that
in a non-historical azea he or she would have ordered. This appeazs to be a case where Code
Enforcement is not consistent in their enforcement of the Code.
Z000 Saira Aaul Ciry Council Resemch
Perf'ormance Audit ofthe City of Saiat Paul's GRZen Se�vice O&ce
si � � `(� `�
2) Code Enforcement is no longer enforcing the excessive consumption portion of the Property
Maintenance Code. They have found it impossible to collect the fees in most cases. According
to current City Code, these fees cannot be assessed to the property taxes of the violator, therefore
there is no mechanism to ensure the fees aze col]ected. -Code Enforcement has stated that
enforcement of the provisian costs more than they woutd recover from the fee, especially if
violators do not pay after repeated attempts by the City to collect the fees_ It is unclear to some
inspectors as to whether the poiicy is intended to penalize or just to recover costs_ No matter the
intent, the fact remains that the fee is not recovering costs because violators are not compelled to
pay, and the limited revenues generated aze not covering the inspections costs incurred.
3) Code Enforcemen2 inspectors sometimes give oral notices of a violation. This happens in two
situations. Tn the first type of situation, an inspector wili simply tell a property owner to cut the
grass or weeds or clean up the garbage, and may not foitow up with a written order if it seems the
property owner is willing to comply. In the other situation, an inspector may come across an
emergency situation where clean up needs to happen immediately, such as a dwelling which is
filled with garbage and cluldren aze living in it An inspector will tell the occupant to clean-up
and then will send a written order as soon as possible. Clearly the second situation is not of
concem as a written record is made of the incident. Our concem with the first situation described
is the lack of record of the violation, particulazly if the ptoblem persists or if other problems
occur. The information is also important for data collection and analysis purposes. We are also
concemed the property owner may not receive the information on the appeals process if they are
not given a written notice, as the appeals information is contained on the notice.
Recommendations
Recommerrdation #14. Code Enforcement managers should clarify for inspectors which
ordinances provide the highest standard for enforcement.
Recommendation #I5: Code Enforcement, the Ciry Attorney's Office and Council Research
should revise the e.zcessive consumption portion of Chapter 34 to allow the City to, collect fees to
cover costs from repeated inspections at the same properry. 7Tie City should assess the fees to
the property tazes.
Recommendation #16: Inspectors should issue written orders along with any oral orders to
provide wrinen evidence if the problem persists, and to ensure the property owner or tenant
receives the appeals process information.
2000 Saint Pau! City Counci! Research
oI-� 7
3I
PerFormance Audit ofrhe Ctty of Saint Pa¢!'s Ci6zen Service Office
Certain Nuisance Dwellings
Chapter 42. Certaia Nuisance Dwellings � �
Sec. 42.01. Definidons.
Ualess othezwise expiessly stated, Uee following terms shall, for t6e purQoses of 8zis Chapier 42, have tbe
meanings indicated in this section
(1) Dwelling. Any one- or two-family renta( dwelling which is not occupied by the owner thereof. Dwelling
iacludes both the buelding or struchae and ffie land upon wtrich it is located
(2) Nuis�mce dwelling. Any dwelling which has beett found, upon inspection by the fire chie� to be in
violarion of any provision of any applicable safety code on fois (4) separate dates in any twelve-month period.
(3) Fire chief. Fire chief ieclvdes ffie said chie� as well as the official appointed as frre mazshai, aad also any
inxpector imder his or her supervision and conROl, and also inoludes any city officer or employee charged with
iesponsibility for the enforcement of a safety code... .
Sec. 42.02. Registration of a auisance dwel►irtg.
(a) Registratiorz Any dwelling meeting the definition of a nuisance dweRing shall be deemed on the date of
ihe fourth inspection in such twelve-month period to be registered as a nuisance dweliing, and subject w the
additional provisions of Uvs chapier, induding the paymeat of a regimation fee.
Such regishation shall remain in effect for a rivelve-month period beginning on the date of registration az a
nuisance building.
(b) Additioiml requiremems. Aay dwelling daemed resstered as provided in subsection (a) above shatt also be
subject to the requireme¢u of section 33.05 of the I,egislaave Code relating to occupancy so long as it is
registered avd for a period of rivelve (12) months after registcation tecwinates. Such registered nuisance
dwelliag sLall be required to have a certi8cate of oocupancy issued by ihe 6re cldef withia twelve (12) months
after the dake on which it is deemed registered. Failure to have such certificaie issued witLin such twelve (12)
months shall subject such dwelling and its owner to all enforcement and remedial measures which may be
applicabte mmder law or ordinavce.
Finding
According to the City Attomey's Office and Code Enforcement sraff, Chapter 42 was ffie first
attempt to institute a rental registration program in Saint Paut. Since Chapter 42 was last
updated in 1997, a new rental zegishation progam has gone into effect In 1999, Chapter 51 of
the Legislative Code was enacted req»iring all non owner-occupied one and two unit dwellings to
register with the City and obtain a rentai dwelling uait registration certificate. If the dwelling is
deemed a nuisance arcording to Minn. Stat § 617.18, the certificate may be revoked, and the
properry may no longer be occupied. Since this chapter regulates all one and two-unit dweilings,
inciuding fhose dze��c.' ;.:::saur„°s, :i �*s C�+�ster 42 could be reoealed. However, since
there aze some problems with the current registration program, described later in this section, it
would be best to wazt until me ro is fuii o erau:e ;e,`�.,, ���rt-r� q�, __[,7, �e_r ___
P �n Y � '°�..�a....s ----�--�- � ----- --
42, as it is cucrently written, is the responsibility of the Fire Chief. However, as Code
Enfomement is no longer tmder the administraiion of the Fire Ctrief, the language in the
ordinance is incorrect
Recommendation
Recommerrdation #17. The City Council should update the language in Chapter 42 and make it
the resporrsibility of the Director of the Citizen Service Office, or his or her designee. I,f Chapter
51 u successfully implemented, the Citizen Service Off ce should request that Chapter 42 be
repealed, from City Code
2000 Saint Paul Ciry Council Research
Perfosmance Audit ofthe City of Saint Paul's Gtizen Service Office
Nuisance Abatement
33 ��
Chapter 35. Nuisance Abatement
Sec. 45.08. AWhority to abate.
(a) The city is authorized to abete nuisances in accordance with the grocedinc� se[ forth in sections 4510, 45.11 �d
45.12, All abatement cos[s inciured shall be chazged agains[ the propecty as a special assessmefrt to be collec[ed in the
mazmer provided for in the City C6arter, Chapter 14. Faccept when a request is &led for a review of an emergency
abatement, the assessment hearing shall be replaced by the hearing provided for in secrion 45.12.
(b) Abatemeat may i�lude, birt shali not be limi[ed w, mmovai, cieaning, extermivatio4 �& m��& �n&
sewer �ePai�s. dramin& �ecurin& board�n8 unoccuPied stucaues, batricadi¢g or fencing, temoviag dangerous poctions
of s�ucna�es and danolition of dangerous soructiues or abaz�doned buiidings.
(c) Abatemrnt cos� shail include specifically, birt nar exciusively, the cost of the abazement; the cost of investigazion,
inciuding titte searches, inspecROns and tes[it�g; the cos[ of nofificazion including secvice costs; filing cosLS; attomey
fees, witness fces and appraiseis' fces; and adminisaarive costs.
Finding
Gturenfly, the structure of the abatement fees does not, in practice, include costs associated with
Code Enforcement; rather it includes only the costs incurred by Pazks and Recreation, Public Works
or the private contractor. Some discussion has occwred recently about whether the fee should
include costs incurred by Code Enforcement as well, such as an inspector's time and mileage.
Recommendation
Recommendation #I8: The City Council should revise Chapter 45 to include tfie cost of Code
Enforcement inspections in the abatement fee. This would then be campatible with the concept
behirrd excess consumption and recovering costs associated with enforcement.
Truth in Sale of Housing
Chapter 189. Trat6-in-Sale of Housiog
Suwmaty: This ordinance requires that all dwellings for sale in the City of Saiat Paul have an evaluation
cumpleted to deteimine the conditioa of the stcuctutal, el�trical, and mec6anicat systems of the dwelling,
and that the evaluatioo be displayed at the dwelling for potentiai buyers to review. The evaluation must be
done by a certified huth-in-sale of housing evaluator who is certified by the City.
2000 City Budget: Actirity Performance Plan for Truth-in-Sale of Housing
17ris activity:
1. Records, processes, and files evatuarion repocts and fees submitted by the evaluatois.
2. Investigates complaints and initiates disciplinary aMion against the independent evalvators when
appropriate.
3. Performs ongoing ceviews of materials, insruance, forms and continuing education credits.
4. Serves as secretaryhreasiuer to the Tnrth-In-Housing Boazd and administers certificarion e�cams az
directed by ffie Boazd.
5. Nofifies the Division of Fi:e Prevention when a single-family homes dces noi have hazd-wired smoke
detectors.
�2000 CYty Budget: Trnth-In-Sale of Housing: 2000 Objeetives
1. Conduct compliaace investigarions to assure compliance by home seilers.
2. Conduct compliaace investigations of the independent evaluatoxs wtdch asswes conformity to ihe
certification :equirements.
IOQO S¢int P¢u! City Cauncil Ruearch
oi-G� 7
� Pe rfiovnan c e Aud it of the City o fS a mt Faui's Citizen Service OSce
Finding
The Truth in Sale of Housing function of Code Enforcement is generally in compliance both with
the Code and the Budget documents. They have an administrative staff person assigned to the
program who coitects the disctosure and insurance forms and tracks the educarional requirements
for the evaluators. However, Co@e Enforcement does not curreatly have azc inspector assigned to
Truth in Sale of Housing inspections and aze, therefore, not able to conduct the compliance
investigations, though they aze investigating complaints. During the interview ptocess, staff
stated that an inspector will be assigned half-rime to the program. Staff stated they did not have
the financial resources to assign an inspector. However, an ordinance allowing tfie Truth-in-Sate
of Housing Board to seT the fees, rather than having therre established in ordinance, was enacted
by the City Council and is set to go into effect November 2000. It is believed the fees will be set
at a level to cover the administrative costs.
Recommendation
Recommendation #19. Code Enforcement should immediately assign an inspector to the Truth-
In-SaZe of FTousing program or the Ciry should contract out the compliance inspections. The
City should main[ain its resportsibility for irrvestigating complaints.
Housing Plan Chapter of the Saint Paul Comprehensive Plan
The Aousing Plan Chapter of the City of Saint Paui's Compreherrsive Plan contains a number of
policies wlvch relate Yo the work of Code Enforcement. T'he Plan is an official City document,
and its policies are City policies to which departments have an obligaLion to comply_ The
foilowing is a brief discussion of each policy and relevant recommendations.
$ousiog Plan Cbapter of the Saint Paul Comprehensive Plao, March 24, 2999
Policy 43a Additional resources should be devoted to the epsting code enforcement imit to be used'm
pazmers[up with neigfiborhood based improvement efforts such as sweeps, Weed and Seed and residential
sheet paviag.
�IIQIAgS
1) Code Enforcement has limited resources, and'nas sCaied iYicy �z �r..y WiP. v^y2i'..�"..°: `N!*
other organizations if overtime funding is available or if the organization provides some funding
for Code EnforcemenYs participation. In the past, Code Enforcement has assisted some City
departments in their neighborhood improvement efforts, such as the Potice DepartmenYs HEAT
progrun. Code Enforcement expressed fivstration with the Police Depaztment in relation to the
HEAT prograzn, as no funding was provided for Code Enforcement to assist with the pmgrazn,
though the Police Department expected them to participate. However, we found thaY the
resolution passed by the City Council providing funding for the fiEAT program appropriates
fimds only to the Potice Department. Therefore, the Police Depaztment was not aufhorized to
B HEAT staads for Heary Enforcemeai Activity for Thirty Days. Ii tazgets areas imowa ro be hot spocs fur criminat
activity. Part of the mission is to improve the quality of life by reducing crime.
2000 Saint Paul Ciry Council Research
Perfarmance Audit of the Ciry of Sai¢t Paul's Cibzen Service OfEce
o ► -�'�
35
provide any funds to Code Enforcement. Code Enforcement can choose not to provide support
to the Police Department for this program, but the Police Department has stated the process of
condemning buildings is easier if Code Enforcement is involved with the property az the onset of
the HEAT progam's involvement with the property.
Recommendations
Recommendation #20. The City Council should allocate funds directly to Code Enforcement to
ensure their participation in the HEAT program if it wishes to continue the program in its
current form. If the City Cauncil does not want Code Enforcement irtvoZved in the HEAT
program, it should specify that Code Enforcement not participate in the program.
Housing Plan Chapter of the Saint Paul ComQrehensive Plao, March 24, 1999
Policy 4.36 The use of administrative fines, razher t6an the current staff-intensive system that involves a
series of waznings and re-inspections, to enforce the provisions of the housing code should be explored
Finding
Code Enforcement currently imposes no administrative fines, although excessive consumption,
described earlier, is an administrative fee. This Comprehensive Plan policy is a move away &om
a staff-intensive enforcement system to a system heavily reliant on fines as the enforcement
mechanism. It also reflects a philosophy different than Code Enforcement's current approach
which emphasizes direct inspector interaction with properry owners to gain compliance, rather
than the unposition of fines. Ttus conflict may also reflect a lack of communication between the
prepazers of the Comprehensive Plan and Code Enforcement.
Recommendation
Recommendation #ll. Code Enforcement should udvise the Planning Commission to change
Comprehen.rive Plan policy 4.3b iffznes are an ine, f� j'ective a less desirable way to gain
compliance fhan is interacting with properry owners through the standurd violations notice
process.
Housing Plan C6apter of the SaiOt Pau1 Comprehensive Plan, March 2A,1999
Policy 43c City staff should work with the Housing Court to determine how best to aclileve a Irigher
success rate in achieving compliance wiih the housing code.
Finding
Code Enforcement, the City Attorney's Of�'ice and the Housing Court have been working
together to achieve compliance, and Code Enforcement states they have achieved a higher
success rate, though we are not awaze of any concrete data to support this assertion.
2000 Sairrt Pau! City Council Research
o> � �
36 Perfoanance Audit of the City of Saint Paui's SStizen Service Office
Recommendation
Recommendaxion #22. Code Enforcement, the Ci1y Attomey s O�ce, Fire Prevention, LIEP and
Housing Court should do an evaluation of the services provided and the level of success of the
housing court program and determine areas for improvement or change.
Housing Plan Chapter of the Saint Paul Comprehensive Plao, Marc6 24, 1999
Po(icy 43d Addizional iesources must be identified and vsed in pamierslvp with those cade enforcement
efforts to assist property owaers to make the necessazy repairs and impmvements before there is sigtificant
deterioration.
Finding
Some inspectors aze proactive about giving oui information To property owners regarding
programs and sources of funding, such as low interest loans to assist with repairs, while other
inspectors aze not
Recommendation
Recommendation #23. Code Enforcement should standardize the irrformation given out to
ensure that everyone receives the necessary information. This information could also be given
out to entire neighborhoods that are the focus of Code Enforcement sweeps. This information
should also be made available on Code Enforcement s web site.
Housing Plan Chapter of t6e Saint Paut Comprehensive Plan, Ma'ch 24,1999
Yolicy 4.4 To the eateni possible, fimds available for residenteal rel�abelitazion should be focvsed on
specific neighborhoods and coordinated with public in&astructuce investments in order to aclueve the
maaimum possibte impact and leverege �e greatest possibie privaie investment iLrough aeighborhood-
based planniag processes, distric[ councils, CDCs, business associaaons, block clubs and other key
stalceholders should be involved in both the seleaion of focus azeas and the development of the capital
investment prog-am.
r`lII�lllg
Code Enforcement is not generally directly involved in fhe seiecrion of focus azeas t"or resideriu�
rehabilita4on, but rather works with commvnity groups and other departments once an area has
been selected for tazgeted fimding through programs Iike Weed and Seed They have not been at
all involved in the qpital investment program. Code Enforcement staff mentioned two
recommendations in response to ihis policy ihat we felt were excellent and should be pursued.
Recommendations
Recommerrdation #24. Code Enforcement should be more irrvolved tivith Public Works in the
selection of projects such as alley paving and plowing, curb and gutter installation, street
lighting upgrade, boutevard and sidewalk maintenance and street surfacing. IjCode
Enforcement w�e to assisl with 1he seleclion, they may be able to target resources to
neighborhoods where City i�zvestment would greatly impact the neighborhood arrd increase the
2000 Saint Paul City Council Research
Perfortnance Audit of the City of Saint Pau('s Citizen Service Of�ce
o t-(�'7
37
vaZue of the properties. WhiZe in many irtstances these projects deal with quality of life concerns,
rather than safety concerns, they serve to improve and beaut� neighborhoods and increase
people's sense of security.
Recommendation #25. Code Enforcement shouZd provide statistics that indicate which areas of
the City irrspectors spend most of their time and what the common probtems in the area are.
This could provide data which would help decision-makers determine where resources should be
directed. This information could be used City-wide by various departments.
Housing Plan Chapier of the Saint Paul Comprehensive Plao, March 24, 1999
PoGcy 4.5 Improve management and maiateeance of reatal property. Among the most w(nemble
residential struMures ia the city's hovsing stock aze its rental pmperties. Strategies to identify, train avd
suptwrt quality proper[y management services in order to ensise ongoing maintenance and systematic
investment shoWd include:
a Financial incentives (e.g. rental rehab fimds) or reduced inspection Fees for weil managed
properties.
a Mechanisms to place vulnernble pmperties imdet communiTy management and to build the capacity of
comm�mity based organizatioa to provide tltat management.
Finding
Staff suggested the Rental Registration progrdm is one way to incorporate financial incentives for
well-managed properties. Another staff person suggested a similar program be created for the
vacant buildings program. For instance, the vacant building registration fee could be reduced if
the building has few complaints or increased if the building has an excessive number of
complaints.
Code Eiforcement staffhave strong objections to community management ofproperties.
Through their experience, they believe the same code enforcement problems still existed under
community management� This suggests community management may not address the true
reasons for the problems.
Recommendation
Recommendation #26 The Planning Commission should remove, from the Comprehensive Plan,
policy 4. Sc which promotes the placement of vulnerable properties under the management of a
community based organization.
Housing Ptan Chapter of the Saint Paut Comprehensive Plan, March 24,1999
Policy 4.Sd Training and mentoring for new and prospective landlords.
9 Community management occurs when a community group takes over the management of a property.
?000 SainlPaulCiryCourscilResearch
o�-� 7
38
PerFormance Audit of the Ciry of Saint Paul's Citizen Se�vice OtSce
Finding
The Police Depai2menY has a pmgram called Crime Free Multi-Housing which provides
landlords and managers of rental properties with training on how to keep criminal activity out of
their properties. The full tlaree-day training session is typically held two rimes a year, but a more
informal group meets monthly to discuss issues of concem. Tlus group includes Police and Code
Enforcement staff, other relevant City staff and, most importantly, landlords.
Housing Action Plan 2000
Priority Ac6orts for 2000
321 Code enforcement
a. Strengthen interdepartrnent communication working towazd a coordinated effort to deal with problem
propecties. E�lore possibilities of foiming small information focus groups of City staff to deal with
specific problem properties.
f. Exptore resource oppommiries to go along wiffi code eaforcemeni ia order to eacouiage 'vnpmvemrnt of
uviu and reduce evicaovs and demolition of imits.
Findings
1) Pertaining to policy 3.21a, Code Enforeement currently pazticipates in the Problem Properties
Task Force (formerly the Information Exchange Group) with other departments such as Police
and Fire to address problem properties. Over the yeazs, there have been some plulosophical
differences within this group as to wfiether line staff sfiould be communicating informatly about
these properties, or if the issues had to be dealt with at a higlter management level. The feeling
of the cwrent chair of the task force is that it is more effective if line staff are encouraged to talk
informal[y as tfiey need to outside of the Task Force meetings. However, the Task Force
meetings remain very importanY for ensuring that activides aze formally coordinated.
Some issues have also been raised about sharing information in the group. Some members of the
group prefer to keep information to themselves rathet than share it with others. Tfris group is
vital to keeping communication open between organizations that often interact with the same
properties and people at vazious times.
2) Code Enforcement has sCruggled with how much infoanation is appropriate to provide
P ZO Clt OWLICLS 3ila tCRL@[5 lil OTQ�C�i6 ciiCiiui - 'cu,� "�.. °••,°••`,S:__T* _c. a nhilnc4 h].�_�EtRrilB__
P y � e . ..,.,.,... .-----� �
for them as they are an enforcement agency and are concemed about the mixed messages they
may be giving tenants and property owners if one the one hand they are citing them for property
violations and on the other they are promoting City programs to encoumge rehabilitation.
However, ifie writers of ifie Housing Action Plan 2000 cleariy feel it is important to provide
property owners with information about resoiuces thaY may be availabie to them.
Recommendation
Recommendalfan #27. Code Enforcemeni and the Planning and Economic Development
Department should reach agreement on what irformation about available resources for
rehabiliration is appropriate to provide to properry owners and tenants.
2000 Saint Paul City Cow�cil Research
Perfo[mance Audit ofthe City of Saint Paui's Civzen Service Office
Special Programs 8� Units of Code Enforcement
Rental Registration Program
39 �����
In October 1999, a new ordinance, I,egislative Code Chapter 51, went into effect requiring all
one and two-unit non-owner occupied residences to register with the City. Once the property is
registered, the owner receives a rental dwelling unit registration certificate, which is to be
renewed annually. Prior to this tune, these properties were not required to register and it was
difficult to track these properties and their compliance with housing codes. According to
Minnesota State Statutes, the City of Saint Paul could require these properties to obtain a
certificate of occupancy, which requires periodic inspections to renew the certificate. Howevet,
the City has chosen to tequire a similar yet less stringent dwelling unit registration certificate that
allows for inspections only if the situation meets the specific criteria established in the ordinance.
Code Enforcement and the Housing Informarion Office have been responsible for implementing
this program, and numerous problems have been encountered. The following box contains the
Activity Performance Plan for the Rental Registration prograni.
2000 City Budget: AcYivity PerFormance Plan for the Rental Registrarion Program
17us program enfmces Rmrat Dwelling Umt Regimation, Cdapmr 51 of ihe Legislalrve Code.
• IdrntiSes on� and two- farnily non-owna occupied subject Qroperties and requires regishation and enfomes collection of
fees.
• Lssues RegistraUOn Certificares.
• Revokes, suspends, cancek certificates on probtem pcopeties as provided for by O�dinance.
• Coordinates registrarion and certificare issuance wirh Building Inspecfion Division
• Collects revenue and re�strafion dab and shares this info�ion with other agencies, departments and divisions.
• Provides pmgam infolmafion to the public.
Findings
1) Since the program is relatively new, not all of the problems regazding Rental Registration
have been worked out Specifically, Code Enforcement was inidally condemning properties if
they failed to apply for a registration certificate. The City Attomey's Office has since
determined they cannot condemn properties for tivs reason. Code Enforcement cannot condemn
a building if they have not made the deteimination the building is "unfit for human habitation."
There is a danger under the condemnation section of the City Code that the action could be
construed as regulatory taking. This type of condetnnation is separate from a situation where
Code Enforcement has already conducted an inspection and determined that code violations exist.
However, the ordinance is still enforceable as it is a misdemeanor if a qualifying property owner
fails to register. Other legal issues are being discussed between Code Enforcement and the City
Attomey's Office regazding the circumstances under which inspections can be done. Part of
these conflicts stem from differences of opinion beriveen staff administering the prograni.
�� The City requires a Certificate of Occupancy for rentai dwellings with fluee or more units. This program is
administered by the Fire Prevention Uait of the Fire and Safety Services Departmeni.
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PerFocmance Audi[ of the City of Saint Paul's CiGZen Service Office
2) We leamed from staff that the computer program developed in-house and being used for the
Rentai Regishation program is not effective and is very difficult to use. They aze currently
conveding to the Freelantz softwaze, but have found the systems to be incompatible. Thus, the
information inirially entered in the Rental Regisuation system has to be manually transferred to
the Freelantz softwaze.
3) The Rental Registration prograni is taking longer than anticipated to implement, partially due
to staff resources having been dedicated to the Dayton's Bluff Initiative. This Initiative was not
anricipated when they were planning for Rental Registration.
Recommendations
Recommendation #28. Code Enforce�nent should develop a plan for the administraYion of the
Rental Registratiorr program. It murt address potential infTuences on the program, such as
speeial inftiatives, and how to make the program successful even ifstafJ'resources are limited.
Code Enforcement also needs to plan for implementation of each provision of the ordinance to
ensure they are enforceable. fill staff resporrsible far Reraal Registration should be irrvolved in
the creation of the plan ns well as the City Anorney's Ojj?ce and other relevant stakeholders. As
with mry new program, other staff wuhin the CSO should be educated as to the specifics of the
progrmn in order to prevent confusion over enforcement and administration and to ensure the
information provided regarding the program is corrsistent.
Recommendation #29. Code Enforcement must implement the AMANDA system as quickly as
possible for Rental Regisiration, This would also allow other departments utilizing AMANDA
easy access to the registration data.
Vacant Buildings Unit
The function of the Vacant Buildings Unit (VBL� is to case manage vacant buildings until ihey
are rehabilitated or demolished. The VBU was created in the mid-1960s as a result of a lugh
profile case in wluch a woman was attacked by a goup of inen in an �matteaded, unlocked vacant
building. Since its establishment, the VBU has always been pazt of Code Enforcement It has
traditionatly been pecceived by the Division's staff as an elite unit T1us perception is due in part
xo the belief of some staff that management provides VBU employees with more respect and
resources than regulaz Code Enforcemeat inspectors.
The VBU policies Coancil Research examined for this audit were fovnd in the Saint Paul
Legislative Code and the 2000 City Budget. Most of the Unit's budget objectives aze reiterations
of its responsibilities fointd in the City Code. Therefore, we have listed only 2000 Budget
Objectives to avoid duplication. A list ofthe policies we reviewed are found in the folIowing
table.
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at ��'
2000 City Budget: Vacant Building Monitoring: Designation ot Services Provided/Ongoing
Objectives
This Program enforces the Vacant Building Legislation, Cl�apter 43 of t�he Legislative Code." This
activity:
1. Idenrifies vscant buildings and "case manages" these properties to eliminaze the public Lealth and public
safety issues associazed with vacant buildings
2. Requires registraLion plans and collec[s regishation fees.
3. Invesrigates complaints on these buildings.
4. Eliminazes nuisance law violations on these properties.
S. Works with the City Council, District Councils, Neighborhood Groups, Biock Clvbs, Police, Fne,
BIDD, and PED on these projecu.
6. Collecis and distributes the vacant building inventory lisu.
7. Identifies "Nuisance Buildings" which are subject to demolition imder activity 30251.
2000 City Budget: Vacaat Building Monitoring: 2001 Objecrives
i. Conduct regutaz inspections of vacant buildings at a minimum of every other month as required by
ordinance.
2. Continue regulaz, routine surveillance of all registered vacarn buildings so citizens do noi have to make
complaiMS abouT miisance conditions at these properties.
I�ndings
Cas�Management of Vacant Buildings
T�acant Building Identifzcation and Registrataon
1) Vacant Buildings aze identified mainly through refeaals from citizens, Code Enforcement
inspectors, and the Police and Fire Departments. Once a building has been identified, a VBU
inspector will evaluate the property in order to make a determination as to whether the property
meets the legal definition of a vacant building or is only considered to be unoccupied.'� Once a
building has been declazed vacant, the property owner is required by City Code to register the
building within 30 days of the declaration. Vacant buildings aze also categoriaed according to
their habitability."
2) The vacant building owner is informed of the registzation requirement through a notice which
states the owner may not occupy the building until it is considered habitable and meets the
standazds found in the Code. The notice also informs the property owner that he or she must
complete a vacant building registration form and submit a fee of $200. The registration form
requires the building owner to provide his or her name, address, and a phone number so s/he may
11 The policies foimd in the 2000 Budget and the Legisiative Code are virtually identical. T6erefore we have lisied
only 2000 Budget Objectives to avoid duplication.
� imoccupied buiiding is a building wtrich is not being used for legal accupancy but it is secured by aoimal
means, that dces not have outstanding housing code violations, and is maintai�d by the property owner.
13 The categories of vacant buiidings aze outiined in Appendix D.
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4Z Perfoimance Audi2 ofihe CTy of$ain[ Paul's Citizen Service Office
be contacted in the event of an emergency. A placazd is placed on the building staTing the
property has been declared a vacaret bailding. The placard also identiffes the name and phone
number of the inspector responsible for the property.
Irrspections and Complainrs
1) Vacant buildings aze inspected once every three to four weeks. During the inspections, VBU
staff ensure that pmperties aze secured, maintained and are not housing squatters. Atso,
inspectors perform periodic, random spot checks for squatters one night each wee[c.
2) Complaints about vacant buildings typically come in through the Information and Complaint
phone line. These complaiats are entered into the EXI, system and a notice is sent to the
appropriate inspector. CompIaints are also received directly by the inspectors &om citizens who
find their numbers on the placazds posted on the buildings. InspecTOrs prioritize complaint
inspections based on the severity of the situation and will rypicalty wnduct the investigation
within 2 days of receiving ffie complaint.
Demolitions
1) If a properry remains vacant for one year and there are no active building permits for the
property, the demolition process may begin, To begin the process, an inspector will inspect the
property for deficiencies which need to be corrected. A notice of the deficiencies will be sent to
the property owner. The owner has 30 days in which to make the corrections. If, after 30 days
the problems az+e not remedied, a resotution is placed on the City Council agenda announcing a
pubIic hearing before the Legislative Aeazing Officer to be scheduled for 30 days later and a
public hearing before the City Council. After the public heareng before the Legislative Hearing
Officer, the matter comes before the City Council in the form of a resolution requiring the owner
to repair or remove the building wfthin 15 days. If the owner does not comply, the City may
demolish the building.
Community Relationships
1) The Vacant Buildings Unit responds to City Council concems on a case-by-case basis. If
Councilmembers have questions or issues about a parciculaz property, the VBU wil] respond as
quickly as possible. The VBU also provides Councilmembers wiift a qua�terty rep�rt af a?1_
7'w'—^-* �'^—���TM!a an their �'azds• T'hese quarterly reports aze a[so sent to PED staff and other
interested parties who are on a mailing list maintained by the Unit. In acidition; riie iistcis pi,5a:
on the Code Enforcement web page.
2) VBU staff attempt to develop relationships with District Councils by checking-in on a regulaz
basis at their offices and meetings. Inspectors will attend block club and neighborhood group
meetings if they are asked to do so. The VBU atso has weekly conversations with Fire
Department inspectors to discuss issues regazding the Certificazes of Occupancy for vacant
buildings. Tn addition, they also have weekly discussions with PED staff via phone and email
regaz@ing specific properties tltat may be available for redevelopment. Finaiiy, the VBU
supervisor reports that he speaks with representatives from LIEP regazding buiiding permit issues
on a daily basis.
2000 Saira Paul Ci1y Council Resemch
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Complaint Reducrion
3) Compiainu about vacant buildings are tracked by the Unit According to VBU staff, they
appear to be going down, but'no analysis is done by the VBU to determine why complaints are
decreasing. Staffreport thaz anecdotal evidence suggesu the decrease is the result ofthe high
demand for housing in the City which has caused property owners to better maintain their
properties so they can more quickly be occupied. According to interviewees, the VBU is not
provided with the complaint reports produced by the Tnformation and Complaint Division.
43 ���°�
Recommendation #30: The CSO's Information and Complaint Division should provide
complaint reports cmd complaint resolution feedback reports to the Pacant Buildings unit. This
information should be used to assist the Yacant ButZdings Unit in determining how well the case
managemettt system is working.
Recommendation #31: The Yacant Buildings Unit shouZd develop more meaningful budget
objectives which are more than just reiterations of City Legislative Code. The unit should
review both their ongoing and an�rual budget objectives. New objectives should set goals for the
unit which go beyond what is required by Code and are pertinent to special initiatives to be
taken in the coming year. The lack of ineandn�'ul budgeY objectives is an issue for mosr of zhe
CSO's budget areas.
Special Initiatives
For the purpose of this audit, we define special initiatives to mean any new project or program
developed by Code Enforcement to address a specific problem. These initiatives are usually pIlot
projects or temporary in nahue. There aze sevetal policies pertaining the Office's special
initiatives found among its budget objectives in the 2000 Budget.
2000 C�ty Budget: Code Enforcemeot - Property Code Enforcemeut Objectives
1. Identify and target those properties which generate repeat complaints, and which comprise
continua] nuisances and biight in the residential neighborhoods. Educate those property owners
and occupants thmugh the use of all existing enforcement options, including enforcement of use
of service (zrcessive corrsumption of exterior inspection services) ordinance.
2. Reduce the number of complaint calls to the City by proactive surveillance patrols.
3. Conduct scheduled surveys of neighborhoods in the City where conditions warrant closer
monitoting by enforcement officers.
PP2000
Code Enforcement's primary initiative far dealing with chronic problem properties is PP2000
(Problem Properties 2000). The program began in January 2000 as the result of a Mayoral
direcrive to develop a prograzn to address chtonic problem properties. This program idenrifies
pmperty owners who have had repeated complaints against their properties and assigns these
property owners to an inspector who case manages the owner's properties. Property owners were
originally selected by senior leaders based on the zecommendations of Code Enforcement
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Perfocmance Audi[ ofrhe Ciry ofSaint Paui's GNen 5ervice Office
inspecto�. The Code Enforcement inspectors pro-activety work with the property owner to
encourage them to better manage their properties. In the words of one senior manager, the basic
philosophy of the progam is that "if you cure the probtem proper[y owner, you cure the
problem." Working with the owner is viewed by management to be more effective than
addressing the properties because by addressing the mosi ptoblematic property owners and all
their properties, the Division is able to capture a lazger number of properties than if it was
focusing on individuai properties.
Findings
1) The decision to include certain property owners in PF2000 is based primariIy on anecdotal
information provided by the inspectors. No specific, imiform ctiteria was azticulated for
inctusion in the PP2000 program.
2) Results of the prog�run have baen measured thus far targely by iuformai and anecdotat reports.
Code Enforcement officials believe that many ptoperiy owners in the PP2000 program are eithet
rehabilitating their properties or setling them. As far as we were able to discem, there are no
serious efforts to quantitatively evaluate the program's success.
3) The program dces not address owner-occupied properties nor dces it identify owners who have
a small number of rentat properCies in the City that are chronic problem properties. These
properties comprise a substantial proportion of atI properry code violations.
Recommendations
Recommendation #32. IfPPZ000 is to continue Code Enforcement should articulate criteria for
inclusion in the PP2000 program. The criteria should be based in pm7 on quantitative data such
as complaints about the address, the number of citations issued to the properry, and pvlice calls
to the property.
Recoramendation #33. Code Enforcement should immediately compile and analyle data
relating to the PP2000 program to determine its ef, j'ectiveness and worthiness.
Recommendation #34. Cade Enforcement should develop a program to address problem
properties whick are not included in tire �?2G30 pragram, sz:ch.ls awner-occupied cand other
rental nroperties not owned by the subjects of the PP2000 program.
Dayton's Bluff Initiative
This project is a coordinated effort between the Code Enforcement Division, Police Department,
the Fire Depamnent, the Housing Information Office and City residents Yo address code
enforcement violations and the associaYed problems which they may create, such as crime aad
lower property values, in the Dayton's Bluffneighborhood. The project began in February 2000
and is currently scheduled to run through December 2000. Code Enforcement has devoted the
equivalent of one full-time inspector position to the effort. They have also worked with
neighbors to develop citizen patrols and use "good neighbor notices,° which are cards that ask
property owners or tenants to clean or fix something and Yhank them for helping to make the
2000 Saint Paul Ciry Coanci[ Resemrh
Perfocmance Audit of rhe Ciry of Saint Paul's Citizen Service pffice 45 O ���
community better. The program has been viewed as a potential model for other City
neighborhoods with a significant number of problem properties. However, the initiative has been
perceived by some senior management and front-line staff as being driven by people from
ouuide the departmern (i.e. the Housing Information Office). This view has created problems
getting Code Enforcement inspectors to buy into the initiative. Also, for the first three months,
staff were supposed to collect data but did not, according to senior Code Enforcement staff.
However, in a report prepazed for a City Councilmember, data was retrieved from Code
Enforcement files and "good neighbor" code violation notices.
Finding
I) Code Enforcement has done some data collection on the Dayton's Bluff Initiative, but limited
systematic evaluation of the Initiative has occurred. Staff cite the timitations of their data
collection system as part of the reason for the limited evaluation, though an intem for a City
Councilmember was able to collect and analyze data for a report on the Initiative produced for a
Councilmember.
Recommendation
Recommendation #35. Code Enforcement should perform a systematic evaluation of the
Dayton's B1ufflnitiative. This would irrvolve collecting more comprehensive data on the
Dayton's Bluff Initiative to determine its e,�'ectiveness, pmticularly if it is to be e.zterrded or used
as a model in other neighborhoods.
Sweeps/Surveys
Finding
The budget states Code Enforcement will conduct periodic surveys (sweeps) in neighborhoods
which require closer monitoring for Code Enforcement violations. Typically, sweeps involve a
majority of the Code Enforcement inspector, who spend several days in a predetermined
geographic azea pro-actively seeking code enforcement violations. Sweeps focus on primarily
three types of violations: tall grass and weeds, junk cars and garbage. Until a couple of years
ago, the Division conducted 50-60 sweeps a year. In 1999, six sweeps were conducted and so far
in 2000, only one has taken place. With the change in senior management, the division changed
its philosophy regarding the value of these activities. C�rrently, sweeps are not done unless
requested from neighborhood groups or elected officials and they have an outside funding source,
such as Weed and Seed (a federally-funded prograui conducted joinUy with the Police
Department). Current management views sweeps as a superficial response to more systematic
problems. Sweeps require a great deal of time and effort on the part of inspectors. Tnspectors
must not only conduct the sweeps but must also spend rime writing tags and doing papenvork. If
a choice has to be made beriveen allocating resources for sweeps or for routine inspections, this
time and money, senior managers azgue, would be better spent on traditional inspections.
However, when coupled with routine enforcement activities, managers suggest sweeps aze
worthwhile and effecrive. At the time of writing this report, Code Enforcement determined they
have some unanricipated resources as a result of staff changes in the Division, and decided to use
2000 SaiM Peul Cily Councrl Research
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the money to conduct sw�ps. City Councilmembers were asked to identify any azeas wittrin
tlteir wards where they woutd iike sweeps conducted.
Recommendation
Recommendation #36: Code Enforcement should collecr data to determine the efJ'ectiveness of
sweeps. If they are found effective, the City Council should provide special funding to conduct
them in addition to routine Code Enforcement activities.
2000 Saint Paul Ciry Council Research
Perfortnance Audit of the Ciry of $aint Paul's Citizen Service O1Tice
CJR�ANIZAT'IONAL QUALITY
ASSESSMENT
The efficiency and effectiveness of the Citizen Service Office aze evaluated using an
Organizationa] Quality Assessment. While there aze several methods to evaluate effectiveness
and efficiency, our approach is based on work done by the organizers of the Malcolm Baidrige
National Quality Awazd who identified the characteristics of a high-pecforming organization.
47 � t —� r
The study of high-performing organizations has typically identified seven characteristics believed
to be essential for an organization to achieve excellence. These criteria have been identified from
studies over many years and aze widely accepted as indicators of organizational excellence. Our
criteria, based on that used by the Malcolm Baldrige National Quality Awazd and the Minnesota
Quality Award to assess organizational development and to identify quality organizations, aze
summarized in the table on the following page . None of the quality categories stand alone.
Each impacts the other, and all are essential to achieving a high level of performance. Quite
often improvement in one quality category will positively impact another. For example,
improvement in the category of Information and Analysis often significantly impacts both
Results and Improvement Processes.
Each of these quality categories is a chapter in the report, and each chapter contains the ratings, a
discussion of the quality of the organization, and our findings and recommendations. In addition
to the Results chapter, which focuses on organizational outcomes, an overview of performance
measures and their potential applicarion in the CSO is provided in the Performance Measures
chapter. Performance measurement in this performance audit means ffie regular collection of
specific information about the effectiveness, quality and efficiency of services and pro�rams.'"
The suggested measures will enable the CSO to evaluate on its own whether the resources
expended (labor or financial resources) on an activity aze used efficiently, have the intended
effect and result in a quality outcome. Measures can be based on information obtained from
written records, observations by specially trained staff or through surveys of customers. This
performance audit will examine existing performance measures and suggest other performance
measures. However, the audit will not perform the actual measurements.
The table on the following page outlines each quality assessment category, the key concepts that
comprise that category, and the pages on which the operations of the Citizen Service Office aze
described in relation to the quality category.
14 i'he Urban Institute (1980). Perjormance Measurement: A Guide for Local Elected Officials. Washington D.C.:
The Urban Institute, p. I.
1000 Spint Pau! Ciry Council Aeseorch
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48 Per foimance Audit o f t he City of Saint Paul's Citizen Service Office
Assessment Categories
Quality Category Key Concepts Discussed on Pages:
Planning
Internal Plans
Plan Development
Plan D'assemination & Implementation
50-53
Leadership
Mission, Vision, Values
Stakeholder Relationships
Staff Recognition
TPaining & Training & Education Resources
Development Employer Commitment
Employee Conhibution
Work Environment
Labor-Management Relationship
Employee Evaluation
Information and
Analysis
Collection of Data
Analysis of Data
Effective Use of Automation Systems
Processes for
54-58
59-64
65-69
Idenrification of Potential
Improvement �provements
Implementation of Improvemenu
Evaluarion of Improvement Practices
Customer Focus
Resalts
Customer ldentification & Knowledge
Measuring Customer Satisfaction &
Needs
Customet Service Practices
Customer Service Standards
Otganizational Outcomes
Financial Outcomes
Customer Satisfaction
Use of Performance Indicators
Criteria Ratings
70-73
74-78
79-83
We have gathered a wealth of informarion about the various activities of the CSO while
conducting this performance audit. Although capturing all of tivs information in any rating
system is impossible, we believe ratings will help decision-makers grasp the essence of the
2000 Saint Pau1 Ciry Council Resemch
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Performance Audit of the City of Saint Paut's Citizen Service �ce
49
information. We have developed a simple summary rating system we believe conveys the
essence of our findings. We intend ihese ratings to reflect what interview subjects have told us
about the CSO. While organizations and processes consist of individuals, we intend the ratings
to reflect current organizational practices and they should not be interpreted as judgements about
individuals.
The summary ratings for the quality categories are intended to poRray both the level of
development and the level of integration of each quality criterion. Development, in this
performance audit, means the extent to which highly-valued organizational characteristics aze in
evidence. They should be systematic, manifest, pro-active, fact-based, and evaluated.
Integration refers to the extent criteria are practiced. It is possible, indeed likely, for criteria to be
practiced in some parts of the organization, but not in others.
The summary ratings used for the quality assessment are:
**** Criteria fitlly developed and practiced throughout the organization.
*** Criteria well developed and prac6ced throughout most of the organization.
ic �c Criteria present and practiced in some parts of the organization.
* Criteria very rarely present or practiced in the organization.
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50 Performance Audit of the C iTy o f Saint Pa C itizen Secvice Office
PLANNING
Quality Rating: �
Planning is an activity that incorporates a suong
future orieatation and a willingness to make
KEY CONCEPTS: -
❑ Internal Plans =
❑ Plan Development Participation =
❑ Pian Dissemina[ion & Implementation
long-term commitments to stakeholders. High-perfomming organizations aciively engage in
planning and recognize the impact not only of intemal changes, but also of environmenta]
factors, on the organization. Planning considers resource allocation, economic projections, futwe
needs of employees, future customer needs and expectations, technological developments and
stakehoider requirements. Plans can be long- or short-term, issue specifiq organizational-wide,
departmental-wide or unit-wide. In order to be effective, plans need to be catt out and
updated frequently.
Office-Wide Planning
The CSO performs a wide variety of functions, and should therefore have plans that incorporate a
variety of activities. However, the only office-wide "plan" we discovered is the set of "Strategic
Plans" co�tained in the annual budget. The CSO's "Strategic Plans" are really not plans at al1.
Rather, they aze a set of goals and functions. A meaningful organizational strategic plan would
provide a clear set of steps to achieving goals and making the vision a reality. Many of the
objectives in the CSO's "Strategic Plans" aze vague, such as: "Sttengthen the City's approach in
deiiveting City services." If this was a true strategic plan statement, it would include a closed-
ended statement with specific steps to take to achieve the goal, and a time line for
implementation and/or completion. To change the aforementioned statement to an actual plan
objective, the CSO could add an action statement at the end to explain what steps the Office will
be taking to strengthen the CiTy's appmach. A strategic planning process should also include
stakeholders and customers, which the CSO has not done. In addition, the "Strategic Plans"
developed by the CSO have remained essentially the same for at teast the last three years, with a
statement pertaining to the Code Enforcement Division added to the 2001Propased Budget.
T?te lack of �lanning in the CSO is exemplified through their disjointed process of implementing
a new computer system. The CSO is replacing the EXL system, but has not made any ciear
�i5i.5 iv yi:?au.�.^'�.�:�-. °:'.'— ��etgm__ i2aY}SCT__ftl3D 1tI7hLCA7ERtlllg E�E1N�l�� 2S Of}1CL CIEp3Tf[RETItS
such as the Office of License, Inspections and Environmental Protection and Fire Prevention and --- -
Inspection unit aze doing, the CSO chose to first go with cheaper softwaze from Freelantz, with
the expectation they will implement AMANDA later. The Freelantz softwaze is not operating
well; therefore, it would have been advisable to impiement AMANDA instead af wairing until
LIEP was done in the hope that the problems with the system would be worked out by LIEP. To
15 See the CSO's "Suategic Plans" in Appendix B
16 For more infortnation on creating a strategic planning see: Bryson, 7ohn. (1995). Strategic Planning for Pub[ic
aird Nore-Profrt O,gancationr. Jossey-Bass. San Francisco, CA.
2000 Saint Paul City Council Research
Pecformaace Audit ofthe Crty of Sainc Paul's Civxen Serrice O�ce
undertake such a groject without a clear plan ta guide actions makes implementation faz more
difficult and leads to unnecessary eacpenses being incurred.
Marketing & Promotions Division
51
The Marketing and Promotions Division of the CSO has made a commitment, through an
administrative order approved by the City Council on Apri126, 2000, to develop and implement
a year-long, multi-level marketing plan to celebrate Saint Paui. The Markering Director
presented their plan to the City Council and highlighted how the various activities they were
planning fit into an overal] theme of "Rediscovering Saint Pau3." Because much of the
Mazketing Division's work is project oriented, their plans aze short temt and project specific,
such as the plans for the "ilovestpaul.com" website and the Peanuts on Patade eachibit.
Marketing staff shared with Council Research written, specific objectives, tactics and events
designed to fiilfill the vision for Saint Paul's sesquicentennial celebration. Mazketing staff also
met with each Legislative Aide az the beginning of the'u current terms to discuss mazketing goals
for their wazds, and plan to make these meetings annual. They will also be developing an"afteo-
Snoopy" plan to build on the success of the Peanurs on Parade project.
The City's website developers aze atso part of the Mazketing and Promotions staff. It is not as
clear they have a particulaz plan for web development, though the City is currently involved in
developing plans for a-govemance efforts Ciry-wide. However, it does not appear the website
developers have a specific plan for their work or the assistance they provide to other departments
with their respeetive websites.
Information and Complaint and City Clerk/Records Division
Staff in the Information and Complaint and the City Clerk/Records divisions of the CSO were
lazgely unawaze of the Strategic Plans contained in the budget, though many of the objectives are
within their realm of resgonsibility. The divisions also have no plans ffiat pertain specifically to
their work. Planning would help balance workloads, share information and prepaze for futute
changes, such as those relating to the new computer systems.
Code Enforcement Programs Division
Within the CSO, there is no overail plan for Code Enforcement. Reasons staff offered for the
lack of planning in tivs area are: 1) their work is complaint-based and therefore reactionary; 2)
their work is often influenced by political decisions; and, 3) they have too much work to do to
take time to plan. We courner that these aze the reasons a department should create plans. Plans
can provide a framework for discussions about prioritization of projects and fimction as a
workload management tool.
While there ue no plans for Code Enforcement, the Vacani Buildings Unit has stated they have a
glan m address long-term vacant buildings (vacant buildings that have been on the vacant
building list for more than one year). However this is not a written plan. The Vacant Buildings
Unit stated they aze able to manage their daily work better as a result of having even these
informal plans and ihey ate able to address problems more proactively by laying out the problem
and mapping so]utions to it. However, the fact remains that without a specific written plan,
2000 Saint Pnul Ciry Cowci] Ruearch
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implementation and continuation of the plan will be difficult. Other specific special programs
within Code Enforcement, such as Rental Registration, could benefit &om having a plan to
address and mitigate the problems they are now facing with implementation, as discussed in the
Code Enforcemeai policy corrcpliance section.
O[her specific plans have been created by Code Enforcement together with community groups
when they have been approached by the community groups to participate in prograttis like Weed
and Seed, a federally funded progaun to which communiries can apply for fimding for special
projects. Recently, the Railroad Island community conuacted with Code Enforcement as part of
Weed and Seed funding they received, and Code Enforcement developed a plan with the
community to provide staff and rime for concentrated code enforcement sweeps.
Plan Dissemination and Implementation
Most front-line staff seem unawaze of the "Strategic Plans" contained in the budget, even though
the pIan has been included in the budget for at least the past three yeazs. CSO staff were not
involved in the development of the "Ptans" (50 pe�ent of CSO staff report they do not
participate in planning and 23 percent neither agree nor disagree that they parkicipate), nar has the
plan been discussed with them by managets and supervisors. When asked in interviews who
would be responsible for implementarion of the "Plans", the overwhelming response was the
managers. It is possible that, because the CSO has few plans, many named managers assiuning
ttus is a management responsibility.
5ummary of Findings
1) The majority of general planning that occurs in the CSO invoives upper-level management
only. Some of the project-specific planning, such as Weed and Seed programs, also involves the
affected communities. The Marketing and Promotions Division cteates detailed plans for their
projects. The Vacant Buildings Unit states they have some informal, unwritten plans.
2) The "Strategic Plans" contained in the budget are not plans. Rather, they are a set of
objectives and fiutctions that contains no time line or implementation information, The concepts,
as stated in the budget, aze not specific enough to be truly meaningful or manageable.
3) Few staff are awaze of any CSO plans, except for specific project plans in ffie Marketing and
- --- -- -
. _ . .
__rYVPIi6`uviu^'viv.SiGiati ----'-�- -' --- --- -�----
4) Reasons offered for failing to create plans, such as heavy workloads aad the effect of outside
influences on their daily activities, are actually strong azguments for the creation of plans.
5) The CSO, with a few exceptions, has not included iu stakeholders or customets in its very
limited planning activities.
Recommendations
Recommendation #37. The CSO should create a true strategic plan with outcomes, time lines
arrd action steps. It should involve all staffand representative stakeholders and customers in its
2000 Saira Paul City Counci[ Resemch
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Perfmmance Audit ofthe Ciry of Saint Paul's Citizen Se�vice Office
53
development, rmd make sure that all staff ine made aware of the plans and how they contribute
to achieving oufcomes. All divisions within the CSO should have plans relating specificalZy to
their work which help them manage worktoads artd expectations, and to anticipate potential
changes. The need for planning in Code Enforcement is particularly apparent. Plans would
allow them to better manage sta,ff work assignments_ The CSO should di.scuss the plarzr with the
Council and Mayor to garner their input.
Recommendation #38. The CSO should engage in planning prior to implementation of the
AMANDA system to errsure the system is functional for staff, and to assist them in managing the
training and workloads during this period.
Recommendation #39. The Marketing and Promotions Division should solicit Council input
annually during Marketing's planning process for the upcoming year.
Recommendation #40. The CSO should create a plan for the City s website development. This
would assist the O,�ice in guiding other departments through the development of their own web
pages and clearly state the time frame and expectations for development.
I000 Saint Paul Ciry Council Research
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PerFonnance Audi[ of the City of Saint Paul's Citiun Service Office
LEADERSHIP CONCEPTS: _
❑ Mission, Vision, Values =
Q Ua�lt Ratin : �'/2 ❑ StakehoiderRe(ationships _
Y 9 ❑ Staff RecogniNon
Senior organizationa] leaders need to set direction,
-�_—�� _ -�.--«_--�
create a customer focus, establish and articulate a
cleaz vision and communicate and make visible the values of the organization. Reinforcing
values and expectations requires personal commitment and involvement. Leaders need to take
part in the creation of strategies, systems and methods for achieving excellence. These systems
and methods need to guide all activifies and decisions of the organization. Leaders must also
recognize the role of stakeholders in these processes, and maintain positive relationships with
them. Finally, stafF need to be recognized for their contributions to the organization and its
mission, vision and values.
Many of an organization's policies and practices aze derived from strong leadership principles.
In this discussion, we look at six leadership azeas: mission, vision, values, communication,
stakeholders and staffrecognition. Good leadership works to ensure that all in the organization
understand the organization's purpose — its mission — and where the organization is going - its
vision. Good leaders also ar[iculate values cleazly and exempiify them on a daily basis. Strong
leadership involves good communication between managers and line staffand is aware ofthe
need to recognize staff for outstanding work.
�1SS10�
The mission and vision must be cleazly articulated from the top of the organization down. This
is a vitally important characteris6c of a high-performing organizarion. The following is CSO's
mission statement:
The Citizen Service Of,�ce consists offour divisions — City ClerkRecords, Marketing &
Promotions, Code Enforcement Programs and Information and Complaint. Together, the
employees of the Cirizen Service Office maintain Saint Paul's official recorded history,
promote its viiaii'ry arsd divErsi�y, :u'e :.��Yr�c�?i>>e s�l�raons to correct eode violations,
and help resolve citizen issues related to City services by serving as advocates and
- ---- ..
_. _
liaisons. _ _. __ _ _ __
The mission statement for the CSO was developed witti the heip of Human Resources and
involved the Director, the Deputy Ciry Clerk, Division managers and some staff prior to the
incorporation of Code Enforcement into the Office. Shortly thereafter, the statement was
enhanced to reflect the current composiYion of the Office, which now includes Code
Enforcement. If the divisions that make up the CSO were to be sepazate departmenYS, each
would have their own mission statements that may not be much alike. This is evidenced by the
fact Code Enforcement has been working under the informal direc6ve to "enforce the City code
and improve the quality of life in Saint Paul." Some in Code EnForcement view this mission as
being contrary to the mission of ttte CSO. The CSO Director has a]eadership style that
emphasizes customer service more than enforcement.
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Performance Audit of the City of Saint Paul's Citizen Service Office
55 01' ��
Forty-eight percent of survey respondenu believe the Director and managers effectively convey
the mission to staff, 27 percent say they do not, and 24 percent neither agree nor disagree. This
may be the result of many staff from the Office reportedly having not seen the mission statement.
It was appazent from interviews that although a majority of staffhave not seen the mission
statement, they do adhere to its ideals and believe their mission is to serve the citizens of Saint
Paul.
�1S10I1
Given that the vision should be clearly articulated from the top of the organization, we identify
the Mayor as having the ultimate responsibility for communicating a vision to staff, whether this
is communicated directly from him or through department and office directors. According to
survey responses, only 24 percent of employees believe the Mayor effectively conveys a cleaz
direction for the future of CSO. However, those interviewed responded that they have a sense of
the Mayor's vision for the Office and feel he supports the work they do.
Only 31 percent of survey respondents believe the CSO director conveys a clear vision for the
future of the Office. When we asked staff about the vision they receive from the CSO director,
several stated he conveys a similaz vision to that of the Mayor. However, some employees,
especially those in Code Enforcement, felt he lacked an understanding of their duties and
therefore it was difficult for him to azticulate a cleaz, meaningful vision. The Office admits to
being in a reactive rather than proactive mode which enhances the effect outside pressures can
have on the Office. Some staff believe the Director is too sensitive to these outside interests.
This point will be discussed further under the Training and Development section.
Values
When asked about organizational values, CSO employees demonstrated a cleaz understanding of
the values. Although the divisions within the Citizen Service Office are different, managers and
senior leaders are very cleaz about the level of politeness, faimess, common sense and decency
they expect from the employees. These values aze not written down, but staffhave a thoughtfiil
grasp of the professiona]ism required and demonstrate these values. According to the survey,
about half the staff aze aware of the values they aze expected to demonstrate; 51 percent reported
the Directar and managers convey the core values of the organization while only 20 percent of
respondents stated they do not. Also, interviewees cited several examples where core
organizational values were, in fact, demonstrated by the I?irector and managers. These values aze
disglayed through such things as their willingness to pitch-in and help line staf� their flexibility,
their professionalism and their willingness to listen to staff concerns.
Communication
Within the CSO, communication at all levels could be improved. Survey results demonstrated a
split between those who agree that communication wiUvn the CSO is effective and those who do
not. Some interviewees expressed frustration about not being kept up-to-date or included in
management decisions. All-staff meetings aze not held frequently, though staff report
information is disseminated thtough e-mail and word of mouth. Interviewees also stated there is
a strong "us versus them" mentality throughout the organization. Despite these significant
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Perfom�ance Audit of the City of SaiM Paul's Cilizen SeN�ce Office
issues, 75 percent of respondents surveyed felt that mar�agers aze visible and in interviews staff
stated managers aze accessible and have an open-door policy.
Communication between the divisions is poor. It was reported that communication between the
Mazketing and Promotions Division and the Informarion and Complaint Division suffers because
Mazketing does not receive weekly updaYes from the Information and Complaint Division They
would like information and compiaint data identifying the questions and complaints received that
are related to Marketing events. Likewise, it was reported that Marketing occasionally fails to
update lnforatation and Complaint Division staff about marketing projects ihaz require
Tnformation and Complaint staff to give out rimes, locarions and other information about events
Lo the public.
It was also revealed that the InformaYion and Complaint Division has communication problems
with Code Enforcement inspectors. These problems concem such issues as if and when an
inspection occurred. Inspectors also believe that Information and Complaint personnel do not
understand what Code Enforcement does, and they are concemed about whether Information and
Complaint staff aze providing accurate informarion to the public.
Communication within Code Enforcement is still rather poor in soine respects, despite the
changing work environment. Some staff in Code Enforcement are not included in discussions
because of the past lustory of their role in the organirarion and their relationship with others in
the Division. In some cases, management and staff have conflicted over various aspects of a
program, such as Rental Registration and the conflict over whether to condemn a property if the
owner fails to apply for a registration certificate. Communication between Code Enforcement
clerical staff and Code Enforcement managers could be impmved. Certain staff feel they are not
heazd by management. Some Code Enforcement clerical staff also feel it is difficult to connect
with inspectors. They feel they aze not told thiugs unril the last minute wluch makes them feel
excluded and undervalued. Part of this problem may stem from the fact that the Vacant
Buildings Unit and all cletical stafF, with the exception of one person, aze koused in the City
HaIU Cour[house building, while other Code Enforcement staff are aY the Police DepaztmenYs
Eastem Patrol District building. Code Enforcement views the hiring of an office manager as a
posirive step in aiding communication between clerical staff and inspectors. The fact remains
that communication in Code Enforcement is vital particulazly given the changes and upheaval the
Division has experienced in the past few years. We also recognize tUat some of these
communication probiems ��ort, fram pe:s�r.a: .^^�fl:e*s ��n eanployees - conflicts wluch
have created an atmosphere that has hindered clerical staff's ability to communicate with one
another and other emnlovees �e Csu. — -
Stakehoiders
Positive stakeholder relationslrips aze essenriai to maintaining strong leadership. Leadership
must be able to identify its stakeholders and understand their needs, and incorporate those needs
into the departmenYs planning processes. Stakeholders are "auy person, group, or organization
that can place a claim on an organization's attention, resources, or output or is affected by that
output "" The quality of stakeholder relationships should be based on communication, fulfilled
�� Bryson, Joha Strategic Planning for Public and Non-Profit Organizations. Jossey-Bass, 1995, Page 27.
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Perfo�mmce Audit of the Cay oFSaint Paul's Citizen Se�vice Office
expectations, and information sharing. CSO's stakeholders include the Police Department, the
Fire Department, LIEP, Ramsey County, community organi�ations and elected officiais_ Many
of these stakeholders aze discussed in the Policy Compliance section. Overall, the CSO
maintains funcrional stakeholder relationships, though certainly communication could be
improved between some of them, such as the City Council and the CSO regarding complaints
and satisfaction razes. They also have not incorporated their stakeholders' nceds into their
planning processes.
Staff Recognition
57
Forty-svc percent of staff surveyed agree the Director and managers effectively recognize staff
contributions, while the remaining 54 percent either feel their managers do not recognize stafF
contributions or they neither agree nor disagree that contributions aze recognized Interviews
revealed staff recognirion is informal and takes the form of "thank you, good job" and "atta-
girls." Management has also held pizza parties and other informal gatherings to thank staff for
their work. However, interviewees were not awaze of any plans by senior leaders to create a
formal recognition system to recognize ouutanding contributions to the organization. Without a
formal, organized recognition system, recognition can seem azbitrary, and many staff may not be
awaze of any recognirion shown to employees, as the survey results indicate. T1us problem
extends faz beyond any one department; ihe City no longer has an employee recognition
program, which has left employees wondering to what e�ctent City leaders value their work.
Summary of Findings
1) Although a majority of CSO staff have not seen the mission statement, they do adhere to its
ideals and believe their mission is to serve the citizens of Saint Paul. There is some
disagreement in Code Enforcement as to whether the mission is enforcement or customer service.
2) CSO staff demonstrated a clear imderstanding of the values that are expected of them despite
the fact that the Office has no fornial values statement. Staff stated the managers exemplify the
values.
3) Communication between the divisions, between the clerical staff and the Director, and
between clerical staff, inspectors and managers is generally poor. There is a strong "us vs. them"
mentality within and between some divisions.
4) The Office does not have a formal employee recognition program, though they do recognize
staff through other informal means. The City also discontinued the City-wide recognition
program.
Recommendations
Recommendation #41. The CSO should revise its mission statement and involve all CSO staff in
its development. This could be done in conjunction with the development of an Offzce-wide
sbategic plan. See also recommendation #37 in the Planning section.
2000 Saint Paul City Courtci! Research
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Perfoituance Audit of the Ciq of Saint Paul's Citizen Service 06ce
Recommendation #42. The CSO Director shouZd schedule monthly a11-staff ineetings for
dissemination of information between divisions and staffrecognition. Unit-wide meetings should
also be held on a regular basis.
Recommendation #43. The CSO should establish an employee recognition program and make
recognition an important part of daily worlc Employees should be included in the formation of
the program to determine what types ofrecognition are most meaningful to staff.
Recommendation #44. Senior leaders should formalize the values of the Ofj'zce and integrate
them into formal customer service standards. Staffshould be directly imolved in this process.
Recommendation #45. CSO leadership should work with employees to develop a strategy to
mitigate the "us vs. them" mentality that occurs beiween staff. The OfJice should work to create
a sense of employee ownership of the CSO.
2000 Saint Paul City Council Resemch
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Performance Audi[ of the City of Saint Paui's Citizen Service Office
TRAINING &
DEVELOPMENT
Quality Rating: ��
�Y]
KEY COP3CEPTS:
D Work Environment
a Employee Involvement
❑ Employee Evaluation
o Labor/Management Relationship
n Education & Training Resowces
Employees in successfui organizations aze provided the tools they need to deliver quality
services. T4iese same employees are given encouragement and the resources to develop a set of
ski]ls that allows them to contribute effectively to the organization. For example, if an
organization values continuing education for its employees, it will provide workers the
opportunity and resoucces needed for them to attend classes, seminazs and in-house trainings. A
successful organization also creates an environment which increases the growth and well-being
of its employees. Finally, organizations should link the training of their employees to the
organization's goals and priorities. This connection should occur through the development and
implementation of a long-term strategic plan tied to basic organizational values.
CSO Work Environment
Code Enforcement Merger
The merger of Code Enforcement with the Citizen Service Office has resulted in a number of
perceived and reported improvements in the Division's work environment. Almost all the
employees interviewed reported the motale and leadership of the Division have improved. Staff
credit much of this improvement to a change in Code Enforcement management and that the
CSO has provided a much more supportive environment than the one that existed under the Fire
Department. Also cited as a major improvement was the creation of the Supervisor of
Inspections position, which is a level of management between the Manager of Code Enforcement
Programs, who oversees the entire Code Enforcement Program, and the program supervisors,
who are assigned to individual areas in Code Enforcement. Staff expressed they appreciate
having someone with the technical knowledge about Code Enforcement inspections in upper
management and can act as an intermediary between front-line staff and CSO senior leaders who
do not have Code Enforcement backgrounds. They also reported the Supervisor of Inspections is
very accessible and that it is beneficial to have the Supervisor present at the Police DepartmenYs
Eastern Patrol District O�ces and available in the field. The facility at the Eastem Patrol
District is reported to be a significant improvement over the previous offices where the Division
was housed. In the new facility, there is more space and an open floor plan which allows
inspectors to easily talk to one another.
Despite these achievements, there have been a number of problems created by the merger. Staff
reported the three mergers it has experienced in ffie last five years have created a tremendous
amount of instability and distraction for staff. Few Code Enforcement staff members identify
themselves as employees of the CSO and aze hesitant to get too comfortable with this label.
2000 Saint Paul Ciry CounCi7 Reseetrch
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Performaace Audit of the City of Saint Pw2's Civzen Service OAice
More importantly, many Code Enforcement employees feel their mission is incompatible with
rest of the CSO, as discussed previously in the Leadecship section. Code Enforcement
employees claim the customer service mission of CSO contradicts their mission of enforcement.
While we do not believe these concepts aze necessarily mutually exclusive, we did find enough
evidence to conclude that this difference in philosophy creates significant tension and a very real
discortciect between Code Enforcement and the rest of the organization.
Another difficu1Ty created since the merger is that Vacant Buildings Unit and clerical staff aze
located downtown in City Hall and are separated from tUe inspectors who aze at the Eastem
District Patrol Offices. This situation has created communicarion and morale problems for the
Division. Traditionally, there has been a high degree of collegiality among inspectors and the
rest of the staff. FIowever, it was reported that since the staffhas been split apazt, camaraderie
has sufFered and the Code Enforcement clerical stafF feel especially alienated &om the rest of Yhe
Division. Regulaz communication between different units of the Division has beere made more
difficult. Perhaps the best indicarion of this fact is the Division has not conducted an all-staff
cneeting in sis months. Inspectors did report, however, that they aze pleased with their new
location, despite the communication problems.
Political Influence
It was frequently mentioned by senior leaders and &ont-line staff that the CSO is wlnerable to
polirical pressures. Several respondents reported that Councilmembers, the Mayor's Office and
the media have a tremendous influence over the practices and plans of CSO. Although it is
entirely appropriate for these parties to take a keen interest the operarions of government
agencies, many front-line employees clauned this involvement was overly meddlesome and was
often motivated by something other than the public good. The work of CSO, by its very nature,
is reacrive in that most of the acrivities they undertake aze either customer service driven or in
response to complaints. Therefore, it is not surprising that crises, stories in the newspaper and
Council initiatives aze perceived by staff as the primary drivers of work in the Office. However,
the CSO lacks the ability to sufficiently navigate this political environtnent because it does not
undertake planning, results measurement or stakeholder analysis that would allow it to be more
pro-active. If the Office were to have a clear vision of what the organization was Yo be, they
would be able Yo better manage the various demands on their services and operations.
Diversity
Weli over half the employees in the CSO (61 percent) feel senior leaders create an environment
which is respectful of employees regardless of their race, ettmicity, class, gender, age, narional
origin, seacual orientation or physical ability. However, 21 percent of employees surveyed did
not believe this was the case, and 18 percent neither agreed nor disagreed that the environment is
respectful of all employees. In our interviews, some staff reported that racial or class intolerance
affected their work environment. They believed they were not respected by others in the
organization because they held low ranldng posirions.
2000 Saint Pau! Ciry Counci! Research
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Perfomiance Audit of the City of Saint PaW's Gtizen Service Office
Employee Involvement
61
Most employees in the CSO feel they have an opportunity to contribute to decisions made abouL
their work, although no formal mechanism exists for this to be done. Almost all staff who were
interviewed reported that CSO senior leaders were very accessible. Most of the Office's
managers have an open door policy and informally check in with staff daily_ Less is done,
however, to active]y solicit the suggesrions and opinions of employees. The Code Enforcement
Division did seek out volunteecs to assist in writing a procedures manual. i3nfortunately, only
one person volunteered for this projec[ and the manual was never completed_ Finally, it should
be noted that CSO clericai staff and Information and Complaint employees fcel, much more so
than CSO staff in general, disconnected from decisions which impact their work.
While the CSO appears to have an informal system for employee input, it should be noted that
there are certain benefits to having a more formal system. An informal system may seem
arbitcary, and may miss input from some staff who aze not as comfortable approaching a
supervisor or manager in an informal setting. A more shuetured setting can also create an
environment in which employees feel more vatued as they know management has made it a
priority to gather feedback from staff, and have ach�ally solicited it, rather than just waited unril
stafF approached them with concems or ideas.
Performance Expectations and Annual Evaluations
Formal, written performance expectations do not eacist in the C50. I-Iowevet, staff feel they
understand the expectations of their supetvisors and they have leamed these ea�pectarions through
experience on the job_ For instance, the reports issued by Code Enforcement inspectors are
reviewed on a daily basis by their immediate suparvisors. Serious concem was eapressed by
staff, especially those in Code Enforcement, that formal, written performance expectations would
]ead to performance quotas. A procedures manual was created by a previous Director of Code
Enforcement and was being updated by an employee; however, this project was lazer dropped.
At the moment, it appears the manual is no longer being actively used by staff.
Annual performance evaluations of employees have not taken place in the CSO for three years.
Before the practice was discontinued, the Office used the standard evaluarion process and forms
provided by the City's Human Resources Department. The Code Enforcement Programs
Manager stated he would like to commence performance evaluations for the Division's clerical
employees, but has been waiting until an office manager was hired. This lack of evaluation is
pmblemaiic because employees are not getting feedback on their performance nor do they know
what is expected of them.
Labor-Management Relationship
For the most part, the labor management situation in the CSO appears to be similar to the rest of
the City. In the past year, only two significant labor relations issues stand out. When the Code
Enforcement IJivision introduced the Freelantz data base system, inspectors were required to
perform all data enhy for their reports. This issue caused great distress among inspectors who
aze not trained in keyboattling. As a result, the inspectors filed a labor contract grievance to stop
2000 Saint Paul Ciry Counci! Resemch
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Perfomiance Avdii ofthe Ciry ofSaint Pau!'s Ci6zen Service Office
trus practice, arguing that data enhy is not part of the duties for the Code Enforcement inspector
classification.
The other significant labor relations issue that has faced the Office in the last year was a
grievance filed by Code Enforcement inspectors that a political appointee was worlang out of
title as an inspector. T'his appointee was charged with overseeing the Dayton's Bluff Initiative
but was involved in some day-to-day inspection duties related to the project. This issue was
complicated because the individual was reportedly very �mpopulaz with &ont-line staff. The
grievance became irrelevant when the political appointee was fired from lus position due to
reasons unrelated to this issue.
Training
Senior leadership has made haining a high priority and provides many training opporlunities far
staff. The Office's training opportunities are perhaps best developed in the Code Enforcement
Division. The Division's employees are encouraged and provided resources to take job-related
training in the comm�utity college system_ Many also attend art annual conference at the
University of Minnesota and a regional conference in Madison, Wisvonsin. It was reported the
Division had provided in-house haining in the past but this practice has been discontinued in
recent years. Most Code Enforcement inspectors take advantage oftraining; however,
interviewees reported junior employees do not utilize ihe opportunities as much as they should.
Other CSO staff have simelar chances to participate iu training, but they appeaz not to take
advaniage of them to sazne eartent as their Code Enforcement counterparts. This may be paztly
explained by the fact that c[ericai employees and other CSO employees have less-developed
professional necworks when compazed to Code Enforcement inspectors.
New staff in the CSO aze trained through mentoring done by senior emptoyees. In the Code
Eaforcament Division new inspectors "ride-along" with experienced stai�'for their first six to
eight weeks. New inspectors aze also required to study the I.egislative Code. Other CSO stafF
are also irained through paztnering with senior staff.
Summary of Findings
1) The mission of Code Enforcement appears to conflict at rimes with iize overait �issi� a£;; �
..U� ?�.�s�?E?*:e�� ;�,onka9butingLo s_ome tension between the divisions within the CSO.
2) The Citizen Service Office, particu[az[y its Code Enforcement Division, encourages training
and provides resources to staff to attend various training sessions and conferences. Some staff,
such as clerical support staff, are less inclined to attend haining, although they are �couraged to
do so.
3} Severat staff commented the work environment of the Code Enforcement Division has
improved since it was administratively moved to the Citizen Service Office. Since the merger,
some problems have been created as a result of ihe Division's staff being separated from each
other.
2000 Sairst Paul Ciry Council Resemch
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Performance Audit of ffie Cty of Saint Paul's Ctizen Se�vice Office 63
4) Code Enforcement seems particulaziy susceptible to outside influences from sources such as
the City Council, Mayor and the media They have not yet found a way to balance the demands
of the various interests_
5) Code Enforcement used to have an employee manuai that contained valuable information on
standard procedures and requirements. It appears this manual has it been updated recently nor is
it being used.
6) Opporiunities for staff to contribute to decisions made about the operations and procedures of
the CSO are inadequate and informal at best
7) The CSO has not done employee performance evaluations in over three years. Employees are
not getting regulaz feedback on their performance.
Recommendations
Recommendation #46: Consistent with recommendatinn #41, the Citizen Service Offzce shouZd
undertake an e, fj'ort to redefine their mission, particularly because the missiorrs of Code
Enforcemenf arui the rest of the CSO appem incorxsistent and possibly incompatible. The Off ce
needs to do a better job of integrating these two functions. If the missions cannot be aligned,
serious consideration should be given to whether Code Enforcement should be located elsewhere
in the City s governmental strucnrre.
Recommendation #47: As described in recommendarion #37, the CSO must pursue strategic and
long-term planning in order to be less vutnerable to political influence and tess apt to have its
work driven by crises.
Recommendation #48: Senior leaders of the CSO should create a process by which employees
can be more directly ittvolved in decisions made about their worlc
Recommerrdation #49: The CSO should develop a plan to house the entire Code Enforcement
sta$in one tocation. Communication cmd the morale of clerical staff woutd improve. The fzles
downtown should be moved fo where inspectors are located because of the inefficiencies caused
by the current arrangement.
Recommendation #S0: Code Enforcement should review and revue its employee manuat. A
work group representing senior leaders, inspectors, and clerical staff should be resporuible for
this effort. A revised mcmual would help the division ensure consistent enforcement arrd cod�
existing performance expectations for Code Enforcement emptoyees.
Recommendation #Sl: The CSO should reintroduce performance evaluations. To this end, the
CSO should undertake an effort which irrvolves all stafJ`'to develop an appropriate evaluation
process and forms for each of the functions in the Office. While the CSO may wish to continue to
use the Human Resources format, it may be in their interest [o customize the form to reflect the
work done by the d�erent functions within the Offzce. After the new process is developed, CSO
leaders should beg'm conductingperformance evaluations immediately.
2000 Saint Paul Ciry Couixil Ruemch
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Perfotmance Audit oflthe City of Saint Paul's Citizen Se�vice Office
Recommendation #52: CSO senior leaders should determine why some stafJ'are less inclined to
attend training. Pmticular uttention should be paid to members of the clerical staff and less
senior code enforcement inspectors who reportedly are less Iikely to take advantage of these
opportunities. Senior Ieaders should consider providing an fncentive for slaff to take advantage
of training by making this an important factor in evaluating an emp[oyee's performance. Staff
should also be encouraged to pursue training that would advance them professionally and be
rewm�ded for their successful pursuit of career-track training.
2000 Saint Paul City Council Ruetvch
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Perfortnance Audit of the City of $ain[ PauPs Citizen Service Office
INF�RMATION
& ANALYSIS
65
KEY CONCEPTS:
� Data Collection
❑ Analysis of Data
❑ Effective Use of Automation Systems '
_.� "`�' ---."---��t.�:__._._�_.._.._.__:...�a._
Quality Rating: �
Information gathering and analysis aze vita] fimctions for any arganization. Quality organizations
should collect data on customers, services, employees and costs. Organizations should also
concentrate on collecting and using data that relate to their goals and plans.
Collecting data serves little purpose if it is not analyzed and used to make improvements. It is
very important to extract the lazger meaning from data to support evaluation and decision-
making at various levels throughout the organization. Analysis should employ the examination
of trends, projections, comparisons and cause-effect correlations. Using data and analysis
systematically is impodant in properly setting goals, deve]oping plans and allocating resources.
The information collected and analyzed should be used throughout the organization and used to
evaluate the organization and its progress. Information is essential in monitoring goals and it
should play a key role in the decision-making process. Finally, organizations must have
information systems which are useful to staff and provide them with the tools they need to
collect, retrieve and analyze data.
Data Collection
The work azeas in the CSO, in particular the Code Enforcement and the Information and
Complaint Divisions, have the potential to collect a substantial amount of data about their
operations. The Office cunently collects some data but these efforts have been limited by poor
information systems and inconsistent information gathering. We exaznine below the data
collection efforts of the divisions within CSO.
Information and Complaint Division
The Information and Complaint Division collects data on complaints which the Office receives.
The Division tracks the number of complaints, the type of complaint, the date the complaint was
received, and the City department responsible for resolving this complaint. Based on these
complaints, the Division also generates reports for complaints that have taken more than five
days to resolve. These five day late reports aze distributed to department and office directors
responsible for seeing that their departments address the complaints. Very limited customer
satisfaction data is collected, and it is not compiled or analyzed.
Code Enforcement Division
There are numerous activities and actions the Code Enforcement Division undertakes which have
the potential to a robust sources of data. Code Enforcement has a history of collecting data about
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PerFormance Audit ofihe City ofSaint PaW's Citizen Service Office
its activities, often collecting and tabulating it by hand. Recently, data collection efforts have
decreased for two primary reasons: I) the Division has inadequate computer systems which are
unable to reliably collect, store and retrieve data; and 2) there has been a change in leadership
within the Division which has resulted in a de-einphasis on data cotlection. Despite the
dec:reased data collection in the last fiew years, the Division does collect the number of
inspections conducted, the type of inspection, the address of the property and the miteage driven
by inspectors. This information is taken from the inspectors' work sheets and entered into the
EXL system by the clericai staff.
Senior leaders report that the EXL complaint data base system is so poor at managing and
extracting data that the Division cunently pays little attention to the data collected. In their
opinion, doing so would be a wasted effort as long as the CSO uses the data bases currently in
place. However, this change in practice was not communicated to their stakeholders, thus many
stakeholders, such as the City Council, were under the impression they were continuing to report
data and provide meaningful information.
Two sub-units of Code Enforcement, the Vacant Buildings Unit and the Rental Registration
Pmgram, collect their own data. Arguabty, the Vacant Buildings Unit collects the best data
within the CSO. The Unit trecks the nwnber of vacant buildings registered, their location, the
number of inspections performed at the unit, and the numbet and types of citations written. In
addition, the VBU tracks the status of vacant buildings based on the type and condition of the
property. The Rental Registration Program, which is now a year old, reportedly collects data on
the number of properties registered and the amount of fees collected, though at the time this audit
was being prepazed, their computer systems were not functioning as hoped and the Rental
Registration Program was not running at its optimum level.
Marketing and Promotions Division
The Mazketing and Promotions Division collects customer data and basic information on the
economic impact of its projects. The Division's film staff collect data on the amount of money
spent as the result of films produced in the City. This data is disaggregated based on the type of
film, whether it is an independent, motion picture or a commercial project. The Division also
collects customer information through business surveys, web hits on City web site, and visitor
and events survey data.
ti`'aia v�Q,'
Similaz to the Office's data collection efforts, the analysis and use of the data in the CSO is
generally not well-developed and it varies across divisions. It is our belief that if better data was
collected and analysis were done, it would inform planning activities and decision-making. With
better data collection and analysis, CSO leaders couid be more proactive and less dependent on
crises management. 1n addition, with improved data analysis, elected officials would have better
information for introducing initiarives and making decisions.
The Information and Complaint bivision provides, based on calls received, feedback to other
Departments about particulaz problem azeas which need to be addressad. For instance, the
2000 Saint Panl Ciry Council Resemch
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PerFormance Au&t of die Ciry of Saint Paul's Cifizen Service O&ce 67
Division will inform the Public Works Department that they aze getting a lazge number of
complainu about potholes on University Avenue.
The Code Enforcement Division has performed almost no analysis of the data it collects on its
regulaz functions. The Division did have a research analyst position which was removed from
the City's Budget in 2000 and replaced with an office manager posirion. Currently, there is no
one in the Office with primary responsibility for atl of the Office's data collecrion and analysis
activiries.
Little data analysis takes place far planning, unplemerning and evaluating special projects and
initiatives, such as the Dayton's Bluff Initiative and PP2000. For example, when the CSO
worked with the City's Housing Information Office to establish the boundaries of the Dayton's
$luff Iniriative, data stored in the Office's EXI, system was not used to determine the scope of
the project. Rather, the CSO relied on suggesrions from inspectors to determine the boundaries.
Similazly, the properties selected for PP2000 were chosen based on anecdotal evidence. Little
effort has been made to systematically track the results of special initiatives. The reason given
by senior leaders for this lack of analysis has been that the data bases currendy used by CSO,
EXL and Freelantz, are inadequate_ Interestingly, however, there has been no effort to track
results of special initiatives using other daYa base software that would be capable of analyzing
data of this natiue, such as SPSS or Lotus.
Information Systems
The CSO's information systems, by which we mean the computer and communication hardwaze
and software, were consistently rated as poor by both senior leaders and stafF. The Office
appears to have adequate computer hazdware and has made efforts to improve communication for
Code Enforcement inspectors in the field with acquisition of NEXTEL phones. However, as we
have already noted in this section above, the EXL complaint system, which serves as the Office's
data base, and the Freelantz system, which was developed to temporarily replace the EXI,
system, are believed to be inadequate by everyone we interviewed.
The EXI, system was created in 1979. The view that the system is unreliable and no longer
usefiil for data collection and analysis has fostered an attitude that data analysis cannot take place
given the state of EXI.. Furthermore, Technology and Management Services has stated it will
not support the EXL system after 2001. As a resuit, all data analysis in Code Enforcement has
appeared to have completely ceased. As mentioned earlier, some data collection and reporting
does take place in the Code Enforcement Division, but most data are not analyzed for use in
dccision-making or the development ofthe divisional plans or strategies.
To address the deficiencies of the EXL, system, Code Enforcement has been worldng on
developing softwaze created by a company called Freelantz, to be a temporary reQlacement for
EXL until the new data base was established (possibly the AMANDA system). However, the
development and convetsion of EXL to the Freelantz software was poorly planned and has not
been completely implemented. Tlie software's development under the direction of a former
Director of Code Enforcement did not involve staff: Severai front-line employees reported that
if Code Enforcement inspectors were involved in the creation of Freelantz's, many of the
pro�ams flaws would have been avoided. Many interview subjects with laowledge of the
program reported that Freelantz performs fewer functions and takes more time to operate than the
2000 Soint PouT Ciry CouncJ Resewch
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68 Performance Audit offfie Ciry of Saint Paui's Citizen Se�vice Of£ce
azchaic EXL system. Currently, the new system is being used on a trial basis by the Vacant
Buitdings Unit. The Rentai Registration Program is utilizing another system that requires
outside support, and therefore due to a desire to keep expenses ]ow, this system is not fully
functional either. The resulting problems with implementation mirror those resulting from the
Freetantz software. The Director of Code Enforcement states that the failure of the Freelantz
software to function adequately will result in the conveision to the AMANDA system sooner
than expected.
Both the Freelantz sofrware and the AMANDA system require Code Enforcement inspectors to
perform data entry. In the past, data entry on the EXL system has been done by Code
Enforcement clerical staff. This has resulted in a discontent among some inspectors who do not
have keyboarding skills. As mentioned in the Training and Development section, the inspectors
have filed a grievance claiming that data entry is outside their regulaz duties and therefore
violazes their labor conhact.
Summary of Findings
I) The CSO in general collects very little meaningful data about its operarion, and performs even
less data analysis. Tixe Vacanf Buildings Unit and Marketing and Promotions are the two anas
that perform some data collection and analysis, and the Informaiion and Complaint Division
creazes a five-day late report based on complaint resolurion time. The CSO has been waiting to
convert to the AMANDA systeac until the other offices implementing the system have worked
out any problems in the ptogram.
2) The new computer systems the Office fias been trying to develop aze proving to be wcefiilIy
inadequate and inoperable. The cutrent computer system is outdated and can no longer pmvida
accurate information.
3) Code Enforcement no longer has a staff person dedicated to data analysis. They decided
dedicate the FTE (full-time equivalent) to the newly created position of office manager instead.
Recommendateons
Recommendation #53: The CSO should convert to AMANDA ar quickly as possible. The O�ce
iws piannecl to adapPlui�Y.:fi afE L�F r,�; h:.r.'r�ra �sri2r.�2 x::h :he s�s!e• a�, rh.e hope
the O�ce could learn from LIEP's experience. However•, we believe this would be a misla&e. As
our fzndings demonstrate, this O�ce co�tt[e meanzng/ui mforman`on a'aauriF�wori�i
and performs almost no data analysu. eLs an explanation for this fact, almost everyone has
bZamed the EXL system for this problem. tLloreover, lhere is every indication that LIEP hos been
successful in implementing AMANDA. Therefore the CSO should co�zvert it's databases to the
�IMfINDE1 system as soon as possible.
Recommendution #54: The CSO should hire an employee whose primary duty it is to perform
research and analysis. There are a number of ways to implement this recommendation. An
employee eould be hired to serve all four divisians of the CSO. Alternatively, the Code
Enforcewnnent or Information and Complaint Division could hire someone who splits their duties
between ruearch, analysis and other work activities in the Office. Another consideration might
be that, eonsistent with the O�ce's 2000 strategie plans, this staffperson could poteRtially do
2000 Saira Pau1 Ciiy Couneil Rese�ch
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Perfortnance Audit of the City of Saint Paul's Cirizen Service Office
data analysis for other City Departments and O�ces in an eff'ort to improve services and
programs City-wide.
69
Recommendation #55: The CSO should immediately begin data collection and analysis for
special initiatives which it is currently undertaking, such ns PP2000 and the Dayton's Blufj
initiative. Even ifEXL or Freelantz systems are inadeguate to collect data and perform analysis,
the Office could do meaningful anaZysis on simple spreadsheets and statisricalprograms, such as
Lotus 1-2-3 and Statistical Program for the Social Sciences (SPSS).
Recommendation #56: The CSO should spec� data coltection, analysis and evatuation
strategies in the plan for any new initiatives. This aspect of the plan should specify the goals of
the program, how they will measure whether these goals have been achieved and who will do the
measurement.
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70 P Audit of t he City of Saint PaW's Citizen Service Oftice
IMPROVEMENT �YCONCEPTS: °
❑ Identification of Potential Improvements =
❑ Implementation oflmprovements =
PRO CE S SE S � Evaluation of Improvement Efforts _
Quality Rating: �
T'he improvement process occurs when an organization considers the design, management and
improvement of inYernal organizational processes. Similazly, the improvement process should be
part of the daily work within the organization, and should seek to eliminate problems at the
source and be driven by opportunities to improve. Tmprovement practices are the methods
identified in the improvement process to enhance operations - the implementation stage. Many
organizarions engage only in the implementation (improvement practice) stage, and fail to go
through the planning and evaluation (improvement process) stages. The improvement process
must contain planning, implementation and evaluation, all of which require information and
methods for assessing progress. All practices of an organization should be continually evaivated
to identify problems and successes. The improvement process is charted in the following
diagram.
Identtfy
Deficiencies
in Yhe
Current Process
Idenhfy Methods to
Address Deficiencies;
Select the Most
Appropriate
Plan Implementation
of New/Revised
Method(s)
�
Evaluate the
Effectiveness and Implement the New/
Efficiency of the Revised Method(s)
New/Revised Method
2000 Saint Paul City Counci[ Research
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Perfortnance Audit of the Ciry of Saint Paul's CiGZen Suvice Office
Improvements in the Citizen Service Office
71
While the CSO is attempting to incorporate a number of improvement practices, these
improvements did not come out of an overall improvement plan. Rather, they are a reaction to a
given situation, and little consideiation is given to the loag-term effects of the changes. A key
component of the improvement process is evaluation of the improvement effort Did it
accomplish what was intended? Why or why not? What should be modified? The CSO does
not do this type of evaluation of their improvemern efforts. Most review is lazgely anecdotal and
based on whether compiaints aze down and the reaction of elected officials. They also receive
some feedback &om the Intemet site. Marketing may do more evatuation by looking at
attendance at events, methods by which people found out about the event, money generated by an
event, and so on. Overall, however, the CSO could do a better job of tracking their improvement
efforts.
The CSO evaluates their vendors only through the bidding process. The Office tracks complainu
and discussed them with their vendors, as well as does spot-checks on the contractors who board
vacant buildings for them and those who cut tall grass and weeds when an abatement is ordered.
The following paragraphs discuss the improvement practices the CSO has attempted. Again,
these improvements were not part of a planning proczss, nor have they been evaluated as to their
effectiveness.
Code Enforcement Division
Code Enforcement has made a change to the structure of the Division. An Office Manager has
been hired to coordinate activities, staff have begun some job-sharing, and the Division has
placed a clerical srtaff inembet at the Eastem Patrol District OtT'ices where most of the inspectors
are located. Unfortunately, the Office Manager position comes at the expense of a data analyst, a
posirion that could be very valuable to Code Enforcement in deteimining the effectiveness of
various progrems, as mentioned previously in the Information and Analysis section. Code
Enforcement has also been involved in creating the Dayton's Bluff Iniriative and assisting with
Weed and Seed programs, such as the one in the Raikoad Island commimity. Again, these
programs were not necessarily of Code Enforcement's own initiative, but Code Enforcement
worked with those interested in creating the programs to cany them out. They continue to look
ai ways to reduce the number of chronic problem pmperties, whether through case management
or woridng with owners of these properties more closely to remedy the problems.
Code Enforcement and the Police Department have also devised an initiative calied the Red Cazd
program to assist with identifying abandoned velucles. The Police Deparnnent places a red card
on vehicles that appear to be abandoned requesting the owner to move the vehicle, and notifying
them that it may be towed. The Police Department and Code Enforcement have found this to be
an effective way to gain owner's cooperation and avoid having to tow numerous vehicles.
The Vacant Buildings Unit is also actively looking for ways to eliminate long-term vacant
buildings through such activities as incentives to tear down or rehabilitate these properties. Other
improvements include placing the vacant building list on the Internet.
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Perfo�mnance Audit of the Ciry of Saini Pau!'s Ciuzen Service Office
Marketing and Promotions Division
The Mazketing and Promotions Division is continually trying to find new, inexpensive ways to
promote events and increase participation. They have created an e-mait infrastructure to mazket
City events directly to employees of downtown businesses. They aze also working with existing
attractions and encouraging them to not only market theu attractions, but to mazket Saint Paul as
well. They have partnered with radio stations to encourage their presence at events, which resulu
in on-air, in-kind advertising. Marketing and Promotions is also placing a greater emphasis on
mazketing events through the Intemet, such as the ilovestpaul.com website, which is a
paztnership with other Saint Paul organizarions and businesses. They are also trying to work
morz directly and lend their expertise to fhe neighborhoods to mazket their evenu, rather than
simply pmviding them the funding and ]eaving the organizations to figure oui what to do to
promote their events. For e�mple, a neighborhood organization can call Marketing and
Promotions staff, and the staff will provide them with contacts aY businesses and organizations
that might be interested in worldng with the neighborhood group to market their neighborhood
events. They will also try to help the neighborhood groups find oYher sotaces of revenue beyond
the City, as well as encourage media sponsorship of local events.
Mazketing staff have also provided training session for production houses that come to frlm in
Saint Paul that helps them better prepare for filming here. Staff took the initiative to make an
unscheduled presentation at a seminar for production companies and went over common
qaestions and situations production companies face when they come to Saint Paul. Staff also
produced an easy-to-use reference guide that covers oommon sitvations an@ problems such as the
process for getting parking meters hooded, azranging for traffic detours, the fees chazged for
special services, and other pertinent concems and situations. After presenting and preparing the
reference guide, staff aoticed a decreased levei of shess and time spent amanging for filming and
a smoother filming process.
Information and Complaint, City Clerk/Records
The Informarion and Complaint Division now has a form far walk-ins to fill out when they come
in to report a complaint, rather than having a staff person take the complaint directly from the
individual. It appeazs this new practice benefits the employees, but it is not as clear as to whether
this benefits the customers. However, it does create a written record of the complaint, whicfi
III1Y g1VC SOIII@ 35SUL3DCC TO Y[1C CUShOIl'ICP t`'[58i f� w7u'�5c ia'v uuu ifinw, Sr::�'.:3;`j. Tti� �S?�'
Clerk/Kecords Division does not have any appazent impmvement processes in place. Other
Summary of Findings
1) Overall, most evaluation of improvements in the CSO is based on anecdotal evidence and is
very informal. The evaivations are not used to ruake ptaos for the OflSce.
2) Code Enforcement has engaged in some improvement efforts such as prograznmatic and
staffing changes. However, many of these improvements are reactive rather prevenrive measures.
The CSO has not prepared any concrete plans to fully itnplement the changes and artricipate any
potential problems resulting from the changes.
2000 Saiu Pau1 Ciry Council Resemch
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Perfo�mance Audit of the City of Saint Paul's Ci6zen Service Office
73
3) The Mazketing and Promotions Division is perhaps the only division in the CSO that engages
in any planning and evaluation of their improvement efforts.
Recommendations
Recommendation #57. The CSO should engage in a more formal improvement process that
includes planning, implementation and evaluation of the improvement ejforts. By engaging in an
internal process to idenrify improvements, pianning the implementation of the improvements, and
evaluating their impact, they will move away from the reactive mode to a more proactive
errvironment. The new hire to perform data analysis, suggested in the Information and Analysis
recommendatioru, should be heavily invoZved zn this e,ffort.
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74
CUSTOMER
FOCUS
Quality Rating: �'�`[%a
Performance Audit of the City of Saint Paul's Ci4zen Service OfSce
KEY CONCEPTS:
❑ Customer ldentification & Knowledge
❑ Measuring Customer Satisfaction & Needs
❑ Customer Service Practices
o Customer Service Standards
Attention to customer needs is critical for achieving organizational excellence. Through the
creation and management of relationships with their customers, organizations which excel in
customer satisfaction obtain informaYion on customer service requirements, expectations arrd
satisfaction. Knowing the requirements of its customers enables an organization to develop
standards which are designed to enhance customer satisfaction.' For these standards to be
effective, they must be understood and followed by everyone in the organization.
In recent years, the CSO has placed a great deal of emphasis on providing good customer service.
The vision for this effort comes from the Mayor and the Ilirector. However, since incorporating
the Code Enforcement Division into the Office, the philosophy of providing good customer
service has been strained by the fact that Code Enforcement is an enforcement agency.
Inspectors and managers have for years wrestled with the notion of customer service being the
parainount objective. Other divisions within the Office do not struggle with this notion to the
same degree. However, there are srill some azeas in which the Citizen Service Office could
improve. Organizarional improvement requires that staff understand the impoRance of customer
service training and that good customer service skills can be leamed and enhanced.
CSO's Customers
Most CSO staff agreed that anyone requesting services or information, whether intemal or
eacternal, is a potenrial customer. However, with the aforementioned exception, Citizen Service
Office employees indicated through the survey a general lack of agreement as to who aze their
customers. A list of customers Yhat were identified include: the general public, citizens of Saint
Pa�z?, r*o�P*?y oevneas, businesses, neighborhood groups, City workers and elected officials.
While this list is very broad it does shed some light on the difficulty employees face when trying
ozi�nn�i�«u';z c:ga^..:�^;:�.y �^c..'�rt:�S�Zvt� rn�c;-.s��st��axers ,�h.auld�m when each
division within the Office is chazged with different responsibilities. Interviewees stated that
citizens are perceived as customers by ali the divisions because they provide the Office with
infonnal feedback as to how well the Office is doing its job. This is aa important criteria for
them when deciding who their customer is because these individuals provide the organi�ation
with information pertaining to customer sarisfaction and needs.
�$ In many cases, an organization's customers may be the same as their stakeholders. However, customers and
stakeholders each provide the organization with a unique set of infocmatioq and the relatio�ship behveen [he
organization and its customers versus the relationship between the organization and its stakeholders is different. For
more discussion of stakeholders, see the Leadership section.
2000 Saint Pau[ Ciry Council Research
Perfo�mance Audi[ ofthe Ciry of Saint Paul's Citizen Se[vice Office 75 0 ' ^� �
Code Enforcement Division
Survey respondents within Code Enforcement overwhelmingly chose the citizens of Saint Paul as
their customer. Many aiso view the general public, City of Saint Paul employees, businesses and
commimity groups as customets. There is some confusion about whether or not property owners
with code violations should be considered customers.
Information and Complaint Division
The Infomiation and Complaint Division also identified the public and citizens of Saint Paul as
its primary customers. Because they also interact with the City Council regarding neighborhood
problems, they identified the Council as a customer as well. This Division has tlte unique
responsibility of serving walk-in visitors and phone-in customers. In fact, systems have been
developed to deat with these individuals in a friendly and efficient manner. Walk-ins aze served
by counter personnel and aze given a complaint sheet to fill out and phone-ins have their
complaints entered into the computer and passed on to the appropriate City agency.
City Clerk / Records Division
This Division believes that people requesting copies of City documents aze their primary
customers. City departments and the City Council are identified as customers who aze served
less frequently, but who aze still customers. The City Clerk also pmvides information about
official City documents, local elections, petirions, and lustorical data to researchers.
Marketing and Promotions Division
Marketing and Promotions staff feel their customers aze the residents, visitors and film
production companies that come to Saint Paul to attend events or film movies. The Mayor's
Office, the City Council and City departments were reported to be customets as well. This
Division allocates a certain dollar amount for mazketing and promotions efforts in each City
wazd, which involves working with Councilmembers and their aides to detetmine how the money
should be spent. The Division must also work with other City depariments and organizations
which promote the City to coordinate City services for events occurring in Saint Paul.
Mazketing and Promotions also provides the City's website development services. The City's
website provides useful information, but is somewhat difficult to navigafe for people less familiar
with the City's governmental struchue. Each City departmenYs website has its own look, rather
ffian a standard structure that makes it easier for a viewer to recognize it as being a City of Saint
Paul web page. 'fhe CSO's own website is useful and contains various complaint forms, meetSng
information, and links to other useful sites. However, it does not have as many linlcs as might be
usefiil for citi2ens and visitors looking for infoimation. The Citizen Service Office is often the
first place people go to seek information. Therefore, their website has the potential to be one of
the most valuable of the City's pages. Just as people call the CSO when they are unsure of what
department to call, many people may constilt their web page first in the hope of finding a link to
the information they aze seeking. People aze also becoming more technologically sophisticated
and aze finding it easier to submit information requests and complaints via e-mail.
2000 Sa�t Paul Ciry Crnmcil Research
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� 6 Perfo'manc Audi of tlie Ciry of Saint P CiUZen Service OtSce
Determining Custo�ner Needs and Satesfaction
Good customer focus involves determining what specificaily the customer needs and how
satisfied the customer is with a product or service. The CSO identifies what its customers need
tluough responding to complainu and talking with property owners, businesses, visitors to the
Office and community organizations. However, only 35 percent of respondents surveyed fett that
CSO staff frequently monitor for changes in customer needs, and 41 percent neither agreed nor
disageed. Similazly, forty five percent of respondents believe the Office is responsive to
changes in customer needs, while 41 percent neither agreed nor disagreed that the Office is
responsive. Ttzese nurrtbers can be explained by the fact that although staff say they determine
customers needs by verbal communication and letters from cirizens, the Office has no formal
mechanism for gathering customer needs information or sharing customer responses with staff.
InformaLion is difficult to gazher from the cutrent computer systems and the Office does not hold
staffmeetings where it wouid be easy to share and discuss customer informarion.
Customer sarisfaction is admittedly a more difficult aspect for the Office to ascer[ain than
customer needs. Beyond limited call-backs, the Office does not have a formal survey instrument
or process to ascertain levels of customer satisfaction. In fact, only 24 percent of staff surveyed
felt the Office monitors for changes in customer sazisfaction, while 27 percent felt they do not
monitor for changes, and 59 percent neither agreed nor disagreed. Only 28 percent of
respondents felt that the Office was responsive to changes in customer satisfaction, with 14
percent reporting they are not, and 57 percent neither agreeing nor disagreeing. The Information
and Complaint Division does not pass along its very iimited customer satisfaction results from
call-backs to other CSO staff or to the Code Enforcement inspectors. Inspectors remarked that
they only receive customer satisfaction results when they are negative and the feedback is usually
in the form of an angry phone ca11 or ]etter. Marketing and Promotions conducts informal
surveys of its customets after lazge events such as the Titanic exhibit at the Union Depot building
and the Peanuts on Pazade e�ibits_
High performing organizations use customer satisfaction data for planning and implemer�ting
strategies that enable the organization to be less reactionary. 1n truth, if the organization captured
customer sarisfaction and needs information through a reguiaz process of formai surveys and
analysis of the results it could adjust its practices to deal with changes in customer sarisfaction
without disrupting daily mutines. Not only is this important for the CSO, the City could benefit
CIIOYYPIG i �fsa�aII� li. u �.�'�` S'.:I'YC� 2FS� �121"^a fli�04P_� L!� 2IId $8Y1SfSCUOIS a2T2
available for all of its operations.
Customer Service Standards
Formal customer service standards help staff understand what is expected of them by the
organization and by their customeis. The CSO does not have a set of formal customer service
standards that aze written down and circulated to all employees. Code Enforcement t�as some
standazds in a manual ttiat was created tmder a former manager. However, many Code
Enforcement staffare noY aware of its eacistence. Information and Complaint, Mazketing and
Promotions and the City Clerk all purport to have informal cvstomer service standards. Staff
aclmowledge these are not written down, as such, but are relatively widely understood and
2000 Sairu Pavl Ciry Council Resemch
Perfo[mance Auda of ffie City of Saint Paul's Citizen Service OkSce 77 �� I c �
practiced. Forty-four percent of respondents surveyed agreed that there were customer service
standards in their work azea, and 41 percent neither agreed nor disagreed.
Many of the informal customer service standards referred to by staff aze close to being values or
are values of the organization. This is evidenced by the fact that these standards are leamed and
reinforced by employees observing their co-workers in the fieid and on the phones. While it is
good that 42 percent of staff surveyed imde�stand the Offices' informal customer service
standards and attempt to follow them, over 1/5 of the staff reported they do not understand or feel
that staff follow them. This is an insufficient management practice. Unless standards aze
formalized, written down, and widely circulaYed they can not be updated, amended or added to in
any way ffiat would promote efficiency, effectiveness and consistency. This situation is
compounded by the lack of all-staff meetings where organizational information is usually
exchanged.
Summary of Findings
1) The CSO in total does not agee on who its customers aze. While deference is paid to those
seeking information or services, there is no Office-wide agreement as to whom the organization
should consider as its customers.
2) The CSO does not have a formal process for assessing customer needs and sarisfaction.
Divisions within the Office rely on complaints from citizens and informal surveys to determine
Uris information. The Information and Complaint Division occasionally utilizes a call back
method to gamer some customer satisfaction information. I-Iowever this information is not
compiled or shared with any other staff in the Office or City.
3) The Office does not have a formal set of customer service standards. Rather, the employees
adhere to an infortnal set of value-driven, common sense s[andards that are enforced by action
and word-of-mouth and emulated by staff.
4) The City's website has the potential to be an invaluable resource and method for
communicating with residents, visitors, businesses and anyone seeking informarion on Saint
Paul. However, the City's website is currently difficult to use and lacks uniformity that would
make it easier to navigate. The CSO's website provides useful information and complaint forms,
but should be developed fiuther as many visitors to the City's site may go to their page first
when they aze unsure of which department they need.
Recommendations
Recommendation #58. The CSO should ident� as pmt of it strategic plannzng e, ff'orts, who its
customers are and put processes in place to identify their needs and satisfaction with the
information and services provided by the Of, j'zce. This could be accomplished by initiating a
formal annual survey of its customers once they have been identified by staff and management.
Recommendation #59. The CSO should produce a written set of customer standards attd
circulate them to all staff. Based on the fact that emptayees curremly fotlow an irtformal set of
2000 Saint Paul Ciry Coursci! Research
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�g Pafrrmance Audit of the C'ny of Saint Paul's Cxtizen Service Ottice
standards based on organizational values this should not be di,�'icult. This will clar� czrstomer
ezpectations for all staff and aid in the training of new staf}:
Recommendation #60. Code Enforcement should provide customer service training to its
inspectors and clerical staff in order to provide a more corrsistent customer focused artitude in
the course of carrying out their jobs. This would be in line with the vision from the Mayor's
Of,�'ice and fhe Director.
Recommerrdation #61. The CSO should be a leader in developing a more useful, functional City
website. Some suggestions to reach this goal are:
• make permit and complaint forms easily accessible from the CSO's web page;
• standardize the City website so all City department pages have a unzform, recognizable look;
• develop a standard complaint form; and
• create an cruto-reply function for inquiries.
20D0 Sairrt Paul Ciry Coumil Ruemch
Performance Audit of lhe City of Saint PauPs Citizen Service Office
RESULTS
Quality Rating: �i'/2
� o��-�'1
KEY CONCEPTS:
❑ Organizational0utcomes
❑ Financial Outcomes
❑ Customer Satisfaction
❑ Use of Performance Indicators
The Results component of the Malcolm Baldrige system addresses an organization's ability to
determine if and how well it is accomplishing its mission. Successful organizations know how
well they perform. Through result measurement an organization is able to evaluate the
effectiveness and efticiency of its operations. Organizations should track results over time and
compare these results to other similar organizations. Results management should be the last
phase in an ongoing cycle involving goal setting, planning, the execution of plans and
improvement practices. Using results information in this way can help staff provide the best
service in the most efficient way possible. Decision makers can also use results information to
monitor the provision of services on the publids behalf, ensuring govemment accountability.
The work functions within CSO have a great deal of potential data available which could be used
to measure results. However, as mentioned in the Information and Analysis section of this audit,
CSO's data collection effoRs are poor and their data storage and retrieval systems are inadequate.
These factors have severely limited the Office's capacity to perform meaningful results
measurement.
Outcomes Measured
The measurement of results is not a well-developed concept in the CSO. Below we detail the
Office's efforts to develop, measure and use results.
Information and Complaint Division/City Clerks Office
The Information and Complaint Division collects response time data regarding how long it takes
City departments to resolve a complaint. After five days, the Division will send out a late report
if the complaint is unresolved. These reports aze sent to department and office directors but not
directly to staff responsible for resobing the complaint. The Infortnation and Complaint
Division also collects very limited information on how satisfied citizens are with City
Departments' ability to resolve their wmplaints. The Division's staff occasionally calls citizens
who have made complaints and asks them state whether they were satisfied with the timeliness
and quality of the City's response. However, they do not compile this data or prepare any reports
with this information; therefore, other City staff aze unaware of the limited satisfaction results.
Despite this shortcoming, we believe soliciting citizen satisfaction information is an excellent
practice and represents an important mechanism which the City can use to understand its
customers' requirements.
There was no indication the City Clerk's O�ce measured the results of its operations.
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Pertormance Audit ofthe City ofSain[ PauPs Citizen Service O�ce
Code Enforcement Division
The activities of the Code Enforcement Division have the potential to provide a rich source of
data which could be measured to determine organizational results. Given this potential data
source, the Division could be a very results-oriented organization. However, senior leaders state
the organization's ability to focus on results has been limited because of poor data collection
effoRs and inadequate computer systems. With the change in leadership in the division, there has
also been a de-emphasis on data collection.
The Division's data storage system, EXL, is currently is able to collect data but cannot easily
retrieve data. The Freelantz system, which was initially created to replace EXL, has not been
fitlly implemented. The new program has run into difficulty and senior leaders report it is
unlikely the Division will ever fully deploy the program. It now appears the Pivision will
conveR to the AMANDA system to serve as its complaint data base.
The Code Enforcement Division tracks the number of complaints they receive. Several interview
respondents stated the number of complaints has decreased over the last year, but none of these
employees could provide an explanation of why complaints have gone down. One senior
manager suggested tracking the number of complaints is a poor measure of the Division's
success because the Office does not track data which would explain the decreasing number of
complaints. For instance, he suggested it is possible that one could interpret a drop in initial
complaints to mean that people are calling less because they aze increasingly discouraged by the
City's ability to deal with Code Enforcement problems.
The Division also tracks the number of complaints resolved. Cases are considered closed once a
member of the clerical staff enters the inspector's final report on the EXL system. It was
reported this measure may be inaccurate because the information is sometimes entered weeks
after the inspector has completed the repart, thereby exaggerating the number of open cases.
The most results-oriented unit of the Code Enforcement Division is the Vacant Building's unit.
The Unit tracks the number of demolitions, the number of demolitions disaggregated by property
owners, the number of active vacant buildings, and the number of vacant buildings that aze
rehabilitated. A report of these results is published quarterly and distributed to the Mayor's
Office and the City Council.
Code Enforcement staff have a good understanding of the results they would like to measure.
They hope the conversion to a data base, such as AMANDA, and a new commitment by senior
leaders will lead to a greater use of results measurement. In the table below we detail the
measures that Code Enforcement would like to track.
➢ Number of summary abatement orders and number of abatements performed by the City
> First notice compliance rates
> The disposition of citations
➢ The number of condemnations
➢ Complaints broken down by U.S. Census track
> Data regazding the safety of inspectors
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PerFoxmance Audit of the CiTy of Samt Paul's Citizen Service Qffice gl
A senior leader suggested that many of these staristics would provide the City with a better
indication of how Code Enforcement is doing and help the Division develop future strategies and
plans. In our view, estabtishing the measures mernioned by staff would be an excellent
beginning for measuring the IJivision's performance. FIowever, we believe these measures alone
do not serve as a complete list of potemial perfrnmance indicators which could be used by the
divisions. Nor do we believe they sufficiently account for social and economic factors which aze
beyond the con�ol of the Division. For instance, as one of the Division's supervisors mentioned,
the declining number of vacant buildings is not meaningful imless one also looks at the condition
of the housing mazket in Saint Paul. To provide better information for the analysis of results and
the development organizational plans, new measures should attempt to incorporate eactemal
social and economic factors.
Result Measurement for Special Initiatives
Several senior leaders within the CSO stated the Office dces a particulazly poor job of ineasuring
the results of special iniriatives. For the purpose of this audit, we define special initiatives to
mean any new project or program that has been developed to address a specific problem. These
initiatives are usually pilot projects or temporary in nature.
The inadequacy of the Office's data collection efforts is a major impediment to its efforts to
measwe the results of its special initiatives. The D'uector of Code Enforcement stated that in
1999, this Division conducted six Weed and Seed pmgrams and there are no records of how the
program's money was spent or about the results of the programs in terms of citations, arrests and
property impmvements. Similazly, the Division is currently undertaking a pilot program, the
Dayton's Bluff Iniriarive, foz which there was supposed to be a serious data collection effort
undenvay during its fust three months. However, it was reported that the collection efforts were
so poor that the data was essentially useless for a serious evaluation of the program. Currently,
the Office's most significant special iniriative is PP2000. PP2000 is the Division's program to
address the pmblems created at some of Saint Paut's most troubled properties. To track the
success of the pmgam, staff collect data on whether complaints on PP2000 properties aze
decreasing. Howevet, they say they would also like to collect the number of properties sold by a
PP2000 property owner, the number of complaints based on ownership, and whether corrections
were made as a result of wriring a citation.
There are several reasons why tracking results of special initiatives, such as PP2000, should be of
great importance for the CSO. Fiist, PPZ000 and the Dayton's Bluff Initiative have been
mentioned as potential models for dealing with the City's problem properties. Without good data
collection and continuous tracking of results, it will be very difficult to determine whether these
programs are successful, whether they should be continued and implemented on a lazger scale.
Second, there appears to be a great deal of resistance to some of these programs among staff and
some senior leaders. Many complain that uritiatives such as these use scarce resources which
would be better used for the day-to-day activiries of the Code Enforcement Division. By
systematically tracking results of these special initiatives, senior leaders and decision-makers wili
be able to judge whether resources are being used in the most effective manner possible.
" For a more detailed discussion of these programs, see the "Special Initiatives" section of Policy Aligiment
portion of this audit.
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gz Perfomiance Audit ofthe Ciry of Saint Paul's Citizen Service Office
Marketing and Promotions Division
The Marketing and Promotions Division measures the resulu of some of iu activities. The Film
Dffice determines the financial results of its efforts by exatnining the budgets of the projects it
helps bring to Saint Paul. This data is disaggregated by production type. The Division also
collects data on visitors and revenues generated by events that it promotes in the City. Staffalso
track press clippings to determine the success of their promotional efforts. Finally, the Division
seeks feedback from stakeholders about speci&c projects it has undertaken. Several staff
members stated they would like to receive regulaz reports &om the CSO's Information and
Complaint Division abouT requests and complaints related to their acTivities. They have made a
request to the CSO Director to be provided with this information; however, the Division has yet
to receive these reports.
Comparisous of Results
Divisions within the CSO do not compaze their results to the outcomes of other sunilaz
organizations. Occasionally, employees informally speak or swap stories with staff from other
cities who perform similaz functions. Many Code Enforcement staff members stated it would be
difficult to compare Saint Paul's results with other similar agencies because of the difference in
housing code and enforcement traditions.
Staff Knowledge of Goals and Goal Achievement
UlUmately, the measurement of results should be undertaken to determine whether an
organization is ackrieving its goals. Staff, however, appear to be 2utclear about the goals of the
CSO. The staffls Imowledge about organizarional goals is essentially the responsibiliTy of senior
leaders. Leadeis must make it cleaz, through the vision and planning process, whaY the goals of
the organi7ation are and how they will be achieved. Although the point is intertwined with much
of what is stated in the audiYs Leadership section, it is mentioned here because if an organization
does not have clear and defined goals, it is difficuit for an organizarion to determine whaz resutu
should be measured. Since there does not appeaz to be consensus in the CSO about the
organization's goals, it is not surprising the Office has paid scant attenrion to measuring results.
of Findings
1) The CSO does noi have a results measurement system.
2) The Information and Complaint Division does track some response times and citizea
satisfaction levels, Marketing and Promotions Division measures the success of their programs
and the Vacant Building Unit hacks case management data.
� As an exampte, articles about Peanuts on Parade have appeared in papeis as far away u Japan, Gecmany, Canada,
Belgium, and Puerto Rico, and staff were interviewed by Ausualian radio.
2000 Suira Pwl Ciry Council Resemch
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PerFormance Audit of the Ciry of Saint Paul's Citizen Service Office
3) For the most part, the Office's performance indicators aze poorly developed and do not
provide the organization and elected officials with useful information which could assist them
with decision-making.
Recommendations
83
Recommendation #62: The Information and Complaint Division should generate customer
satisfaction reports and distribute them to all staff in the CSO, as well as other depart»tents.
Over 50 percent of complainls received by the Information and Complaint Division are Code
Enforcement related. Thu type of feedback would be irrvaluable for Code Enforcement to track
how if well it is doing. Moreover, the CSO should also provide these reports to relevant
frontline stafJ'of other City departments and o�ces, such as Public Works, LIEP artd Parks and
Recreation, who also receive a large share of these complaints. The CSO should also consider
posting these reports on the City's web site so residents and City workers can track how well the
City is doing to resolve problems identified by citizens.
Recommendation #63: The CSO should include, in its planningfor the implementation of the
AMANDA computer system, a discussion of what results it wishes to track. It should determine
whether these results can be adequately tracked by the new systems. The consideration of the
results suggested by staff in the performance audit interviews are an excellent starting point for
this discussion.
Recommendation #64: The CSO should compare its results to other similar organuations.
Recommendation #65: Senior leadership in the CSO should clearly detail goals for each work
activity in CSO through organizational vision and strategic planning efforts. Stafj'should be
informed about these goals and have an understanding of how their work is connected to the
achievement of the goals.
2000 SaintPaulCiryCounci/Research
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Performance Audit of the Ciry of Saint PauPs Ciezen Service Office
PERFORMANCE MEASURES
Performance measures, also referred to as performance indicators, provide an organization with a
means to gauge how well it is achieving its goals. Although not everything an organization does
and seeks to accomplish can be quantified, there aze some measures that aze good indicators of
this. Fundamentally, performance indicators should measure how well an organizarion is
meeting its missioa For this reason, CSO's mission bears restating here. "The Citizen Service
Office consists of Four Divisions — City Clerk Records, Mazketing & Promotions, Code
Enforcement Programs and Information and Complaint. Together, the employees of the Citizen
Service Office maintain Saint Paul's official recorded history, promote its vitality and diversity,
identify proactive solutions to correct code violarions, and help resolve citizen issues related to
City Services by serving as advocates and liaisons." In this chapter we will explore how the
CSO may seek to inform itself, its customers and stakeholders about how well it is doing at
achieving its mission. This chapter is intended to provide a basis for discussion and assist CSO
in developing performance measures. The CSO will embazk over the next yeaz on the
implementation of AMANDA, the inFormation system which will track much of the needed data
for performance measurement. Therefore, it is a critical juncture for CSO to consider these
issues.
Council Reseazch has approached this examination of performance indicators with several
assumptions in mind. First, we believe the City Council has a vested interest in examining
performance indicators as a part of the budget review process. The use of performance indicators
gives the City Council a cleaz picture of whaz has been accomplished in past years, and the
reasonableness of expecta6ons for future years, They meaningfully connect dollars spent to
hoped-for outcomes in the services expected of City govemment. Indeed, as the Council
deliberated upon "managed competition proposals," the need to translate CiTy activities into
meaningful performance indicators became very appazent. The development of such indicators is
necessary to make cleaz with anyone-- employees or private vendors just what aze performance
requirements which will be specified in the contract. Second, we believe performance indicators
can be useful management tools for communicating with statt' about expectations. However, we
also put forwazd the notion thaY staff must be a part of the creation of performance indicators and
see their usefulness in their daily work lives. T7?e �eo�ie u�ho wi!?, iR �:ae?i:z, ��s:de
information for performance indicators aze also pmfoundly affected by what the indicators may
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communicate about the success of an organizarion, there is little else available to provide "a
gauge" on progress. Comprehensive evaluations of programs or activities aze timely and
expensive, and do not necessarily allow for the incremental improvement of efforts.
The CSO does have a number of so-called "performance indicators" in its budget. In our view,
however, most ofthe indicators included in the budget do not constitute meaningful, useful or
effective measures. Developing performance measures begins with identifying what pieces of
informazion indicate the organizarion's effectiveness, efficiency, and quality. Some guidelines
for the development of ineaningful performance indicators are provided below.
2000 Saint Paul Ciry Council Resemch
Perfo�mance Audit ofthe Ciry of Saint Paul's Cidzrn Service Office
Performance Indicators Should Be:
ss D/'�v 7
❑ Quaritifiable, readily available, easy to calculate, "hackable" and show the direction of progress
❑ Strongly connected to the mission of the organization
❑ Intrinsically meaningful and imderstood throughout the organization
❑ Focused on outcomes and products, rather than processes when possible
Examples of Perjormance Measures:
❑ Customer and employee satisfaction
❑ Volume of outputs as work units or products
❑ Productivity and efficiency: time and cost per unit of product
❑ Errors, mistakes, wmplaints, waste, rehun rates or.pollution
❑ Quality
❑ Timeliness
❑ Impact: changes resulting &om activity
It is important to note that performance indicators are often most meaningful and effective when
the measwes can serve as a basis for comparison. Comparisons are best when they are made
using similaz data from similaz organizations, or if they compare the same activiries within the
organization over time. Comparing the City of Saint Paul's performance in these azeas over time
is likely to yield more meaningfiil resutts because of the idiosyncratic nature of these processes.
Therefore, it is recommended that the following measures be tracked at periodic intervals for
comparisons.
We have or ni� our discussion of potential performance measures by division: City
Clerk/fnformation and Complaint, Code Enforcement, and Marketing and Promotions. What
follows is not intended to be an exhausrive list of potential measwes, but rather provides what we
believe would be good measures for some aspects of the Office's work. Some of the data needed
for these measures aze already collected.
City Clerk
1) The timeliness of record retrieval could be measured by hacldng what percent of record
requests are fiilfilled within a certain time period, for example 24 hours. This
information could also be tracked and reported by type of request.
2) Similuly, the City Clerk's Office could measure how promptly official City documents
are processed and filled by tracking the percentage of documents processed within a
certain time period.
3) To measure the accessibility of official dceuments to the general publiq the Clerk's
Office should track how up-to-date document indexes and compilation of City records,
such as Council minutes, are.
2000 SointPaulCrryCouncARuearch
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86
Perfom�ance Audit of the City of Saint Paul's Citizen Service Office
Information and Complaint Division
1) To measure the response time to citizen complaints, the Division should measure the
average time it takes to refer the complaint to the appropriate departrnent
2) The Information and Complaint Division should formalize the collecrion of citizen
satisfaction data regarding the Ciry's response to complaints. This information is
currently being collected on an irregulaz basis. The Division should develop a consistent
policy and methodology for collecting this data and reports should be ptoduced and
distributed city-wide.
3) Part of the development of citizen satisfaction data collection policy should include the
measurement of the Division's ability to conduct these call-backs in a rimely manner.
This should include tracldng the amount of time it takes Information and Complaint staff
to call citizens back after their complaint has been resolved.
Performance Measures for Code Enforcement
1) To measure workload, the Code Enforcement Division could measure inspections per
inspector, or inspections per year.
2) To measure timeliness, the Division could measure (a) average response time in calender
days for initia] inspection of code violations for the most recent fiscal year; and (b) the
average time in catender days for progressing from inspec.4or's report to either voluntary
wmpliance or the initiation of administrative or judicial action.
3) To measure the effectiveness of code enforcement actividies, the Division could measure,
(a) the percentage of code violations brought into voluntary compliance prior to the
initiation of administrative or judiciat action; or (b) the number of code violations
resolved per full time equivaleats (FTEs) units.
4) To measure cost, the Division could measure the cost per code enforcement case.
Marketing and Promotions Division
1) The Division sho�td attempt to measure the effecxiveness of their efforts to promote and
M21'KCL CVC'IITS Uy S�UIYByffi�a�'icZiu� awiai v::�.. �::: �.,�'�'.'�* r?'?!SJ.��3* �!�tIS- -
2) The Division sho�d survey stakehoiders, such as commturiry grovps and businesses,
which benefit from its activities. The Division should focus on measures which relate to
stakeholder needs and sarisfactioa
3) The Film Office should measure the average amount of revenue generated by film
projects in the City. This data should be disaggregated by the film type, such as
commercial, feature film, or video.
2000 Saira Paul Ciry Council Research
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PerFormance Audi[ of ihe City of $ain[ Paul's C�UZen Service Office
CONCLUSION
87
The employees of the Citizen Service Office aze diligent and very concemed with providing
services and information to the extent possible and as dictated in law. We found some policies
where further development of CSO practices aze necessary, and others where a change in policy
would be more logical. We also found a geat deal of room for improvement in the efficiency
and effectiveness of the Office's operations. Through our interview process, we discovered that
staff and the managers and director have a willingness to improve operations. Our intent is to
provide them with recommendations that would do just that. Many of the recommendations aze
not difficult to implement and could dramatically improve the overall quality of the Office's
operations. The following is a summary of our findings.
Planning
The Citizen Service Office does very little planning for its operations. The only "plans" we
discovered were the "Strategic Plans" found in the City's Budget document, and some plans
created by the Marketing and Promotions Division directly related to various events and
activities. Staff suggested the overall lack of planning is a result of the reactionary nature of their
work and the influence of political decision-makers on their operations. Council Research offers
that creating plans to guide their work would assist the Citizen Service Office in balancing the
demands on their resources and assisting with prioritizing requests.
Leadership
Most staff within the Citizen Service OfTice have not seen the Office's mission statement.
However, most staff agree the mission is to serve the citizens of Saint Paul. Staff aze less sure of
the vision for the Oftice, though they do feel the Mayor provides a vision of the future of the
Office and supports the work they do. This was particulazly evident in the Code Enforcement
Division. The vision from the Director of the CSO seemed less clear to staff.
While the mission and vision may not be entirely clear to staff, the values of the organization aze.
The Director and managers deserve special recognition for exemplifying the values, in the eyes
of the staff, and for being open and accessible to their staff. Still, it would be helpful to new staff
to be able to view a vision, mission, and values statement to get a better understanding of the
organization.
Communication is a problem for the Citizen Service Office. We found many instances where
there was an appazent lack of communication between divisions and between management and
staff. Staff meetings and more information sharing between divisions could result in a great
improvement in the level of communication in the Office.
Training and Development
The Citizen Service Office, particularly the Code Enforcement Division, encourages training and
provides resources to attend various training sessions and conferences. Other staff, such as
2000 Saint Pauf Ciry Councit Research
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88 PerFocmance Audit of the City of Saint Paul's Cilizen Service Office
support staff, do not seem as inclined to attend training, though they aze atso encouraged to seek
training.
The work environment of the Code Enforcement Division has reportedly improved since they
were administratively moved to the Citizen Service Office, and most statFwere physically placed
in the Police Department's Eastem Patrol District offices. They have also come under new
management which, staff state, has an open-door, approachable philosophy. Some problems still
�ist with derical and vacant buildings staff being located in City Hall and the rest of the
inspectors being located at the East team offices. The files are also located downtown, which
decreases efficiency of operations and access to information. The work environment of other
divisions appeaz to be fairly healthy, though there were some problems discussed that appear to
be human resources issues that need to be handled on an individual basis.
Direct employee involvement in decision-making is an area that needs improvement in the
Office. Many employees feel decisions aze made at higher levels and they aze the last to find out
about changes.
Information and Analysis
The Cirizen Service Office is collecting very little useful data at the present rime. They have
stated tttat their current computer system dces not allow them to rehieve meaningful data;
therefore, any analysis of this data would be inaccurate. Two azeas within the Office are better
able to collect data: the Vacant Buildings Unit and Mazkering and Pmmotions. Infotmation and
Complaint is able to generate some reports as well, but not to the extent we feel they ought to be.
The Office has also began to move away from the old EXI, data base system. Some units within
the Office aze experimenring with Freelantz softwaze, which they have found to be inadequate.
They are also pursuing fhe possibitiTy of using the AMANDA system, which LIEP and Fire
Prevention have already begun to use. Council Reseazch feels they should be moving more
quickly towazd implementing AMANDA with greater input from cunent users.
Improvement Processes
As we have found in many other audits, the City overaii does noi engage in a sy� �;a,�:.,
- *±?e�i.n¢£ul_imnzovement_nrocess, and the Citizen Service Office is no e xception. Th aze very
good at finding different ways to improve their services, whether it is accepting informahon -- —
requests and complaints on-line or creating special initiatives to address specific Code
Enforcement problems. However, they aze lacking in the planning process for these initiatives,
and therefore run into unanticipated, avoidable problems in implementation, and they are less
sure of the success of the iniriatives because they have created no mechanisms to evaluate the
iniriatives or changes.
Customer Focus
We aze constantly impressed with the level af concern City employees show towazd citizens,
their customers. The Citizen Service Office is very interested in ensuring they aze providing
2000 Saira Paul City Counci! Rese�ch
Perfo�mance Audit of the City of Saint Paul's Citizen Savice Office g9 �����
citizens with the information and assistance they need. Currently, Information and Complaint
staff sometimes follow-up with complainants to assess their satisfaction with the CiTy's response
to their inquiry or complaint, though this information is not compiled or distributed. A more
ihorough assessment of residents' needs and level of sztisfaction would be beneficial to the City,
and ought to be done on a broader scale than just those residents who call the CSO. While the
responsibility for laiowing ihis information rests with every City deparknent, the CSO is best
poised for conducting a city-wide survey.
The employees of the Citizen Service Office understand a basic, informal set of customer service
standards. However, it would be helpful to have more forma] standards to assist staff in
understanding what the expectations are for their gerformance in relation to customers.
Resutts
Closely related to planning and information and analysis is results measurement. It is vitally
important that organizations gauge how well they are achieving their mission. The CSO does not
have a highly developed results measurement system. T1te Information and Complaint Division
does track some response times and satisfaction levels, Mazketing and Promotions tracks the
success of their programs, and the Vacant Buildings unit tracks information such as how many
vacant buildings aze rehabilitated. However, overall the Office does not use even the litile
information it has to analyze to assess its operations. The Office needs to re-examine its
performance indicators used in the City's Budgei. Performance measwes aze not just volume
indicators, they are used to assess progress, efficiency, and satisfaction. For example,
Information and Complaint staff currenfly track the number of call backs they do. A more
meaningful measure for them would be the number of call backs within three days, wlrich is their
objective as stated in the budget. They could set a goal for the level of satisfaction of
complainants - for eJCample 80 percent.
Performance Measures
The Citizen Service Office currently has few meaningfiil performance measures. However, they
have the potential to create measures using data they anticipate collecting with the development
of their information systems. Using performance measures in an ongoing cycle of planning,
evaluation and improvement could significantly assist the CSO in yeazs to come, and will
enhance intemal management and accountability to customers and stakeholders.
2000 Sairst pouJ Ciry Covncil Research
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� Perfomiancz Avdi[ o f tLe C ity o f Sa P CiGZen Se�vice OtSce
Appendix A: Resources
General Citizen Service O�ce Policies Applicable tn All Divisioru
2000 Budget Objectives and Activity Performance Plans
2000 Budget Straiegic Plans
Administrative Code Chapter 2. Office of the Mayor
Code Enforcement Pdicies
Legistafive Code:
Chapter 34. Properry Code Maintenance
Chapter 35. Rental IJisclosure Posting
Chapter 39. Smoke Detectors
Chapter 43. Vacant Buitdings
Chapter 45. Nuisance AbaYement
Chapter 51. Dwelling Unit Registration
Chapter 113. Snow and Ice on Sidewalks
Chapter 163. Abandoned Vehicles
Chapter 189. Tnrth in Sale of Hausing
Chapter 357. Solid Waste Provisions
The Saint Paul Comprehensive Plan: Housing Plnn, Adopted by the City Council March 24, 1999.
Housing Action Plan 2000
City Clerk/Records Policies
City Charter.
Chapter. 8. Initiative, Referendum, and Recall
Chapter 14. Special Assessments
Chapter 17. Generat Provisions
Legislative Code:
C}+_zpter 9. Publishing Costs of Special Ordinances and Resolutions
Chapter 28. Campaign Contributions
� ,,,: :;;,. �_� '-�-- v=, ��_�..+:�� c±�ra ? �d nther Public Grounds
li°k' ---_=- --- _
Administrative Code:
Chapter 4. Office of the City Clerk
Chapter 76. City Electioas — Nominating Petitions and Petirions in Lieu of Filiag Fees
Chapter 77. Elections — Canvassing of Retums and Certi&cations of Resutts
Chapter 87. Depository for pocuments
Chapter 91. Procedure for Public Hearings Regarding Public Nuisances
Chapter 94. Protection of Trade Secret Information
Append'vs Chap. 3. All Public Meetings —Notice Requirements
Minnesota Statutes Chapter I3. Govemment Data Practices Act
Minnesota Rules 1205. Department of Administration - Data Practices
1000 Saint Paul Ciry Council Research
Perfomisnce Audii ofthe City of Saint Paul's Citizen Smice Office 91 a��`e �
City Council Resolution 99-881
Information and Complaint Policies
Chapter I 13. Snow and Ice on Sidewatks
Chapter 163. Abandoned Vehicles
Books / Miseellaneous Documents
Ammon, David N. (1996). Municipal Benchmarks: Assessing Local Performance and
Establishing Community Standards. Sage: Thousand Oaks, CA.
Bryson, John. (1995). Strategic Planning for Public and Non-Pro,fit Organization. Jossey-Bass.
San Francisco, CA.
Malcolm Baldrige Narional Quality Awazd Ptogram. 2000 Criteria for Performance Excellence.
The Urban Institute (1980). Performance Measures: A Guide for Local Elected �cials.
Washington D.C., The Urban Institute.
2000 Saint Pau! Ciry Coumci! Research
ol -� 7
�
Pafosmance Audik ofthe GTy of Saint Paul's C'itzen Service Office
Appendix B: CSO "200Q Strategic Ptanss
Communicate usefiil infomzarion regazding city services to elected offecials and the citizens of
Saint PauL
Strengthen the City's approach in delivering City services.
Ensuring stronger collaborative partnerslups with intemal and e�cternal customers (i.e. community
organizations).
Measuring and reporting citizen satisfaction rate related to requests for service and responses to
complaints.
Phasing in a new computerized complaint system that will be used in City Offices and
Departments.
To provide citizens and City operations with accurate credible, pro-active research and policy
development by:
Idenrifying "real" problem issues in the City.
Clarifying whether we need to re-allocate reso�ces.
Providing accurate, base information to affect poIicy development or modifications,
Pinpointing the nced for system changes, etc.
Ensuring an educational component to our work to encourage professional and personal
development.
Ensuring public information employees within the City stay current.
Increase the frequency and quality of information going to City eraployees.
Solving long tecm communication issues.
Heip with implementation of communication strategies.
_`___'-.--`:_� �^a n..,.,,,*_+fi.,.� �f C'�tv events both downtown aud in the neighborhoods.
' fmm Page 64 of the 2000 Proposed City of SainX Paul Budget
Z000 Saira Paul Ciry Covncil Resetvch
Performance Audit ofthe Ciry of Saint Pwl's Ciazen Service Office 93 Q � _ � �
Appendix C: Excerpt from the "Agreement Between Ramsey
County and the City of Saint Paul for Election Office
ManagemenY'
i. countv Duries
Tiie County will assume all electian duties required by Minnesota Statues to be performed by City
Election staff with exceprions as noted in this Agreement These duties will include:
• Continue efforts to improve customer service in part through the use of random surveys to gauge
voter satisfaction
• Locate and amange for polling piaces that are handicap accessible, wherever possible, and
obtain City Council approval for any changes
• Recruit and train election judges
• Prepaze and maintain the election calendar year
• Handle candidate filings and maintain candidate files
• Supply copies of candidate filing to the city Clerk within twenty - four (24) hours of receipt
• Order ballots, envelopes and other voting supplies
• Monitor delivery of ballots from printer, sort new baliou, prepare test decks
• Administer City absentee ballotmg
• Arrange for public accuracy tests
• Program for elections and test those progams
• Package and de(iver election supplies
• Maintain and store voting equipment
• Provide main office ghone coverage to answer questions whenever polls are open or election
judges are still at the polling locations
• Provide unofficial election resuks at the eleetion office to the media and candidates at least
every half hour after polls close on election night
• Accumu3ate election returns and provide City Council with resuits for their approval
• Store voted ballots and election retums
• Verify signatures on petitions, iniriatives, referzndums and recalls
• Provide an analysis to the City of the election costs for proposed legislation as requested
• If a new voting system is used, the County will inform voters and provide demonstrations as
required by Minnesota Statues section 206.58
2000 Saint Poul Ciry Courscil Research
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� Perfolmance Audit of the Ciry of Saint Paul's Cirizen Service Office
Appendix D: Vacant Buiiding Categories
: Must be
to take
3ing off
List
• Pull stop
order card
and retum to
Nuisance
Buildings
Code
Enforcement
Program
_ 1 2 3
• Pay • Pay outstanding fees • Pay outstanding fees
outstanding
Yees • Code Compliance or • Code Compliance or
Certificate of Cacificate of
• Occupy Occupancy Inspection Occupancy Inspection
Report Report
• Pemaits if
needed
• All necessary work
pertnits
• Code Compliance
Certificate or
Certificate of
Occupancy issued
• Pull stop order card
and return to Nuisance
Buildings Code
Enforcement Program
• $2,000 cash deposit or
Performance Bond
Posted
• All necessary work
pertnits
• Code Compiiance
Cerrificate or Certificate
of Occupancy issued
• Puil stop order card and
retum to Nuisance
Buildings Code
Enforcement Program
- -
2000 Saint Paul Ciry Council Research
Performance AudR of the C5ty oFSaint Paul's �tiun Service Office
Appendix E: Compilation of Recommendations
9i b � ^ ��
Recommendation #I. The Information and Complaint Division should resume providing customer
satisfaction data to the Mayor, City Councit and department and o�ce directors, ar well ar to
other staff in the Citizen Service Office. Other computer systems could be used to prepare the
reports until the AMANDA system is fully operationaL They must also set a high standard for
doing catl-backs, such as a setting a goal of calling back 90 percent of all complainants within
three days.
Recommerrdation #2. The Citizen Service Ofj'ice should prepare an annual repon for the Mayor
mrd City Council clearly showing each depurtment's response times to complaints and inquiries,
as well as customer satisfaction dafa. The data should be delineated by department. They should
create an objective to provide this information at teast anrruatly, if not more ofYen.
Recommendation #3. The City Council should direct Councii Research, the Citizen Service Qffice,
and the Planning and Economic Development Department to conduct a City-wide survey to
ascertain the level of citizen satisfaction with City services and citizen service needs.
Recommendation #4. The CSO should work with other departments, such as the PoZice
Department, LIEP, Fire Prevention, and Public F�orks to create a plan or system to follow so that
complaints are addressed quickly and uniformly. Specific data should be compiled on when a
complaint is received and forwarded to the department, to whom it is fonvarded, when a service is
rendered, and when a resporrse is received. Information on compiaint resolution should be made
part of the frve-day late report.
Recommerrdation #5. The CSO shauld establ "uh specifzc guidelines requzring departments to
submit to the CSO, on a biannuad basis, a Records Retention Schedute. They should also devise
guidelines to ensure departments notify the City Clerk when documents are permanently removed
from City files or disposed of, and these notifications should be maintained by the City Clerk.
Recammerrdation #6. The City Clerk/Records Division should prepare a plan to trcrosition paper
documents to the new document imaging system.
Recommendation #7. The City Clerk/Records Division should prepare a specifzc plan to ensure
fhat Council Proceedings are prepared annually and indexed in a timely fashion. Funds should
not be re-atlocated for other uses if ihey me spec�ed for binding.
Becommendation #8. The Citizen Service Office should take responsibility for educating
departments on what documents need to be provided to the Public Library. Council Research, the
City Council, the Public Library and the Citizen Service Offzce should work together to review the
reguirements of the ordinance to determine whether three paper copies need to be submitted, or if
the number ofpaper copies required could be reduced if an elecdonic copy is provided. Following
this review, an ordinance change should be made if necessary.
Recommendation #9. The City Clerk should devise a more formal system for departments and
other relevant Ciry o,�'icials to notify the Clerk of newly elected and appointed officials who need to
receive the oath of ofJ'ice. The Clerk's budget objective should be modified to indicate it the oath
of office wi11 be administered within a spec�ed amount of time, such as rhirty days.
1000 SainrPaul Ciry Council Research
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� Perfom�ance Audit ofthe Cry of Saint Paul's Citizen Service OtSce
Recommendation #10. The Citizen Service �ce shoutd immediately develop a straregy io inform
all City departments of the requirements and process for trade secret storage.
Recommendation #II. The City CouncB should update the language in Legislative Cnde Chapter 48.05
10 reflecl the current Ci1y departments.
Recommendation #12 , The Mrnketing and Promotions Division should resume production of hrnd
copies of the Resident's Guide and ensure that all residents hcrve access Co the information.
Recommendarion #13. The Administration should prepare, for City Council consideration, an
amendment to the Administraiive Code outlining the duties and powers of the Marketing and
Promotions Division.
Recommendation #14. Code Enforcement managers shouZd clar� for inspectors which
ordinances provide the highest standmd for enforcement.
Recommendation #I5: Code Enforcement, the City �tttorney s Of, j�zce and Council Research should
revise fhe excessive corrsumption portion of Chapter 34 to allow the Ciry to collect fees to cover
costs jrom repeated irrspections a11he same properiy. The Ci1y should assess the fees to the
P�'aP�'h' tctzes.
Recommendalion #16: Inspectors should issue written orders along with mry oral orders to
provide written evidence if the problem persists, cmd to ensure the properry owner or tenant
receives the appeals process ireformation.
Recommendation #17. The City Council should update the language in Chapter 42 and make it the
responsibility of the Director of the Citizen Service Offzce or his or her desigrree. If Chapter 51 is
successfully implemented, the Citizen Service Office should request that Chapter 42 be repealed
from City Code.
Recommeudation #18: The Ciry Council should revise Chapter 45 to include the cost of Code
Enforcement irupections in the abatement fee. This would then be compatible with the concept
behind excess consumption and recovering cosls associated witk enforcement.
Re...^�n!m�dation #19. Code Erforcement should immediately assign an i»spector to ihe Truth In-
Sale ofHousingprogra»z or the City shauld contract out the comp[iance inspection,. :?za !'i:y
- - -- -i-�_... r _ ,,,..;,,.,r;�.o rmm�laints.
SITGT[tu�'fiiG�i"ufi::.....;:.'r.ii::;a,:�...e .:,,__.' ___' '
Recommcrndatian #20. The Ciry Council should allacate funds directly to Code Enforcement ro
eruure their participation in the FIEAT program if it wishes to continue the program in its current
form. If the Ci1y Council does not wanl Code Enforcemenr i�svoZved in 1he HE.4T program, it
shauld specify that Code Enforcement not participate in the program.
Recommendation #21. Cade Enforcemerrt should advise the Planning Commission to change
Comprehensive Plan policy 4.3b iffines m�e an ineffective a less desirab[e way to gain compliance
than is interacting with property owners through the standard violations notice process_
Kecommendation #22_ Code Enforcement, the City Artomey s Office, Fire Prevention, LIEP and
2000 Saint Paul City Council Research
Pecfocmance Audit of the City of Saint Paarl's Citizen Service OfSce 97 �� ^��
Housing Court should do an evatuation of the services provided and the Zevel of success of the
housing coun program and determine areas for improvement or change.
Recommendarion #23. Code Enforcement should standmd'ue the information given out to ensure
that everyone receives the necessary information. Phis information couZd also be given out to
entire neighborhoods that are the focus of Code E'nforcement sweeps. Thu information should
also be made available on Code Enforcement's web site_
Recommerrdation #24. Code Enforcement should be more irrvolved with Public Works in the
selectian o}"projects such as alley paving and plowing, curb and gutter installatiorr, street lighting
upgrade, boulevard and sidewalk maintenance and street surfacing. If Code Enforcement were to
assist with the selection, fhey may be able to tcnget resaurces to neighborhoods where City
irevestment woutd greatty impact the neighborhood and increase the value of the properties. While
in many instances these projects deal with quality of life concerns, rather than safety concerns,
they serve to improve and beautify neighborhoods and increase people's serrse of security.
Recommendation #25. Code Enforcement should provide statistics that indicate which arear of the
City inspectors spend most of their time and what the common problems in the area are. This
couZd provide data which would help decuion-makers determine where resources should be
directed. This information could be used City-wide by various departments.
Recommendation #26. The Planning Commission shoudd remove, , from the Comprehensive Plan,
policy 4.Sc which promotes the placement of vulnerable properties under the management of a
community based organization.
Recommendation #27. Code Enforcement and the Planning and Economic Development
Deparhnent should reach agreement on what information about availqble resources for
rehabilitation is appropriate to provide to property owners and tenants.
Recommendation #28. Code Enforcement should develop a plan fer the administration of the
Rental Registration program. It must address potenfial influences on the program, such as special
initiatives, and how to make the program successful even if staff resources are limited. Code
Enforcement also needs to plan for implementation of each provision of the ordirrance to ensure
they are enforceable. All stafJ"responsible for Rental Regisfration skould be involved in the
creatfon of the plan as well as the City Attorney's O�ce and other relevant stakehotders. As with
arry new program, other staff within the CSO should be educated as to the specifics of the program
in order to prevent confusion over enforcement arrd administration and to ensure the information
provided regarding the program is consistenf.
Recommendation #29. Code Enforcement must implement the AMANDA system as quickly as
possible for Rental Registration. This wauld also allow other deparhnents utilizing AMANDA easy
access to the registration dafa.
Recommendation #30: The CSO's Information and Complaint Divuion should provide cnmplaint
reports and complaint resolution feedback reports to the Yacant Bufldings unit. This information
should be used to assist the Yacant Buildings Unit in determining how well the case management
system is working.
2000 Scint Paul Ciry CovrsciZ Research
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98
Perfom�m�ce Audit ofthe Ciry of Saint Paul's CNUn Service Of&ce
Recommendation #31: The Yacant Buildings Unit should develop more meaningJul budget
objectives which are more than just reiterations of City Legislative Code. The unil should review
bvrh their ongoing and annual budger objectives. New objectives should set goals for the unit
which go beyond what is required by Code and are pertinent to special initiatives to be taken in the
coming year. The lack of ineaningful budget objectives is an issue for most of the CSO's budget
areas.
Recommendation #32. If PP2000 is to continue, Code Enforcement should articulate criteria for
inclusion in the PP2000 program. The criteria should be based in pan on quantiJatave data such
as complaints about the address, the number of citatiorrs issued to the properry, und police calls fo
the property.
Recommendation #33. Code Enforcement should immediately compile mrd analyze data relating
to the PP2000 program to determine its effectiveness and worthiness.
Recommendation #34. Code Enforcement should develop a program to address problem
properlies which are not included in the PP2000 program, such as owner-occupied and other
rental properties not owned by the subjects of the PP2000 program.
ltecommendation #35. Code Enforcement should perform a systemaYic evaluation of the Dayton's
Bluff Initiative This would iavolve collecting more comprehensive data on the Dayton's Bluff
Initiative to determine iYS effectiveness, particularly if it is to be eztended or used as a model in
ofher neighborhoods.
Recommendation #36: Code Enforcement should collect data to determine the effectiveness of
sweeps. If they are found efJ`'ecrive, the Ciry Council shauld provide special funding to conduct
them in addition to routine Code Enforcemenl activities.
Kecommendation #37. The CSO should create a true strategic plan with outcomes, time lines and
action steps. It should irrvolve all staff and representative stakeholders and customers in izr
development, and make sure that all staff m�e made aware of the plans and how they corrtribute to
achieving outcomes. e111 divisions within the CSO should have plans relating specifically to their
work which help them manage workloads and expectatiorrs, and to anticipate potential changes.
The need for planning irr Code Enforcement is particularly apparent. Planr would allow fhem to
beirer mmrrge,t�w�rR �sseg::,�:�:�. 77se CSO should discuss the plans with the Council and
Mayor to garner their input.
— -- --
------ --- -------------
--
ecommendaiion #38. The CSO should engage in planning prior to implementation of the -—
e1M�INDtt system to ensure the system is functional for staff, and to assist them in managing the
iraining and workloads during this period.
Recommendation #39. TOze Marketing and Promotions Division should solicit Council input
annually during Marketing's planning process for the upcoming year.
Recommendation #40. The CSO should create a plcm far the City's website development. This
would arsist the Office in guiding oiher departments through the development of their own web
pages and clearly srate the time frame and expectations for development.
2000 Saint Paul Ciry Council Rese[vch
Perfoxmance Audit of t}�e Ciry of Saint Paul's Citizm Secvice Office
� o � -�'�
Recommendation #41. The CSO should revise its mission statement and irrvolve a11 CSO staff in its
devetopmenz This could be done in conjunction with the development ofan Of,J�zce-wide strategic
plan. See also recommendation #37 in the Planning section.
Recommendation #42. The CSO Director should schedule monthty all-staff ineetings for
dissemination of information between divisions and staJf recognition. Unit-wide meetings should
also be held on a regular basis.
Recommendation #43. The CSO should estabtish an employee recognition program and make
recognition an important part of daily work Employees should be included in the formation of the
program to determine what types of recognition are most meaningful to stafj.
Recommendation #44. Senior leaders should formalize the vatues of the Of,�zce and integrate them
into formal customer service standards. Staff should be directly irrvolved in this process.
Recommendution #45. CSO leadership should work with employees to devedop a strategy to
mitigate the "us vs. them" mentality that occurs between staff. The Offtce should work to create a
sense of employee ownership of the CSO.
Recommendation #46: Consistent with recommendation #41, the Citizen Service Ofjice shauld
undertake an effort to redefine their mission, particularly because the missions of Code
Enforcement artd the rest of the CSO appear inconsistent and possibly incompatible. The Office
needs to do a better job af integrating these two functioru. If the missions cannot be aligne,d,
serious consideration should be given to whether Code Errforcement shoutd be docated elsewhere
in the City s governn:ental structure.
Recommendation #47: As described in recommendation #37, the CSO musf pursue strategic and
long-term planning in order to be tess vutnera8le to political in}luence and less apt to have its
work driven by crues.
Recommendation #48: Senior leaders of the CSO should create a process by which employees can
be more directly involved in decisions made about their work
Recommendation #49: The CSO should develap a plan to house the entire Code Enforcement staff
in nne location. Communication and the morale of clerical sfaff would improve. The files
downtown shoutd be moved to where irrspectors are located because of the inefficiencies caused by
the current arrangement.
Recommendation #50: Code Enforcement should review artd revise its employee manual. A work
group representing senior deaders, inspectors, and clerical staff should be responsible for this
efforz A revised manual would help the division ensure cousistent enforcement and codify existing
performcmce ezpectatiorrs for Code Enforcement employees.
Recommendation #51: The CSD should reintroduce performance evaluations. To this end, the
CSO should undertake an effort which i�rvolves all staff'to develop an appropriate evaluation
process and forms far each of the functioru in the Office. While the CSO may wish to continue to
use the Human Resources format, it may be in their irtterest to customize the form to rejlect the
2000 Saim Paal Ciry CawrciT Reseasch
ol-� 7
�oo
Perfonnance Audit ofthe Ciri ofSaint Paut's Cifizen Service O$ce
work done by the dzfferent functions within the O�ce. After the new process is developed, CSO
leaders should begin conducting performance evaluations immediately.
Recommendarian #S2: CSO senior leaders should determine why some staff are less inclined to
attend training. Particular anention should be paid to members of the clerical staff and less
senior code enforcement inspectors who reportedly are less likely ro take advanlage of these
opportunities. Senior leaders should corrsider providing an incentive for staff to take advantage of
training by making this an importanr factor in evaluating an employee's performance. Staff should
also be encouraged to pursue training that would advance them professionally and be rewarded
for their successful pursuit of career-track training.
Recommendation #53: The CSO should convert to AMANDA as quickly as possible. The Ofj'ice
har planned to adopt AMANDA afler LIEP has had more experience with the system in the hope
the Office could learn from LIEP's experience. However, we believe this would be a misrake. As
our findings demonstrate, this Office collects very Zittle meaning ful informaiion about its work and
performs ulmost no dcrta analysis. As an explanation for this fact, almost everyone has blamed the
FX/, system for this problem. Moreover, there is every indication that LIEP hac been successful in
implementing EIMtIND�t. Therefore, the CSO should convert Zt's databases to the AM�fNDff
system as soon as possible.
Recommendation #54: T7re CSO sPrould hire an employee whose primary duty it is to perform
research and analysis. There rne a rrumber of ways to implement this recommendation. An
employee could be hired to serve all four divisions of the CSO. Alrernarively, Jhe Code
Enforcement or Information caad Complaint Division could hire someone who splits their duties
between research, analysis and other work actfvities in the �ce. Another consideration might be
thcrt, consistent with the G�Qice's 2000 strategic plaru, this staffperson cauld potenrially do daza
analysis for other City Dep�ntments and Offices in an effort to improve services and programs
City-wide.
Recommendution #SS: The CSO should immediarely begin dafa colleclion and analysu for special
initiatives which it is currently undertaking, such as PP2000 and the Dayton's Bluff initiative.
Even ifEXL or Freelaniz systems are fnadequate to coI[ect data and perform analysis, the OfJice
could do meaningful analysis on simple spreadsheeu and statistical programs, such as Lotus I-2-3
and Slatisiical Program for the Social Sciences (SPSS).
_ Recommendation #56: The CSO should specify data colleciion, analysrs and evaluation siraiegies
_— ' ' : �..-_ -r__ �z.,,,.�a o,.o,.;fi, thp on�rls ofthe pro
rai the p�an7ora�y ncrn�w�u�.�.s.—rr:;.;-��� :�:��� t .�:.� ----r °---- �
-- — •w - -=— -
how they will measure whether these goals have been achieved and wha will do the measuremersf. -- -
Recommendation #57. The CSO should engage in a more formal improvement process that
includes plannin� implementation mzd evaluation of the improvement effons. By engaging in arr
intemal process to identz,fy' improvements, planning the implementation of the improvements, arrd
evaluating their impact, they will move away from the reactive mode to a more proactive
e�rvironment The new hire Jo perform dafa analysis, suggested in the Informalion and Analysis
recommendations, should be heavily irrvolved in this efJ'ort.
Recommendation #58. The CSO should identify, rrs part of it slrategic planning efforts, who its
cuslomers are and put processes in place to identify their needs and satisfaction with the
2000 Saint Paul Ciry Council Research
Perfo�m�ce Audit of rhe Cry of Samt Pwl's Cid�en Se�vice Office
ioi bl�'l
information and services provided by the Of�tce. This could be accomplished by initiating a formal
annual survey of its customers once they have been identifzed by staJJ'and management.
Recommend¢tion #59. The CSO should produce a written set of customer standards and circulate
them to all stafj: Based on the fact that employees currenrly follow an infornzal set of standards
Based on organ"uational values this should not be difficult. This will clarify customer ezpectations
for a11 stafJ'and aid in the training of new sraff.
Recommendation #60. Code Enforcement should provide customer service training ro its
irupectors and clerical staff in order to provide a more cottsistent customer focused attitude in the
course of carrying out their jobs. This would be in line with the vision from #he Mayor's Office
and the Director.
Recommendation #61. The CSO should be a leuder in developing a more useful, functional City
website. Some suggestions to reach this goal are:
• make permit and complaint forms earily accessible from the CSO's web page;
• standmd'ue the City website so all City department pages have a uniform, recognizable Zook;
• develop a stnndnrd complaintform; and
• create an auto-reply function for inquiries.
Recommendation #62: The Information and Complaint Division should generate customer
satisfaction reports and distribute them to all slaff in the CSO, as well as other departments. Over
SO percerrt of complaints received by the Information arrd Complaint Division are Code
Enforcement relatetl. This type offeedback would be iizvaluable for Code Enforcement to track
how it well it is doing. Moreover, the CSO should also provide these reports to relevant frontline
staff of other City depm�hnents and offices, such as Public Worlrs, LIEP and Parks and Recreation,
who also receive a large share of these complaints. The CSO should also consider posting these
reports on the City's web site so residents and City workers can track how well the Cify is doing to
resolve problems identifzed by citizens.
Recommendation #63: The CSO should include, in its planning for the implementation of the
fiMfINDR computer system, a discussion of what resulfs it wishes to tracic It should determine
whether these results can be adequately tracked by the new systems. The consideration of the
results suggested by staff'in 1he performance audit inlerviews are an ezcellent siarting point for
this discussion.
Recommendation #64: The CSO should compare its results to other similar organizations.
Recommendation #65: Senior leadership in the CSO should elearly detail goals for eac& work
activity in CSO through organizational vision and strategic planning efjorts. Staffshould be
informed about these goals cmd have an understanding of how their work is connected to the
achievemeni of the goals.
2000 Saint Pmel Ciry Cormcil Ruearch
b>-b7
t02 Petfoimance Audit of t6e Ciry of Saint Paul's Citizen Service Dffice
Appendix F: CSO Performance Audit Survey
Answer the qoesfions 6y ciroling the number of the
response category which best answers the question or describes your opinion.
AN responses are anonymous. Thank you fo� your cooperation.
1. Plaus in my work area are mada..
4 At least twice a year
3 Annually
2 Every 3 years or more
1 Never
0 Don't lmow
* If never, go to quesrion 6,
2. The duratioos of the plaus ia CSO
are... (Circle all that apply)
3 More ffian three yeais (long term
Pl�)
2'I'hree years or less (short term plans)
1 Don't lmow
3. CSO makes the followiag types of
plans... (Circle all Wat apply)
3 Issue-sp�ific plans
2 Geneiat organizationai plans
1 Other
4. I regulady participate in CSO's
planning efforts
6 S�as�Y aS'ee
4 Agree
2 Disagee
1 Strongly IJisagree
6. The Mayor effectively couveys a clear
direction for the future of CSO
5 Strongly agree
4 Agree
3 Neither Agree nor Disagree
2 Disagee
I Sirongly Disagree
7. The CSO Dirertor conveys a clear
vision for the future of CSO
5 Strongly agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongiy Disagree
8. The CSO Director and managers
effectively convey the core values of the
orgauizalion
5 Strongly agree
4 Agree
3 Neither Agree nor Disagree
2 T}isagree
1 Strongly Disagree
9.
5. CSO plans are implemented frequently
5 Strongly agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Sh�ongly Disagree
mission
convey an organizational
5 Strongly agree
4 Agree
3 ATeither Agree nor Disagree
2 Disagree
1 Strongly Disagree
1000 Saint Paul City Counci! Research
Petfoimance Audit of the Gty ofSunt Paul's Ci6zen Service Office
10. Senior management is visible aad
accessible to empIoyees
5 Suongly Agree
4 Agree
3 Neither Agee nor Disagree
2 Disagree
I Strongly Disagree
11. The communicalion withiu CSO is
effective
5 StronglyAgree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Suongly Disagree
12. The Director and maaagers effecrively
recognize staff rnntributions
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
13. The Director aad managers eucourage
participation in pmfessional
organizations
5 Strongiy Agree
4 Agree
3 Neither Agree nor I}isagree
2 Disagree
1 Strongly Disagree
14. I have a good understanding of
performance ezpectafions in my area
of work
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
2 Strongly Disagree
303 01— r
15. The current employee evaleation
process is useful to emptoyees for
itnproving t6eir performance
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Ilisagree
16. CSO senior leaders, supervisors and
employees treat each other with
respect regardless at their race,
ethnicity, class, gender, age, national
origin, sexual orientation or p6ysical
ability
5 Strongiy Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
17. In CSO, labor and management work
wetl together
5 Suongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
18. My job makes good nse of my skilts
and abilities
5 Suangly Agree
4 Agee
3 Neittier Agree nor Disagee
2 Disagree
1 Strongly Disagree
3000 Snint Paazl City Cound! Rerearch
�1 7
i� Pafom�ance Audit ofthe City of Sai¢t Pau!'s Cifiun Se�vice Office
19. My work gives me a fee{ing of personal
accomplishment
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
20. Opportunities ezist for me to
contribute to t6e decisions made about
operalloas and procedures in CSO
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
I Strongly Disagree
21. I receive the training necessary to
perform my job effeciively
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
22. 2Ky individual perFormance is
evaluated...
4 Twice a year
3 Annuaily
2 Every 3 ye�s ar �„^re
1 Never
Z3. The current employee evaluation is
nseful in 6elQing me improve my
performance
5 Strangly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
24. CSO collecffs data to effectively
support its activities
5 Strongly Agree
4 Agee
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
25. The collected data is useful and
relevant to fhe work performed in
CSO
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagee
1 Strongly Disagree
26. CSO uses data to evaluate its activities
and to improve its performance
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
27. The CSO's information systems
cnrrenUy meet my needs
5 Strongly Agree
4 Agree
3 Neither AgrPe nor Disagree
9 Te.__�—__ ._ —
1 Strongiy Disagree
28. Activi6es in CSO are formally
evaluated...
4 Twice a year
3 Annually
2 Every 3 yeazs or more
1 Never
0 Don't know
* if never, go to question 30
2000 Saira Paul City Cour`cil Resemch
ar-��
Perfomcarrce Audit af fie City of Sainc Pwl's �tizm Secvice O&ce
29. CSO practiees are regutarly chauged
based on the results of ttee evaluations
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
30. CSO frequently changes the way work
is done to improve performaace
5 Strongly Agree
4 Agree
3 Neithet Agee nor Disagree
2 Disagree
I Strongly Disagree
31. Administrative practices (such as
forms and reporting proeedures)
within CSO are reviewed frequently
for improvement
5 Strongly Agree
4 Agee
3 Neither Agree nor Disagc�
2 Disagree
1 Strongly Disagree
32. The performance of CSO's vendors
(providers of goods $nd contracted
serveces) is regularly eva]uated
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
i Strongly Disagree
33. I know wLo the customers of CSO are
5 Strongly Agree
4 Agee
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
105
34. List who you consider to be the
customers of CSO
5
4
3
2
1
35. CSO staff frequentiy monitor for
chaages in castomer NEEDS
5 Strongly Agree
4 Agee
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
36. The CSO is responsive to c6anges in
customer NEEDS
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
I Strongly I3isagree
37. CSO staff frequenNy monitor for
chaages in customerSATISFACT70N
5 Suongly Agree
4 Agrce
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
38. CSO is responsive to changes in
customer SAT7SFACTION
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
I Stroagly Disagree
2000 Saint Paul Ciry Comrcil Rcxarch
01-� 7
1 � PerFotmance Audit of ihe Crty of Sa3nt Paul's Citizen Service Office
39. CSO has customer service standards
for my area of work
S Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
i Strongiy Disagree
40. CSO's customer service staadards are
written
5 Strongly Agree
4 Agree
3 Neither Agee nor Disagree
2 Disagree
1 Strongly Disagree
41. I anderstand CSO's customer service
standards
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
42. StaB'fotlow established customer
service standards
5
4
3
2
i
Strongiy Agree
��
Neither Agree nor Disagree
Di ee
44. CSQ cnmpares its results to thase of
similar organizations
5 Strongiy Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
45. CSO often achieves its desired goals
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
i Strongly Disagree
41. How do you know goals have been
achieved? (Please egplain�
DEMOGRAPHIC QUESTIONS
How long have you been employed by
CSd?
5 less than one year
4 1 to 5 yeais
3 5 to 10 years
2 10 to 20 yeazs
1 20 or t*_:� y2a�
� --
Strongly Disagree �:,,. _. . _ - ---_---- - --- - _ _
___ _ ------ `�` �.`;:'�; �� emproyee are you?
-- — — --
-- " 43. CSO regularly measures the results of
its activities
5 Suongly Agree
4 Agree
3 Neither Agee nor Disagree
2 Disagree
1 Strongly Disagree
3 fuil time
2 part time
I intem
Wh�t area do yon work in? (Circle all that
apply)
4 City ClerklR�ords
3 Information & Complaints
2 Code Enforcement
i Marketing & Promotions
1000 Sain[ Paul Ciry Covncil Resemch
Council File # p�� G7
OR(GINAL
Green Sheet # � 11j)�b
RESOLUTION
Presented
Referred To
Committee Date
RESOLUTIONAccepting the Council Researc& Perfor�nance Audit ofthe Saint Paul Cifizen Service O�ce
1 WHEREAS, the Saint Paul City Council has directed the City Council Investigarion and Reseazch Center to conduct
2 performance audits of City departments to examine their policy compliance and determine the level of efficiency and
3 effectiveness of City operations; now, therefore, be it
4 RESOLVED, that the Saint Paul City Council accepts the report titled "Performance Audit of the City of Saint Paul's
5 Citizen Service Office," and requests the director of the Citizen Service Office to provide to the City Council a response
6 to the performance audit findings at the February 7, 2001 Council meeting.
7
Requested by Deparnnent of:
By: t� \`��-� ,���..��
Approved by Mayor: Date �ili( c �j � y� l
B _
OF SAINT PAUL, MINNESOTA
a�
�
Form Approved by City Attorney
�
Approved by Mayor for Submission to Council
Adopted by Council: Date � �
Adoption Certified by Council Se tary
b�-`'1
����
GREEN SHEET No � ��7�p
�
ri•'-`;a]
�_""ii�
TOTAL # OF SIGNATURE PAGES
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PLANNING COMMISSION
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CNIL SERVICE CAMMISSION
RSONAL SERViCE CONTRACTS MUS7 ANSWER 7HE FOLLOWIN6 QUE57ION5:
H8511116 P�11116�RlMOfk¢d UMM 8 COId18d(Of �II6 d2�3ih11Plll?
vES NO
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VES NO
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COSirttEVENUEBtJD6ElEO(qRCtEONEJ YES HO
ACTIVT'NUL�ER
Performance Audit of
Saint Paul's
Citizen Service Office
January 2001
� C tTY �F
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O ` o �7
l`�����C'�� 'V
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�
� 186' �
PERFORMANCE AUDIT PURPOSE
Saint Paul City Council
Council Research Report
0 � '`�
The Saint,Paul City Council established the Performance Audit Program to help fulfill two major legislative
oversight responsibilities:
■ Ensure City practices are consistent with City policies; and
■ Assess the degree of efficiency and effectiveness with which City policies are being carried out.
This performance audit examines the activities of the Citizen Service Office (CSO), which includes four
divisions: Information and Complaint, Marketing and Promotions, City Clerk/Records, and Code Enforcement
Programs.
CITY POLICIES
In its effort to identify policy statements relating to CSO activities, Council Research reviewed City Ordinances,
City Council resolutions and 2000 Budget Performance Plans. The City's Housing Plan Chapter of the
Comprehensive Plan and the 2000 Housing Action Plan were also reviewed.
EFFICIENCY AND EFFECTIVENESS
The City Counci) wants to know if the Citizen Service Office is operating at an optimal level of quality and, if
not, what can be done to remedy any deficiencies preventing it from achieving the level of exoellence expected.
Information needed to review the CSO was obtained through document-review, site visits, interviews and an
Offtce-wide survey. The seven criteria used to assess organizational development and to identify quality
organizations are: planning, leadership, training and development, information and analysis, processes for
improvement, customer focus and results.
MAJOR FINDINGS - POLICY COMPLIANCE
■ The CSO is generally in compliance with relevant City policies, with the exception of some Budget
objectives.
■ The CSO is in compliance with records retention requirements, but the CSO should develop more formalized
administrative practices to increase efficiency and ensure compiiance by other City departments.
■ We found no enabling legislation in City Code for the Marketing and Promotions Division.
■ The CSO should develop formal administrative practices to ensure compliance with trade secret storage
requirements.
MAJOR FINDINGS - QUALITY ASSESSMENT
■ The CSO prepares very few plans with the exception of the Ivlarketing and Promotions Division.
More Findings -�
�.ti
■ Staff feel the values of the organization, though informal, are exemplified by the Office's management staff.
■ Communication at all levels and between all divisions within the Office is relatively poor.
■ Staff are encouraged to attend training and training resources are readily available.
■ The work environment of Code 6nforcement has reportedly improved since they were moved to the CSO.
However, some problems still exist with staff being placed in different locations and the fact that the files are
located downtown, while most Code Enforcement inspectors are located at the Police Department's Eastern
Patrol District building.
■ The Citizen $ervice Office collects little data and performs virtually no analysis or results measurement.
■ Staff are very focused on providing goqd customer service. However, they do very little assessment of
customer needs and satisfactiom.
EFFICIENCY AND EFFECTIVENESS RATINGS
Council Research developed a summary rating system we believe conveys the essence of our findings concerning
the City's Citizen Service Office and the seven efficiency and effectiveness criteria used in the assessment. Each
area assessment was assigned a"star" rating based on how fully developed and practiced a criterion was
throughoutthe organization.
Key to Efficiency and Effectiveness Rakings
**** � Criteria fully developed and practiced throughout the organization.
*,t * � Criteria well developed and practieed throughout most of the organization
** —i CriYeria present and practiced in some parts of tha organization. ,
* � Criteria very rarely present or practiced in the organization.
Citizen Service Office
* Planning
*YZ Leadership
** Training and Development
*'/z ' Information and Analysis
RECOMMENDATIONS
and Effectiveness
* Improvement Processes
**%: Customer Focus
*'/a Resulks
Thirty-six recommendations are made concerning policy compliance arid twenty-nine recommendations are
offered conceming the'efficiency and effectiveness criteria. The most significant .recommendations pertain [o:
■ creating a useful strategic plan for the CSO;
■ improving communication and employee input;
■ measunng results;
■ measuring customer satisfaction and naeds; and
■ developittg meaningful budget objectives.
FOR QUESTIONS, COMMENTS OR A COPY OF THE REPORT
PLEASE CONTACT
Geny Strathman, Council Research Director
at
(651) 266-8575 or crry.strathmail(c�stpaul �ov
D l-��
CITY COUNCIL RESEARCH REPORT
Performance Audit of
The City of Saint Paul's
Citizen Service Office
� �
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Saint Paul City Council
Council Investigation and Research Center
Saint Paul, Minnesota
��,�n
,
Saint Paul City Council
City Council Investigation &
Research Center
Saint Paul, Minnesota 55102
651.266.8560
http:/1www.ci.stpau I. mn. us/council/circ.html
Performance Audit of
The City of Saint Paul's
Citizen Service Office
January 2001
Director
Gerry Strathman
Policy Analysts
Jennifer Dunn
David Godfrey
Kenneth L. Smith
Questions?
If you have questions regarding this
report please contact
Gerry Strathman at
651.266.8575 or
gerrv. strathman Ca�ci.stpa ul. mn. us
City Council Research Report
TABLE OF CONTENTS
6l-��
Performance Audit of
The City of Saint Paul's
Citizen Service Office
INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . 1 Special Prograzns & Units of Code
Enforcement .................... 39
CITIZEN SERVICE OFFICE OVERVIEW .... 4 Rental Registration Program ..... 39
Vacant Buildings Unit . . . . . . . . . 40
POLICY ALIGNMENT Special Initiatives . . . . . . . . . . . . . . . . . . . 43
Information & Complaint Division . . . . . . . . 5 PP2000 . . . . . . . . . . . . . . . . . . . . . . . . 43
Objectives of the Ci6zen Service Program . 6 Daytods Bluff Initiative ........... 44
Common Complaints . . . . . . . . . . . . . . . . . 7 Sweep/Surveys . . . . . . . . . . . . . . . . . . 45
Snow and Ice Removal . . . . . . . . . . . . . 8
Abandoned Vehicles . . . . . . . . . . . . . . . 8
City Clerk/Records Division . . . . . . . . . . . . . 10
Records Retention . . . . . . . . . . . . . . . . . . . 10
Documents Maintained by the CSO ..... 12
Documents to the Public Library . . . . . . . . 14
Elections .......................... 15
Initiative, Referendum and Recall . . . . . . . 16
Abandoned Property . . . . . . . . . . . . . . . . . 16
Oath of Office and Bonds for
City Officials . . . . . . . . . . . . . . . . . . . 17
Peritions Regazding Public Nuisances .... 18
Trade Secret Information . . . . . . . . . . . . . 18
Public Information Meetings . . . . . . . . . . . 20
Campaign Contributions . . . . . . . . . . . . . . 20
Condominium Conversion Notices . . . . . . 21
Marketing & Promorions Division . . . . . . . . 22
Mazketing and Promotions Policies ...... 22
ORGANIZATIONAL QUALITY
ASSESSMENT ....................... 47
Planning ............................. 50
Leadership ........................... 54
Training & Development . . . . . . . . . . . . . . . . . 59
Information & Analysis . . . . . . . . . . . . . . . . . . 65
Improvement Processes . . . . . . . . . . . . . . . . . 70
Customer Focus . . . . . . . . . . . . . . . . . . . . . . . 74
R esults ..............................79
PERFORMANCE MEASURES . . . . . . . . . . . . . 84
CONCLUSION .......................... 87
APPENDIX A: Resources . . . . . . . . . . . . . . . . . . 90
Code Enforcement Division . . . . . . . . . . . . . 24
Code Enforcement Organizational Chart .. 26
Overlapping Interests of Code Enforcement &
Other Departrnents . . . . . . . . . . . . . . . 27
Code Enforcement Objectives . . . . . . . . . . 28
Minimum Property Maintenance Standards
& Excessive Consumption Fees . . . . . . . . 30
Certain Nuisance Dwellings . . . . . . . . . . . 32
Nuisance Abatement . . . . . . . . . . . . . . . . . 33
Truth in Sale of Housing . . . . . . . . . . . . . . 33
Housing Plan Chapter of the Saint Paul
Comprehensive Plan . . . . . . . . . . . . . . 34
Housing Action Plan 2000 . . . . . . . . . . . . 38
APPENDIX B: CSO "2000 Strategic Plans" .... 92
APPENDIX C: Excecpt from the "Agreement
Between Ramsey County and the City of Saint
Paul for Election Office ManagemenY' ...... 93
APPENDIX D: Vacant Building Categories ... 94
APPENDIX E: Compilation of
Recommendations ........ ... .... .... . 95
APPENDIX F:
CSO Performance Audit Survey . . . . . . . . . 102
o!-��
Pedortnance Audit of the Ciry of Saint PauPS Citizen $ervice O�ce
INTRODUCTION
The City Councii, as the goveming body of the City of Saint Paul, ls responsible for establishing
City policies and ensuring that City practices aze consistent with these policies. As the body
responsible for approving the City Budget and authorizing the ta�c levy, the Council must also
assess the efficiency and effectiveness of City operations. Therefore, the City Council
established the Performance Audit Program in the fall of 1996 to help it fulfili these legislative
oversight and budgetary responsibilities and directed Council Research to conduct performance
audits of City operations. Performance audits analyze the consistency of departmental practices
with City policies, as well as provide insight into how policy directives aze implemented. The
performance audit also examines whether an organization's practices aze efficient and reflective
of those used by high-performing organizations.
SCOPE OF PERFORMANCE AUDIT
This audit is an examination of the policy compliance, efficiency and effectiveness of the Citizen
Service Office (CSO). The Office is composed of four divisions: Code Enforcement Programs;
Marketing and Promotions; Information and Complaint; and City Clerk/Kecords.
Poticy Compliance
The City Council establishes policies to govem the operations of all City activities including the
divisions of the Citizen Service Office. While there are many general City policies which affect
all City activities, this report addresses only policies which apply specifically to the functions of
the CSO. In order to determine the extent to which CSO activities aze consistent with City
policies, it is necessary to identify policies the City Council has established regarding their
functions. To this end, we have reviewed CiTy Ordinances, City Council Resolutions, the
Housing Plan Chapter of the City's Comprehensive Plan, the Housing Action Plan 2000, and the
2000 Budget Activity Performance Plans to isolate any policies adopted by the City Council as
part of the annual budget procesa The first section of this report identifies City policies related
to the Citizen Service Office and assesses the extent to which actual practices are consistent with
CiTy policies. Where discrepancies aze found, the reason offered for these differences will be
provided along with recommendations to bring policies and practices into alignment. These
recommendations may suggest changes in Office practices, City policies or both.
City Ordinances and Council Resolutions
We have searched the City Charter, the Legislative and Administrative Codes, and City Council
Resolutions for policies pertaining directly to activities of the CSO. The City's Administrative
Code is the compilation of City Otdinances which pertains to how City govemment is structured
and should operate. The Legislative Code is the wmpilation of ordinances which regulates
citizens and property owners of the City. The Code is usually explicit and leaves little room for
administrative discretion concerning the execution of ordinances. The Council would view
2000 Samt Pau1 Crty Counci! Research
�`-� �
2 Perfortn Audi[ of ffie City of Saint Paul's Citiien Serv�ce Office
failure to comply with the City Code to be a serious matter. Council resolutions aze forma]
expressions of opinion, intent or will that, if passed by the Council and approved by the Mayor,
become City policy. The sections of this report which focus on City Ordinances and Resolutions
will identify any differences between policies and pracrices and offer recommendations to resolve
inconsistencies.
Comprehensive Plan and Kousing Action P[an 2000
The City of Saint Paul maintains a Comprehensive Plan that defines the City's plan for most
City services. The chapters of the Comprehensive Plan are created through a careful and usually
lengthy process invoiving many parties and interest groups. The most rec;ent version of the
Housing Plan Chapter of the Comprehensive Plan was formally adopted by the City Council in
Mazch, 1999. It stands as a written statement of the City Council's policy expectations for
housing in Saini Paul. The Housing Action Plan 2000 is an implementarion plan for action to be
taken during 2000 to implement the policies in the Housing Plan and the Saint Paul-Ramsey
County Five-Year Low Income Housing and Homeless Services Report and Plan.
Since the plans aze not explicit policy directives, some differences are eacpected between the
Plans and actual activiries. Eiowever, such differences should be periodically resolved by either
changes in practice or revisions of the Comprehensive Plan or Housing Action Plan. This report
will idenrify the differences between policies, as stated in the Comprehensive Plan and Housing
Action Plan, and current practices in the CSO and offer recommendations to resolve any
inconsistencies.
Budget Performance Plan
Each year, as part of the City budget process, the Citizen Service Office presents Activity
Performance Plans for each of its divisions and its "Strategic Plans°' to the City Council for
approval as part of its Office budget. These "Strategic Plans" identify both the ongoing and
annual objectives of each budget activity. The City Council then adopts these objectives as part
of its adopYion of the annual City budget, and, as such, these objectives represent City policies.
While the Council understands that objectives set as part of the budget process may be ambirious
and are sometimes thwarted by unforseen developments, the City budget is an official City
policy document and the CSO is responsible for operating in conformance with these adopted
poticy statements. The sections of this report which focus on budget performance plans will
identify differences between policies and practices and provide the division's explanations of
these differences. Recommendations will also be offered to minimize such differences in the
future.
Efficiency and Effectiveness
The Ciry Council is very interested in the value received by citizens for money eJCpended.
Taxpayers rightly expect that money provided for the Ci6zen Service Office will be spent to
�These "Strategic Plans" do not meet what most eacperts in public management define as a strategic plan. This
discrepancy will be discussed further throughout the audit.
2000 Saint Paul City Coumcil Research
Perfom�ance Audit of fie Ciry of Saint Paul's Cipzen Service Office
oi-�7
3
achieve the best result with the least expenditure ofpublic funds. The efficiency and
effectiveness of govemment operations can be assessed in many ways. One common approach is
for auditors to examine an organization at a micro-levei to try to determine if the organization is
following sound procurement practices, properly protecting its resources, and complying with the
requirements of laws and regu]ations. This micrwlevel approach to auditing is c3osely related to
financial auditing and is often conducted by accountants who spend a great deal of time and
effort examining the inner workings of the organization. While we accept there aze situations
where this type of micro-level auditing is appropriate, such as when fraud is suspected, we
believe a higher level audit is most appropriate here. The City Council is less concerned with the
minutia of daily operations and more concemed with lmowing if this is a top-quality
organization. If not, the Council is interested in knowing what can be done to remedy any
deficiencies preventing them from achieving the level of excellence expected.
The efficiency and effectiveness of the C50 are evaluated using an Organizational Quality
Assessment. While there aze several methods to evaluate effectiveness and efficiency, our
approach is based on work done by the organizers of the Malcolm Baldrige National Quality
Awazd who identified the characteristics of a high-performing organization. The categories and
criteria aze explained in the introduction of each Quality Assessment chapter of this report.
RESEARCH METHODS
Policies pertaining to the functions of CSO were gathered from the Saint Paul Administrative
Code, the Saint Paul Legislative Code, City Council Resolutions, the Housing Chapters of the
City's Comprehensive Plan, as well as the CSO's own internal plans, policies and budget
objectives. It is not Council Reseazch's intent to make specific findings on every in&vidual
policy statement. Rather, we focus on groups of policies that relate to specific functional azeas
within CSO. It is our belief this approach is more useful to both policy makers and par[icipants
in understanding how to improve the efficiency, effectiveness and compliance of the
organization.
We believe the best way to assess the level of organizational development is to ask those most
knowledgeable about the organization—the people who work in the organization. We believe
the employees who work in the Citizen Service Office best lrnow the strengths and weaknesses of
their organizations and will, when asked, candidly report their opinions. Therefore, we have
gone directly to CSO staffto ask them about their work. We were able to administer a written
survey to 29 of 40 (72 percent) CSO staff (there were two vacancies at the time of the survey),
and we also conducted 20 interviews with CSO staff members. Audit team members also
participated in a ride-along with inspectors to gain first-hand knowledge of how inspections aze
conducted. The findings and recommendations in this report aze based on these sucveys,
interviews and site visits, as well as an examination of written materials related to the CSO's
practices.
2000 Saint Paul Ciry Council Research
°l
PerFormance Audit of the City of Saint Paul's Ciuun Service Office
CITIZEN SERVICE OFFICE OVERVIEW
The Citizen Service Office is composed of four very distinct divisions, listed in the chart below.
The diversity of the furictions of the CSO made this audit both very interesting and somewhat
more complicated because at times it seemed as though we were examining four ofiices rather
than one. The Director of the CSO oversees all the divisions, and has d'uect responsibility for the
Information and Complaint Division, which does not have a separate manager, as the Code
Enforcement, Mazketing and Promotions, and City Clerk/Rewcds divisions have.
The following table outlines the basic functions of each area and the number of staff positions
assigned to each area. The policy compliance sections for each of the divisions will discuss
further their respective responsibiliries.
Divisions of the Citizen Service Office
City • keep all City records, proceedings, official books, papers, seal and
Clerk/Records documents
• provide documents upon request
• document preservarion
• pmcess peritions, claims, summons, wmplaints
3 employees • process norices of vacations for right of ways
• administer appeals to the Legislative Hearing Officer
• administer oath of office to elected and appointed officials
Information & • serve as an advocate for residential and corporate cirizens in responding
Complaint to requests and coruplaints regazding City services
• provide public informa6on to callers and walk-ins regazding City
S employees services and events
• provide call-backs to citizens who call in with concems
Mazkefing & • pmmote Saint Paul ttu�ough various events
Ptomotions • secure movie production contracts for filming in Saint Paul
• assist City neighborhood groups with marketing their events
S employees • produce the "Residents' Guide"
• develop and maintain the City's website
• publish "City Update" for City employees
Code • enforce minimum housing and health codes on all interior one- and
Enforcement two-family homes and on all extetior properties
Programs • monitor vacant buildings
• participate in special programs as requested by district councils and
31 employees other neighborhood groups
• administer the Tnrth-in-Sale of Housing prograin
• administer Rental Registration
2000 Saint Paul Ciry Council Research
6I-(�y
Perfortnance Audit of Ihe City of Stint Paul's Citizen Service Office
POLICY ALIGNMENT
This chapter presents the policies under which the Citizen Service Office is expected to operate
and the degree to which the current practices are consistent with those policies. Council
Research gathered policies from a number of sources including ordinances, resolutions, the
City's Comprehensive Plan and the City's Budget. They are organized according to which
division maintains the most responsibility for compliance. We have highlighted in boxes either
those policies that deserve special mention or those policies with which the Office is not in
compliance. The policies we examined are listed in total in Appendix A.
INFORMATION & COMPLAINT DIVISION
The Information and Complaint Division of the Citizen Service Office is responsible for
providing information concerning City matters to the public. It also serves as an advocate and
liaison by helping citizens resolve issues relating to City services. The complaint or request
process begins with a phone call, walk-in, or e-mail complaint or information request directed to
Information and Complaint staff. Walk-in customers speak with an analyst and fill out a
complaint form, and the information is then entered into the computer and the appropriate City
department is contacted by the analyst. Those phoning in complaints give their information to
the Citizen Service analyst who then follows the same process described above. E-mails aze
reviewed and responded to by a Citizen Service Analyst and logged into the computer in the
same manner as other complaints. If the department does not respond to the complaint within a
specified amount of time, usually five days, the analyst contacts the agency and asks them when
to expect a response.
A wide azray of complaints come into the Information and Complaint Division. On a given day
a Citizen Service analyst may deal with complaints about snow and ice removal, abandoned
vehicles, fallen trees, house parties, animals, excessive gazbage, pot holes, or water main breaks.
Information is sought on neighborhood and City-wide events, City department responsibility,
snow plowing, pazking and elections.
This Division works closely with the Pazks and Recreation Division, the Police Department, the
Public Works Depactment, the Office of License, Inspections and Environmental Protection, the
City Council and the Mayor's Office. Within the CSO, the Information and Complaint Division
has a regular working relationship with the Code Enforcement Division. Many ofthe complaints
received by the public have to do with property code viotations. Once a complaint has been
taken, a letter is sent to the subject of the complaint and the complaint is forwazded to Code
Enforcement inspectors, whereupon they schedule a site visit. Analysts sometimes follow-up
with a call-back to the complainant to ascertain their level of satisfaction.
Information and Complaint Policies
The foliowing box highlights the City Code and City Budget policies that relate directly to the
Information and Complaint Division.
2000 Saint Pau! Ciry Council Research
° �7
6 Pe Audit of the City o f Saint Pa Cipzen Service Office
Objectives of the Citizen Service Program
AdministraNve Code Chapter 2. Office of the Mayor. Sec. 2.20. Objectives of Ci6zen Service
Program.
The following objectives aze hereby established for the Citizen Service Progam:
(1) To act as av advocate for citizens in responding to requests and complaints that pertain to City
services.
(2) To work closely with all City depamnents to constantly improve the City's response to requests
and complainu.
(3) To report regulazly to the mayor and the City council on the performance of City deparunents
in response to requests and complainu and the relative sarisfaction of the citizens with the
City's response.
(4) To work closely with City-wide information services to operate a fully computerized complaint
referrat and fo[low-up system.
(5) To pmvide public infotmation on City services, events, and who to contact for response to
requests and complaints.
2000 City Budget: Information and Comptaiut Divisiou Activiry Performance Plao
• Work closely with Information Services to develop a fully computerized compiaint refeaat and
follow-up system to be used Citywide. (i.e. postcards to complaints with complaims info,
survey, follow-up, etc.)
• Serve as an advocate for residential and corporate citizens in responding to requests and
complaints that pertain to City services.
� Work closely with all City offices/departments to consistent[y improve the City's response to
requests for service.
• Report regulazly to the Mayor and City Council on the performance of City departrnents/offices
in responding to requests for service and the retative satisfaction of citizens and businesses with
the City's responses.
• Work closely with Information Services to develop a fully computerized complaint referral and
follow-up system to be used Citywide.
• Provide public informarion to callers regarding City services and evenu.
• Build citizen-business loyaity by providing high quality customer service.
• Be proactive in gaining awareness regazding upcoming problems related to Ciry
depaztments/offices and make policy recommendations.
• Upon receiving a response Yo a complaint from a City office/depamnent, provide a callback to
citizen(s) within three working days.
• Make the Citizen Service phone number and www address readily available for citizens and
visitors.
• Administer employee progracu to enhance wmmunity involvement.
Findings
1) The Division compiles a five-day-late report for all unresolved complaints. This report is
distributed to the Mayor, City Council and department and office directors.
2) The Information and Complaint Division has not compiled customer satisfaction information
or distribute it to the Mayor and Council as stated in the 2000 Budget Objectives and in City
Code. They state they are unable to because the current computer system (EXL) is not able to
Z000 Saint Paul Ciry Council Research
ol -l�'1
Perfom�ance Audit of the Ciry of Saint Paul's Cf4zen Service Office
retrieve reliabie data (see the following finding for further discussion). Ttiey aze also not
working closely with other departments to unprove the City's response, nor are they actively
build citizen-business loyalty by providing high quality customer service since they have no
gauge of their level of service.
3) The Information and Complaint Division is working with the Office of Technology and
Management Services to deploy the AMANDA system throughout the Division. This system
wi11 replace the currern EXI, system which is old and incapable of ineeting the Division's needs.
AMANDA is currently being used in LIEP and is expected to be used by Code Enforcement and
Fire Prevenrion as well. According to the Director, funding for the new system has been sought
for several years. This year funding was finally included in the CSO's 2000 budget.
4) The Division provides very limited call-backs to citizens. It is unclear if they are done within
three days. No data aze kept to corrobonte this objective.
5) T'he Division does not administer employee programs to enhance community involvement.
Rather they encourage certain employees to attend community meetings and put out broad calis
for volunteers to staff City events and activities, such as Habitat for Humanity.
Recommendations
Recommendation #1. The Information and Complaint Division should resume providing
customer satisfaction data to the Mayor, City Council and department and offzce directors, as
well as to other staff in t&e Citizen Service O�ce. Other computer systems could be used to
prepare the reports until the AMANDA system is fully operationaL 77xey must also set a high
standard for doing call-backs, such as a setting a goal of calling back 90 percent of adl
complainants within three days.
Recommendation #2. The Citizen Service Office should prepare an annual report for the Mayor
and City Council clearly showing each deparhnenYs response times to complaints and inquiries,
as well as customer satisfaction data. The data should be delineated by departmenz They
should create an objective to provide this information af least annually, if not more often.
Recommendation #3. The City Council should direct Council Research, the Citizen Service
Of�ce, and the Planning and Economic Development Department to conduct a Ciry-wide survey
to ascertain tke Ieve1 of citizen sarisfaction with Cdry services and citizen service needs.
Common Complaints
The Information and Complaint Division is responsible for taking complainu and responding to
inquiries about all City ordinances. We have two common areas of complaints: snow shoveling
and abandoned vehicles. These examples provide a brief ilh�stration of how the CSO processes
complaints and inquiries.
Z000 Salnt Pmd City Council Ruearch
°j �7
Performance Audit ofthe Gry of Saint Paul's Citizen Service Office
Snow and Ice Removal
Saint Paut Legislative Cade Chapter 113: Snow and Ice on Sidewalks
Se�. 113.02. Snow and ice removal from sidewalks.
The owner or occupant of any building or lot abutting a public sidewalk is responsible for and shall
remove any accumulation of snow and /or ice from said public sidewalk within tw�nty four (24)
hours after the sr�ow and !or ice has ceased W fatl, gather or acc�unulate.
Sec. 113.04 Notice.
Before the departmeni shall abate such nuisance, ii shall serve or caase to be served upon the owner
or occupant of the abutting property a written norice informing the property owner or occupant that
a complaint has been received by the City indicating the ice and / or snow has not been retnoved
from Yhe sidewalk wiYhin twenty fo�s hours {24)... . If upon inspection by the department the
sidewalk is found to be in violation of Sec[ion 113A2, the department may immediately schedu]e
abatement.. .
Finding
When asked how they implement Section 113.04 of the Saint Paul Legislative Code, we found
all snow and ice removal complaints are entered into the computer and a letter is generated and
sent to the offending pariy. Staff claim the letter is helpful in getting compliance. Code
Enforcement verifies the compIaint and issues an order to make correcrions. If the snow or ice is
not removed witrun two to three days, a summary abatement is conducted and the City chazges
the property owner for the cost of the removal.
Abandoned VehicIes
Saint Paul Leg. Code Chapter 163. Abandoned Velucles
Sec.163.04 Custody of abandoned vehicles.
The city hea&fi officer or enforcement officiais oftfie division offiousing and bui[ding code enfomement for
the city aze hereby auzhorized to remove or have cemoved any motor velucle left at any place within the city
which seasonably aopeacs to be in violation of Hvs chapter or lost, s[olea or unclaimed. The impoundiag and
takiag iaio custody of a motor velucle pucsuart to this c}�apter shalI be done with the assisiance of a Qo&ce
of&oev A police officer, heaiffi officer or enforcement official of ihe division of housing and buiiding code
enforcemeat for the city may euter upon pdvate propecty at all reasonabie hours for the purpose of
iospecting such vehicle and impoimding such velticie, and it sfiall be uqlawful for any peison to prevent a
policeman, health officer or enforeement official of the division of housing and building code enforcement
for the city from eatering oa pdvate property for the pmposes of carryiag out Lis duries hereunder or to
interfere with Irim in the lawful perfocmance of his d�es.
Finding
We found the CSO informs the Police Department if an abandoned vehicle is on public property,
and Code Enforcement if it is on private property. I-Iowever, staff fek it was better to direct ihe
complainant to calt Pazking Enforcement directly for faster service. Complaints made througii
the CSO and then passed on to the Police Department and then to Pazking Enforcement can take
2000 Saint Pau7 Ciry Council Resecvrh
PerFoxmance Audit of ihe Ciry of Saint Pwl's Citizen Service Office
DL-{p`1
9
longer to be resolved because of the Police Department's internal complaint process. If Parking
Enforcement is called direcUy, Parking Enforcement officers mark the car with chalk and have it
towed or tagged if it is not removed within 48 hours. It is appazent from this example that
different deparunents, and perhaps even different staff, handle complaints differentiy. It was
reported thaz some staff in other depar[ments take complainu without notifying the CSO, others
take the complaint and forwazd the information to the CSO, and finally others simply tell the
complainant to contact the CSO direcfly themselves. The City has no set procedure for handling
complaints beyond the CSO's own intemal policies. This convoluted system can only contribute
to a compiainants dissatisfaction and frustration with the City.
Recommendation #4. The CSO should work with other departments, such as the Police
Deparhnent, LIEP, Fire Prevention, and Public Works to create a plan or system to follow so
that complaints are addressed quickty and uniformly. Spec�c data should be compiled on when
a complaint is received arrd forwarded to the department, to whom it is forwarded, when a
"service " was rendered, and when a response u received. Information on complaint resolution
should be made part of the five-day Zate report.
2000 Saint Pau! Ciry Council Research
0`-�7
1 � Per Audit of the Clty of Saint PauPs Ctizen Service Office
CITY CLERK/RECORDS DIVISlON
The City Clerk/Records Division is responsible for maintaining the City of Saint Paul's official
(govemment) recorded history. Three employees maintain and preserve all records of the City
including: minutes, resolutions, ordinances, official books, papers and notices of public hearings
as required by the Charter and other applicable law. The Division accepts petirions and
determines their sufficiency. It is also keeper of the City Seal which, by law, must be affixed to
certain documents. Because of its close physical proximity within the office to the Information
and Complaint Division, the Records Division interacts with the public by providing informarion
and assistance to walk-in and phone-in requests as well. The Division accepts summons, claims,
petitions and other legal documents on behalf of the City. The Assistant City Clerk works with
Ramsey County by overseeing the County contzact for City election services. The City Clerk
administers the oath of office to elected and appointed officials. Finally, the Division accepts the
paperwork and fees associated with appeals to the Legislative Hearing Officer, schedules the
hearings and sends the appeal notice to the appellants. The Division is govemed by State
legislation, City Ordinances and the Budget policies highlighted in the boxes throughout ttus
section.
Records Retention
Miunesota Statutes 138.17 Goveroment records; administration.
Subdivision 1. Destruction, preservatioo, reproduction of records; prima facie evideoce. (a) The
attomey generat, legislative auditor in the case of state zecozds, state auditor in the case of local iecords, and
d"uector of The Minnesora lvstorical society, hemina8er dizectoz shall constitute the records dispositioa
panel.lLe membeis of the panel shall Lave power by majority vote W direct the desRUCtion or sale for
salwage of gov�;mment cecords determined to be no longer of any value, or to direct the disposition by gift to
the I�Twnesota historical society or otherwise of govemmem records determined to be valvable for
preservat(on... .
Subd. 7. Records management program. A records m��a progam for the application of efficient
and economical managemeat methods to the cieation, utili7ation, maintenance, xetention, preservatioq and
disposal of official records shall be administered by ffie commissioner of adminisua4nn wifh assistance
&om the d'uector of the Iristorical society.... . It sball be the duty of the head of each state agency avd the
govemiag body of each oounty, mmicipatity, aad other subdivisioa of govemmeat to 000pera[a with ihe
commissioner i¢ conducting surveys and to establish and maintain an active, comimrng progam for the
economical and efficient managemeat of the cecoids of each agency, coimty, municipality, or other
subdivision of govemmeut. When iequested by the commissioner, public officials sY3231 assist ia the
piepazatiott of an inclusive inventory of records in their custody, w which shall be attached a schedule,
2Pp;6Vtu uy wc ncaci vi [¢c gUVemnlcviai iuui Cu nSca.Cj' �3P..^.b �.�+YL•C.i� n.fthg rrrn�c ?IId th0
commissioner, establishiug a time period for the reteution or disposal of each series of records. Whea the
schedvte is imanimously approved by the reoords disposition panel, the head of the governmeatal unit or
agency having custody of the records may dispose of the type of records listed in the schedule az a time and
in a mavner prescribed in the schedu[e for particular records wEucfi were creaked after tfie approval. A list of
records disposed of p�usuant to this subdivision shall be forwazded to the commissioner and the arcluvist by
the head of the govemmental mit or agency. The archivist shall maintain a list of all records desanyed
Z000 Saint Paul Ciry Covncil Resetvch
o!-(�'1
Performance Audit ofthe City of Saint Pau]'s CiNxn Service Office
Records Retention, Cont�
11
Minnesota Statutes Chapter 13. Data Practices Act
13.03 Access to government data.
Subd. 2. Psocedures. (a) "S'he responsible authority in every state agency, political subdivisioq and
statewide system shall establish procedures, consistem with this chapter, to insure that requests for
govemment daza are received and complied with ia an appropriate and prompt manner... .
A responsible authority may desigvaze one or more designees.
Minnesota Rules 1205 Department of Administration - Data Practices
Minn. Rules 1205.1000 Appointment of the Respunsible Authority.
Pursuant to Minnesota Statutes, section 13.02, subdivision 16, the goveming body of each political
subdivision and the goveming body of each state agency whose activities are subject to the direction of a
governing body sLatl, by September 30, 1981, if it hu not done so, appoint a responsible authority. 'Ihis part
shall not affece the appointments of responsible authorifles made previous to the adoption of these rules. The
goveming body shali confer on the responsible authority ful] administrarive authority to cazry out the duties
assigned by the act and by ttds chapter. Goveming bodies may use the forms set forth in part 1205.2000 to
appointthe responsible authority.
1205.0200 Definitions.
Subp. 14. Responsible suthority in political subdivisions. In political subdivisions, the responsible
authority shall be as follows, unless otherwise provided by state Iaw
B. For cities, the city council shall appoint an individuai who is an employee of the city.
Saint Paul City Council Resolution 99-881
RESOLVED, pursuant to the requiremenu of Mirmesota Statutes Section 13.02, Subd 16, of the Minnesota
Crovemment Data Practices Act, and Minnesota Rules Section 1205.1000, Fred Owusv, City Clerk, is hereby
desi�ated as the Responsible Authority for the City of Saint Paul; and be it
FIJRTE�R RESOLVED, that the Responsibie Authocity is authocized to establish guidelines and procedutes
for the purpose of ineeting ali requirements of the Mirmesota Govemment Data Practices Act and the
Lelated, validty adopted rules.
Findings
Chapter 138.17 of Minnesota Statutes provides a plan for managing governmental records by
giving authority to cities to dispose of records with certain limitations. No municipal records
may be destroy or removed wiffiout authorization of the Records Disposition Panel, which is
essentially authorization from the Minnesota Historical Society. Cities may adopt the General
Records Retention Schedule and any revisions by filing a Not�cation ofAdoption of City
General Retention Schedule form with the State Archives DepaRment of the Pvlinnesota
His[orical Society. The Historical Society will sigri and retum the form as a signal the City may
dispose of govenunental records as indicated on the schedule.
The CSO maintains a copy of the City General Records Retention Schedule, but responsibility
for documents being disposed of deposited at the Historical Society falls to individual City
departments, as Minnesota Statutes allows the responsible authority to designate designees to
fialfill these responsibilities, and department heads aze the designees. Currently, no formal
2000 SaintPavlCiryCour+cilRuearch
a!-G �
1Z PerFonnance Audit offie City of Saint Paul's Citiun Service Office
process exists for City departments to inform the CSO thaz they are disposing of or sending
documents to the Historical SocieYy. Though it does not occur frequently, according to staff,
some departments inform the CSO when they are disposing of documents or sending them to the
Historicai Society. Also, ifthe CSO discovers a departrnent is "c[eaning house," a note is sent to
the director offering the assistance of the Assistant City Clerk to review the soon to be discarded
documents to assess their azchival value in complying with the Schedule. Under Resolution 99-
881, the City Clerk is authozized to establish guidelines to ensure the requiremeats of the
Govemment Data Practices Act aze met.
Recommendation
Recommendation #5. The CSO should establish specific guidelines requiring departments to
submit to the CSO, on a biannual basis, a Records Retention Schedule. They should also devise
guidelines to ensure departments noh; fy the City Clerk when documents are permanently removed
from Ciry fzles or disposed of, and these natifzcations should be maintained by the City Clerlc
Documents Maintained by the CSO
Saint Paol Administrative Code Chapter 4. Of6ce of the City Clerk
b) The city clerk shall keep all minutes, records, proceeding,s, official books, papers and documents charged
to 1vs care in such anangement and coadition u to make them easily accessible for convenie� use. He shall
be responsibte for the prescrvation and caze of such records and shall take necessary steps to carefiilly
protect and preserve them from deterioration, mutilation, loss or desiruction. Records or record books may
be repaired, renovated or rebound when necessary for peoper preservatioa Photogiaphic, photostatic or
mecrofi7med mcords shall be considered accessiWe for snch purposes. F�cept as oiharNise expressly
provided by taw, he shatl permit all such public records ia his custody to be inspected, e�mined, abstracted
or copied during norma! Misiaess ho7as subject to tds svpervision aad regalation. He shall, upon demand of
any petsoa, fianish certified copies thereof upon paymem in advance of reuonable fees ffierefor.
Saint Paul City C6arter Sec.17.02. Cnrrent 51es.
The city clerk shall keep a properly indexed current 51e of all city ordinaaces and resolutions, and this file
shall be available for public inspection duriag the cus[omary working hoi¢s observed by city employees.
Copies of ordinances, resolutions aod Charter amendmenis shall be distributed b or sold to the pubiic az
reasonable prices w be fixed by the co�mcil.
2000 Saint Paul Ciry Counci[ Ruearch
Perfo`mance Audit of the City of Saint Paut's CiUZen Se[vice Office
Documents Maintained by the CSO, Cont
e 1-L�'1
13
2000 City Budget� �ty Clerk Records Activity Performaoce Ptan
With additional fimding the Office of the City Clerk could more ciosely follow Chapter 4 of the Administrative
Code in `Yaking necessary steps to cuefvily protect and preserve° these fi-agile records. Furthermore, the current
micro-film reader is becoming ubsatete and requaes regulaz xepaics.
• Maintain and preserve the minares and records of the proceedings of the City Coimcil in accordance with
the Charter.
• Be the legal custodian of & maintain official copies of all ordinances and:esolutions of the City Cotimcil.
• Notices of City Coimcil meetings be served in accordance with state siatutes, CBarter provisions, city
ordinances and Coimcil niles.
• Cause ffie publicazion of all City Coimcil minutes, ordinances and notices of public heazing as required by
the Charter or other applicable law.
• Have custody of the seal of the city and affix it to such documents as may be required ad authorized
� piusuaat to law.
• Give information and direction to private citizens having busiaess with the city... .
• Keep all minutes, records officiat books, papers and documents in such azrangement and condition as to
make ffiem easily accessible for convenient use.
• Accept claims, summoas and complaints, petitions and other lega] documents on behalf of the City.
• Process and record vacations of pubiic right of ways.
� Claim and appeai forms are now availabte on ihe City Cletk web page.
� Index City Comcil proceedings and disffibute proceedings book
• Adminis[er appeals to Legislative Hearing Officer.
Findings
1) We found the Division maintains the documents for which it is responsible. Historical
documents are kept at the Minnesota Historical Society and more recent documents are housed in
the CSO's file room and on microfiche. The Office is in the process of buying new file cabinets
to upgrade the protection of City documents. LJltimately, the Office would like all documents to
be preserved on a document imaging system. It has been an ongoing goal of the CSO to obtain
funding for a document imaging system, and a system is on order.
2) Officiai City documents aze available for public viewing. Trnerested parties call or waik-in
when in search of City documents. If an individual is doing a lengrhy research project, they may
be given open unsupervised access to the documents during business hours.
3) According to staff, the binding of the Council proceedings books are two years behind
schedule. They aze currenfly published in bound form through 1997. T'he CSO must ind� the
proceedings before they can be sent out for binding. The Office is indexing the proceedings for
1999 and has completed inde�cing for 1998 but they have not been sent to the Legal Ledger for
binding because the $11,000 it cost to bind the books was allocated for other uses witrun the
Office. The Office plans to send the 1998 Council Proceedings to the Legal Ledger for binding
in 2001. The Legal Ledger is the only organization that bids on the binding contract.
4) According to staff, new or amended ordinances available on the City's Intemet site aze six to
seven weeks behind Counci] enachnent. This time is required to print, codify and have the CAO
review the e]ectronic version produced by the Legal Ledger before the Cterk's Office fonvazds it
to Technology and Management Services (TMS) personnel to post the web page. It was reported
that TMS personnel take one to two days to get the changes and additions made.
2000 Somt P¢ul Ciry Council Research
�i ��
14 Perfo�m�ce Audit ofihe Ciry of Saint Paul's Citizen Service 06cz
5) The Division provides appeal and claims information and fonns on their website.
Recommendations
Recommendation #6. The City CZerk/Records Division should prepare a plan to transition paper
documents to the new document imaging system.
Recommendation #7. The City CZerk/Records Division should prepare a spec�c plan to ensure
that Council Proceedings cne prepared annually mrd indexed in a timeZy fashion. Funds should
not be re-allocated for other uses if they m�e specified for binding.
Documents to the Public Library
Saiut Paul Administrative Code Chapter 87. Depository for pocuments
Sec. 87.01, Deposit required.
All muvicipai cocpomtions, departments, agencies and officials of tfie City of Saint Paut aze required to
submit a m�inimum of three (3) copies of each official published documern to the Saint Paul Public Library.
Sec. 87.02. Official documents defined.
Such official published dce�ents shouid iaciude ihe following.
(a) Any book, document, joumal, map, pamphiet or report issued for public distriburion. �
(b) Any book, document, joumal, map, pamphlec or officiai public report which is not issued for public
distribation bui contains aay lustoricai sigvificance or raFerence value.
(c) Suc6 official pubiished documenu, for e�mple, should include, but na be limited to, the following
(1) The annual compilatioa of the city ordinances and council proceedings.
(2) The aanual reports of tlte various depatmteats aad bnreavs.
(3) Ihe City Codes and amendmems.
(4) The City Chazter and amendmenTS.
Finding
CSO staff stated that City documents are not being submitted to the Saint Paul Public Library
and no one is responsible for ensuring t3us is done. We also inquired as to whether ttus
ordinance is reasonabie given today's technologies. Staff were not sure it was reasonable since
computers could generate elecuonic versions that do not require as much space.
Recommendation
Recommendprion #8. The Citizen Service Office should take responsibility for educating
departments on what documents need to be provided to the Public Library. Council Research,
the City Council, the Public Library and the Citizen Service Offzce should work together to
review the requirements of the ardinance to determine whether three paper copies need to be
submitter� or ifthe number ofpaper copies required coudd be reduced ifan electronic copy is
provided. Following this review, an ordinance change should be made zf necessary.
2000 Sairet Paul City Council Researck
Perfoxmance Audit of the CiTy of Saint PauPS Guzen Se�vice Office
Elections
oI-1�7
IS
Saint Paul AdministraSve Code Chapter 4. Office of t6e City Clerk
Sec. 4.04. Elections.
(a) Commissione� vf �egisiration The city clerk shail serve as the commissioner of regisuation for the city
and provide such printed forms, blanks and other supplies and equiQmen[ as are necessary and proper to
cazry out the regimation of quatified voters as prescribed by law. The office shail establish and keep,
p�usuant to siatute, a plan of registrarioq iacludiag an originat record of votecs, propedy indexed and
safeguarded, and a dupiicate registration file open to reasonable public inspection.
(b) Conduct of elections. The city clerk shail give public notice of the time and piace of the holding of alt
municipal elections, including the hours during which polls wiil be open, by posting in every election
distriM appropriate etection aotices containing a list of offices to be filled az such election. He sLall take ail
other cecessary steps to ensute that ffie conduM and procedure of all elections aze govemed in accordance
with applicable state laws and such supplementary ordinances as are adopted by the counciL
Saiot Paul City Charter Chapter 7. Elections
Sec. 7.04. Name on primary ballot.
Not later than six (6) weeks aor more than eight (8) weeks before the primary election, any person eligible
may, by filing an affidavit and paymeat of fifiy doliars ($50.00) to the city clerk, have Iris or her name
placed on the primary election ballot. Each person desiring to have his or her name placed on the primary
batlot foi councilmember shall state in the affidavit of candidacy the distria for w}ric6 he or sbe is a
candidate.
Sec. 7.10. Caovass of returns.
Within seven (7) days after the electioq the city couucil shatl canvass the retums and dectam the results of
the elecaon.
2000 G1ty Budget: City Clerk Records Activiry Pedormaece Plan
Oversee Ramsey Covnty contract for City election services, including evaluation of ffie level and quality of
service, and maintain duplicate records of elections.
Finding
The Office has a ten-year contract with Ramsey County that expires at the end of 2004 to provide
the elections process. According to staff, the CSO approves polling places, election judges and
conducts canvassing for primary and general elections. The Office also prepazes election-related
resolutions for council approval. Ramsey County is responsible for voter registration, absentee
ballots, candidate filings and the preparation and maintenance of voring machines. ARer an
election, Ramsey County submits the unofficial canvass report, which examines wtes for
authenticity, to the CSO which then submits the report to the City Council.
Z The County's duties u agreed to in ffie contraa between Saint Paul and Ramsey County for Eiectlon Office
Management aze outlined in Appendix C.
2000 Soini Pau1 City Councif Researth
° i - �7
i6 Pafocmance Audit of tfie Ciry of Saint Paul's Citizen Service Office
Initiative, Referendum and Recail
Saiut Paul City Charter Chapter 8. IDIITIATIVE, REFERENDUM, AND RECAI,L
Sec. 5.02.4.
Aay person whose eame appears on a peaaon may withdraw his or her name by a statecaent in writing filed
with ihe city clerk before the clerk advises the council as to the sufficiency of the petition. Any name
appearing on any petition wluch dces not rnmply with the foregoing requirements, except as to wazd or
legislative district and precinct desi�atioq shall be stricken, and no names shall be counted wluch have not
beea verified
Sec. &03. Determinatioo of suffcieocy.
Any petition seeking initiazive, referendum and recall hereunder shail be deemed received by the cowcil when
it is filed wiih the city clerk, for which filing there shall be no fee. Immediazely upon receipt of the petition
the city clerk sha11 e�mioe the petitioa as to iis s�ciendy and report ro the council within twenty (20)
calendaz days, except that in the case of a recali petitioa it sha(1 be thirty (30) calendaz days. Upon receiving
the report, the council shall detecmine by resolution the sufficiency of the petirion
Sec. &08. DisposiKon of insufficieot petitions.
If the counci2 determines that the petition is insufriciear or irregulaz, the ciry clerk shail de&ver a copy of the
petition to the pecson or persons therein named to receive it, together with a written statement of iu defects.
The persons circulating the petition shatl be given thirty (30) days in wluch to 51e additional signature papers
and m correct the petition in all other particulars. If at the end of Uiat period the council finds that the petition
is still insafficieat or erregulaz, the cify clerk shatl fite the peauon in flre clerk•s office artd notify ffie persons
previously notified of the defecis. The final finding of insufficiency or uregulazity shall not prejudice the
filing of a new petition for the same purpose noy in tho case of an initiazed or refeaed ordinance or resolution,
shaiI it preveat t6e council from referring the ordinance or resolu[ion to the voteis at the neaa regulaz or
special election at its optioa.
Finding
The CSO works with the CounTy to comply with the requirements for initiative, referendum and
recall. The oniy petitions found to be insufficient in recent yeazs by the Office were the baseball
stadium and billboazd petitions. Insufficiency is communicated to the person responsible for the
petition by a letter or phone catl &om the County.
Abandoned Property
Saint Paul Leg. Code CSapter i4. imp,wadmeat sa� L°'s�.osa' ¢fA3z=coaed Persoust Progeriy
�ec. i4.us. auandoned pnrsaan� p a—�.:�. --- - ----_.
It s6a[I be ilIegal to abandon pesonal property on property owaed by tfie city. Disposirion of this property is
in the public interesi and the method to be used is to empoand The property and dispose of ii accordiag to this
chapter.
Sec. 14.04. Pracess.
(a} Whenever the head of any department may deem it in t6e best Snterests oftfie city, he or she may order the
impounding of any abandoned personal property located on city property. The departmenk head or 1ils or her
designee shall take reasonable steps to atTempt to identify the owner of the pmperty and, where the owaer has
been identified, issue a writtrn notice to the owner that the city inteuds to impoimd ihe property. If no
response is received with twenty (20} days of such notice, or ao owaer can be identified, the depaztment head
or designee shall post a notice describing the pmperty in the office of ffie city clerk.. .
2000 Saint Paul Ciry Council Rese�ch
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Perfom,ance Audit of the CiTy of Saint Paul's Citizen Service Office 17
Finding
Currently notices of abandoned personal property, along with other public announcemenu, aze
posted on the bulletin boazd across from the Citizen Service Office on the southwest corner ofthe
fust floor of the City Hall.
Oath of Office and Bonds for City Officials
Saiot Paul City Charter Chapter 17. GENERAL PROVIS[O1�S
Sec. 17.03. Oat6 of office.
Every elected or appoimed of£icial of ihe city shall, before enteriag upon the duties of his office, take and
subscribe an oath in subsrantialty the following form: "I do solemvly swear (or affirm) io support the
constitutions of the United States and of the State of Minnesota and to discharge faithfully the duties devoiving
upon me as (... tiUe of office ...) of t6e City of Saint Paui to the best of my judgnent and ability."
Sec. 17.05. O�cisl boods.
The mayor and such other officecs or emptoyees of the city as may be required by administrative ordinance
shall each, before entering upon the duties of lus or Her respective office or employmevt, give a bond to the city
as securiTy for the faiUtful perfoxmance of his or her official duties and the safekeeping of public funds. The
bonds shall be in such form and amount as may be fixed by ffie council and may be either individuai or blanket
bonds at the discretion of the council. They shall be appraved by the council, approved as to form by the city
attomey, and filed with the city clerk. The pcemiumt on such bonds shal( be paid by the city.
2000 City Budget: Ctity C7erk Records Activity Performance Plao
Administer oath of office to ali elected and appointed officiais.
Findings
I) Staff reported the Director tries to stay awaze of newly appointed and elected City officials
and depattments inform the CSO of relevant staff changes. However, there aze instances when
the City Clerk was not notified and therefore some appointed City officials have not taken the
oath in a tnnely manner.
2) According to staff, they have never requested nor received a bond &om any City Official, nor
were they awaze of Charter Section 17.05. However, staff &om the Risk Management Division
stated that all City staff, not just elected officials, are currently covered under a fidelity bond.
This fidelity bond is required by the State for public treasurers, and the City has chosen to cover
all staff under it as the additional cost is minimal.
Recommendarion
Recommendarion #9. The City Clerk shauld devise a moreformal system for departments and
other relevant City o, f,�icials to notify rhe Clerk of newly elected and appointed o, f,�cials who need
to receive the oath of office. The Clerk's budget objeciive should be mod�ed to indicate it the
oath of of,�'zce will be administered within a speci, fied amount of time, such as thiriy days.
2000 Saint Pau! Ciry Counci! Research
v�-�
�8
Peritions Regardiag Pablic Nuisances
Perfo�mance Audit of the C'rty of Saint Paul's Citizeu Setvice Office
Saint Paul Admin. Code Chapter 91. Procedure for Public Hearings Regarding Public Nuisauces
Sec. 91.03. Peti6on procedure.
(a) Upon the filiag of a periaon in writing sigped by sixty (60) percen[ of the owners and tenan[s of atl private
residences, dwellings and apartrnent houses located in an area one block in any dirutioa from ihe alleged
public nuisance, and upon verification of those signatures by the office of the city clerk, the council sLall
schedule a public hearing conceming the allegations set forth. All petirions, including those containing an
iasufficient number of signann�es, shait be refeaed to the council by the city clerk With respeM to petitions
coataiaiag tess thaa the si�y (60) pe�ent required signa[ures, the council may, in iis discretion, accept the
petition and schedule a public hearing or rennn the petirioa io The petiiioners for add'erional signanues.
Finding
We asked staff about the process for placing a public nuisance hearing on the Council agenda.
T'he Assistant City Clerk sends a resolution to the Cotmcil staring the number of legirimate
signatures on the petition for a hearing. The Council then decides whether to schedule a public
hearing if it is signed by less than the required 60 percent of homeowners and tenants within a
one block radios of the atleged public nuisance. The Office reports it has a good working
reIationsfiip with Councit staff and has no problem scheduling public hearings. It was also
reported the organizer of the petition is notified as to when the public hearing wiIl be held.
Trade Secret Information
Saini Paut Admiuistrative Code Chapter 94. Protecaou of Trede Secret Intormadon
Sec. 94.01. De5n;6ons.
Unless specifically deSned in tivs section, ffie terms contained in this cLapter shall be given the definitions
as set forth in Minnesota Statutes, Section 13.02.
Desigrrees: Individuals desigvated by the mayor W work on, process, examine or sNdy the economic
developmeat or regulatory matter in which tnde secret informatioa may be filed
Responsible mrthority: 7Le city clerk, who shall be respnnsible for the eaforcemeni of Uee provisioas of this
chapter.
Trade secret iaformation: Govemment data, including a formula, pattem, compilatioa, progam, device,
method, tec[mique or process that:
(1) Was suQptied by the aflecbed iadividual, person or organiaarion;
(2) Is the subject of efforts by the individual or organi�ation wat are reasonaSle w We cix::r.^sizees to
maintain its seccecY; and
(3) Derives independent ecoaomic vaiue, ac[uai or poceut�ny �W aa. �:,.� �r.�a'.; !��w�?o,-andnot_ _
6eing readily ascertainable by proper means by, other individuals, pexsons or oxganirerions who can oMain
ecorromic value from its diselosure or use.
Sec. 94.02. C7assi5cation of data.
All doc�ents, data, sNdies and offier iaformazion supplied to the city wluch the penon or 5rm regazds as
"�ade secret" ieformazion within the definition in Section 94.01 should be stamped by the person or fixm
see}dng pmoaetion "Trade Seccet Information—Not fnr Public Disclosure." The maztcing must appeaz on each
page sought to be protected.. .
2000 Saint Paul City Council Ruemch
D l - (c'T
Perfortnance Audit of the Ciry of Saint Paul's Cilizen Se�vice Office
Trade Secret Information, Cont.
19
Sec. 9a.03. Notice.
All designees who have access to trade secret informarion will be given a copy of the ordinance from which
flus chapter derives by the mspons3ble airthority.
Sec. 94.04. Access.
Access to "trade secret" infoimation s6a11 be limited to designees. Access shall be for the purpose of
reviewing a economic development project, permit application or other filing, or for other administrative work
pertaining to a economic developmeat project or regulazory matter.l'he hade secret information may be made
available to a representarive of a coasuitaat hired by the city and desig�ated by the responsible authority as a
desigtee, but only if the consulianYs repxesentative has signed a nondiscloswe agreemem and a copy of the
sigped ageement is provided to the person or fixm who filed the document prior to the consultanYs access to
trade secret iaforaiation. If the consultanYs reptesentazive Las signed the nondisclosure agreement, the city
will not be heid responsible for the actions of such consultant and/or its representative witb regazd to the
aondisclosure agreement
Sec. 94.05. Sturage.
tlll "trade secret" informafioa filed in accordance with Section 94.02, and copies thereof, shalt be stored when
not in actual use in locked file cabinets under the exclusive coutrol of the designee of the city. A control sheet
identifying the designees who are authorized to access the infoTmation will be attached.
Finding
Staff admit the Office has not been adhering to its responsibilities in relation to trade secret data.
Senior leaders do consider this an important issue and cited the Peanuts on Parade eachibits as an
example given that the memorabilia and the format were closely controlled by the Schulu family
and was protected for commercial reasons. Staff stated the CSO will be working with the City
Attorney's Office to enhance the role the Office plays with respect to trade secret storage.
Recommendation
Recommendation #10. The Citizen Service ()ff:ce should immediately develop a strategy to
inform a11 City departments of the requirements and process for trade secret storage.
Z000 Saint Paul C�y Counci! Ruearch
oi -6 �
ZO Perfo*mance Audi ofthe City of Saint P Citizen Service Office
Public Information Meerings
Saiot Paul Administrative Code Appendices Chapter A- 3. All Public Meetiogs - Notice Requirements
WF[EREAS, The councii deems it necessary and in the public interest thu advance notice be forwarded w
elected officials prior to ihe holding of public informatioaat meetings by sny departrnent bureau, agency or
committee of the City of Saint Paul, now, therefore, be it
RESOLVED, By the council of the City of Saim Paul:
1. That any city personnel a**anTng or causing to be held any pubiic informazion mcering by or on behaif of
aay city depaztmeat, bureau, ageacy, board, commission or advisory committee shall provide a minim�un of
five (5) days advance written notice of such meeting io all membecs of the city council, the mayor, the city
clerk and the city atxorney. Five-day notice may be waived in the event of an emergency. The city clerk shatl
first be notified if any such public infocmational meeting is to be held in the council chambers located within
the City Hall and Court House.
2. For purposes of such notice, pvblic informationat meetings shatl mean any meeting for wtich members of
the general pubiic receive notice or invitation to appeaz for the p�npose of presentation, testimony,
consukation or otherwise.
3. Such notice shatl contain tfie date, time and place ofthe meeting to be fie(d and a brief statemeM oftfie
svbject matter to be discussed.
4. The city clerk is hereby d'uected to foxward copies of ttis resolution to the mayor, all departrnent heads, the
chairmen of every boazd, commission or advisory committee to the city.
Finding
The Planning and Economic Development Department maintains the Eazly Notification List, a
list containing everyone and every organization that is to receive notification of public meetings.
Departments are directed to contact PED for tfie labels when ihey need to send notice of a pubiic
meeting. PED aiso maintains a Neighborhood Nofifiption List which contains contact names
and addresses for a11 of the dislrict councils. The CSO receives notices from agencies and
commissions if tfie meeting is to be held in City Hati, compiles the meeting list, and places
notices on the pubiic bulletin board, the City's web page and in the Saint Paul Legal Ledger.
Camoaign Contributions
Saint Paul Legislative Code Chapter Z1S. �:ampaigu Courri:,u.:a�s
Sec. 28.02. Adm:nistrarion.
(a) Ciry clerk to administer. The city clerk sfiall be in ckiarge of administering and cazrying out the vazious provisions
ofthis chapter.
@) Cirycler.�' powers mrd duties. 1Le ciry clerk shall have Uie following duties a�ni poweis:
(1) Pmscribe, adopt and disaibute ffie foim for cegis4-ation foims, stazeme�[s and repom required w be
filed wLich shall, whenever possible, be ideMical to or consistent with state forms.
(2) Receive and accept for filing m the ciry clerks office the xegistration forms, stateme�vs and �eports
rzQuimd by ttvs chaPter-
(3) Make the sptemems and reports filed with the city clerk available for public iaspection and copying. A
reasonable ck�arge for the cost of cop}�ng may be chazged.
(4) Preserve all stazemems and reports for a period of four (4) yeazs from rhe daze of Sling, or, in the event
ihaz ffie committee represenu a candidate or party wlilch permanrn8y fecminates activity within two (2)
yeazs, Uun said records and accounts shall be kept for two (2) yeazs.
(5) Repor[ Sndings of noncompliance to the elecfions board.
2000 Saira Paul City CounciT Resemch
PerFomiance Audit of ihe Ciry of Saint Paul's Citizen Service O�ce
Finding
21
It was reported that campaign contribution forms aze huned over to the County, though the CSO
retains a copy for five years after an individual leaves office. This is in keeping with State
reqwremenu for document storage.
Condominium Cooversion Notices
Saint Paul I,eg. Code CL. 48. Condominium and Conversion Condominium Notice Filing Requirements
Sec. 48.04. Notice of condominium creation or conversion.
(a) A deciarant of a conversion condominium shall �ve the city aotice of the conversion or intent to convert a
building to a condominium no later than one hnadred twenty (120) days before the declarant requires any tenant or
subtenant ia possession in such buiiding to vacate.
(b) A"notice of condominium conversion" in the form required by Minnesota Statutes, Secrion S ISA.41 ] 0(a),
together with a"supplemental notice of condominium conversion" in the form provided for in paregraph (c) of this
section, filed in the office of the city cierk shal] covstitute the notice required by pazagraph (a).
Sec. 48.05. Certificarioa uf compliauce. �
Upon the filing of the notice, supplemental norice of condominium convexsioa or stazement in lieu thereof as
required in section 48.04, the city clerk shall provide the declarant with a signed, written statemeot certifying
compliance with the filing requiremeats of this chapter. The clerk shaU vansmit copies of each certificate given
and each notice, supplement notice and statement filed to the housing infocmation office, the division of planning
and division of housing of the departmeat of planning aud economic deveiopment, and the division of housing and
building code enforcement of the department of community services of the city.
Finding
Staff reported the condominium conversion form is being filed in the CSO on a regulaz basis.
The Office also provides information by copying the relevant sections of the code and giving it to
interested parties. According to staff, supplemental notice of condominium conversion is sent to
ihose departments identified in the Code, though technically those deQartments do not exist as
outlined in the ordinance.
Recommendation
Recommendation #11. The Ciry Council should update the language in Legislative Code Chapter
48.05 to reflect the current City depcmtments.
2000 Saint Pou] Ciry Council Research
oi-� 7
zz
Pecformance Audit of the Crty of Samt Pwi's Cirizen Service Office
MARKETING AND PROMOTIONS DIVISION
The Marketing and Promotions Division is invoived in promoting City events to residents and
visitors. They also work with other organizations such as the Capital City Parinership to mazket
To businesses considering locating in Saint Paul, and with the Saint Paul Convention and Visito�s
Bureau to market evenu to visiYOrs. In addition, they have the task of promoring Saint Paul as a
place to produce films. While many of the results of their work are visible, efforts such as
Peanuts on Parade take an enormous amount of staff time, sometimes more than anticipated
because some programs have achieved an overwhelming, unanticipated level of success.
Marketing and Promotions Policies
The Mazketing and Promotions Division has very few policies which pertain to its functions.
The onty policies we discovered were those found in the 2000 Budget, listed in the box below
and our findings and recocamendations follow. It is problemaric that there are no references in
City Code to the responsibilities of this Divisioa They are a pazt of the administrative branch of
the City's govemmenT and therefore must have enabling legislation outlining their
tesponsibilities_
2000 Proposed Budget: CSO Strategic Plans related to Marketiog aud Promotions
Mazketfng and Promotion of City evenu both downtown and in the neighbofioods.
2000 (.tity Budget: Marketing and Promodons Activity Performance Plau
• Continue to work collaborarively with the City Councit and neighborhood assceiations for
coatinued gowth of their respective events and mazketing/promotional goals.
• Coaiiaue to improve web aciivity with departments and neighborfiood organi7ations.
• Implement payment systems and expand City deparlmenis' use of forms and processing
software.
• Continue semi-moathly publication "City Update° but decrease printed quantity by whatever percentage
ofCity employees t5a[ have Inhanet Access. Tazget distribution to City employees without City Intanet
Access.
• The "Residem's Guide" will be published annually (not semi-anauatly), all cost savings will be directed
towazd a larger production nm aed broader dis�ibution.
• Keep film liaison staff and associa[ed budget in Mazketing and Promorions Division.
- n'o:e 3a co'.a°;.,^:a��� -:s<_ •�e Y��*a Fi!� 3oa*d *o secrue nroducaon conVacts in the Saint Paul
Market.
Findings
1) The Marketing and Promotions Division has been working with neighborhoods to assist them
in promoting their events. In the past, the City has simply provided monetary assistance to
neighborhoods, but they have recently begun to work more closely with the neighborhoods to
provide markering services and help the neighborhoods mazket evenu more successfully.
2) The webmasters aze part of Mazketing and Promofions, and are working with various
departments to improve their websites. They are aiso helping departments expand their services
to be able to accepi payments on-line and conduct other transactions over the Intemet.
2000 Saini Paul City Council Research
Perfoimance Audit of the City of Saint Pau]'s Cidzen Service OfEce
3) The CSO is now publishing the "City Update" on the City's Intranet site.
ot -�'7
23
4) The CSO is no longer producing hard copies of the "Resident's Guide," as all of the
information is available on the City's website. This is contrary to their objective to produce a
larger number of guides once a year, rather than fewer twice a year. They state they are no longe�
producing hard copies because the information is available on the Intemet T'hey have also stated
that numemus copies were left over &om the previous prinring when the Guide was dish�ibuted to
libraries, convenience stores, and other such locations.
5) The film liaison staffwere transferred from the Planning and Economic Development to the
Citizen Service Office in 1999. There is no talk, at this time, of moving them elsewhere. This
does not seem appropriate as a budget objective.
6) Mazkering and Promotions staff aze active in seeking film production contracts in the Saint
Paul market
7) As mentioned in the introduction to this section, there is no specific language in the City Code
establishing the responsibilities of the Marketing and Promotions Division. This is a glaring
oversight.
Recommendations
Recommendation #12 . The Marketing and Promotions Division shoudd resume production of
hard copies of the Resident's Guide and ensure that all residents have access to the informarion.
Recommendation #13. The Administration should prepare, for City Council consideration, an
amendment to the Administrative Code outlining the duties cmd powers of the Marketing and
Fromotions Division.
2000 Saint Paul Ciry Council Research
O/-� 7
24
Perfo�mance Audit ofthe City of Saint Paul's Citizeo Service Office
CODE ENFORCEMENT DIVISION
The Code Enforcement Programs Division (Code Enforcement) of the Citizen Service Office is
responsible for ensuring that residents and property owners of Saint Paul observe the property
maintenaace laws of the Ciry. Code Enforcement is responsible for investigating interior and
earterior code violations aT single-family and duplex properties in Saint Paul, an@ exterior
violations on all other properties in the City. The chapters of the City Code that Code
Enfarcement is responsible for enforoing aze listed in Appendix A.
Code Enforcement has been a division oftfie Cirizen Service Office for about two years. in the
past, Code Enforcement was a division of the City's Public Heaith Division. When the City and
County Health departments merged in 1997, Housing Code Enforcement was administratively
moved to the Depaztment of Fire and Safety Services, though they were never actually physically
relocated to the Fire Department They remained within the Fire DepartmenYs adminisu�arion for
about a year. In 1999, they were moved, both physically and administratively, to the Citizen
Service Office. Senior leaders stated one of the reasons for this decision was over half the
complaints received by the Information and Complaint Division are related to pmperty code
violations, and therefore it made sense to have the two divisions under the same department
Lieutenant Warren Bostrom was also brought in from the Police Deparpnent to oversee Code
EnforcemenYs technoIogy upgrade activities_ About a year later, Lt Bostrom retired, and L�
Mike Morehead was brought in to manage Code Enforcement. Inspectors are cunrentiy housed
both in City Ha]i and at the Police DepartmenYs Eastem Patrol District Offices. The ciurent
organizational strucKiue of Code Enforcement is illustrated in the cl�art on page 26.
The process for checldng, recording and correcting code violations varies based on the situation,
but some common elements eacist. When a compiaint is received by Information and Complaint
staff, it is logged into the EXL, system, printed by Code Enforcement support staff and given to
the appropriate inspector. Code Enforcement support staff play a vital mle in maintaining
records for the Division The inspectors do not do their own data entry, and support stafF are
required to work with EXL., an azcane, inefficient computer system, also used by Information and
Complaint Division staff. They a[so retrieve hard copy files for the inspectors and are generally
responsible for ensuring that operations run srnoothty.
A^ i��*.ar's day oR� starts with a visit to the office to review complaints received and
prepare for ihe property visits scheduled for the day. The inspectors prioritize complaints based
Vu i4c 3cvcii y vi u W2S�'CCC1VEd. HC OT SIlE
may make phone catts to verify appointraents and may add more property visifs based on new
complaints received. The inspectors will also do the papenvork from previous visits anc3 tum it
in to supervisors and support staff for processing.
Upon visiting a property, ihe inspector will determine whether to issue a verbat ordet, a written
correction notice, a citation, a summary abatement order, substantial abatement order, or a
3 The Fire Prevention Division of Fire and Safety Services is primazily responsibte for interior code violazions of
residential properties witfi ihree or more uviu and aIl commercial pmperties.
4 The City is divided imo census tracu, and inspectocs aze assie,ped to specific �acts.
2000 Saint Pau[ City Council Research
o t -(0'7
Perfocmance Audit of the City of SaiEit Paul's Citizen Service �ce
zs
vehicle abatement order. The method, determined by the inspector, is based on the past history
of propeRy code violations at the property, whether the property owner seems responsive and
willing to correct the violation, and the severity of the violation (whether it is a life-safety
concem). With a sumrriary abatement, if the property owner fails to eliminate the nuisance
condition, a work order is issued. The inspectors sometimes take pictures and videotape the
situation, both for use as evidence and to show the clean-up crew the problem and what needs to
be done. If the clean-up work is done by the City or by one of its contractors, the fee for the
work is billed to the property owner. If they fail to pay the fee, it is assessed to the property
owner's ta�ces.
If it is determined the work required to restore a property to meet the minimum property
maintenance code requirements equais or exceeds $3,000, the property may receive a substantial
abatement. If the owner fails to correct the problems for which the abatement was issued, the
City Council is notified that substantial abatement is necessary and appropriate, and a hearing
before the Council is scheduled. After the hearing, the Counci] will adopt a resolution describing
what abatement action, if any, the Council deems appropriate. If the resolution calls for
abatement action, the Council may either order the city to take the abatement action or set a time
within which the nuisance must be abated by the owner and provide that if corrective action is
not taken within the specified time, the City will abate the nuisance. Upon conclusion of the
hearing, the council shall, by resolution, provide for the collection of those costs in the same
manner as a special assessment. If it is possible the building will have to be demolished, the
process also involves some additional notification requirements, and the Vacant Buildings Unit
may assume responsibility for monitoring the property.
A property owner or tenant can appeal an inspector's decision by filing an appeal with the City
Clerk, who then sends it to the City's Legislative Hearing Officer (LHO). The appellant then
appears before the LHO, who makes a decision and fonvazds it to the City Council. The
appellant, if dissatisfied by the decision of the LHO, may appeal to the City Council. If
dissatisfied with the Council's decision, he or she may file for review by the District Court. If
the property owner or resident refuses to comply with the orders of the enforcement officer, the
City may prosecute them criminally. A housing court has been established especially to hear
violations of the housing codes. Code Enforcement works closely with the City Attorney's
Office to build the case to prosecute the offending property owner or tenant.
S A sununary abatemeut is generalty issued for gazbage and tall grass and weeds. A substantial abatement is issued
when the value of the work required exceeds $3,000. A vehicle abatement is an order for an vehicle owner to
remove theic inappwpriately pazked vehicle.
2000 Saint PaulCity Courtcil Research
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26
Pedormance Audit of [Ae Ciry of $ain[ Paul's Ci[izen Service Office
Code Enforcement Organizational Chart
Electorate
City Council
_ � ��.. .
...................
� Cade E�orcement �
P�^�.
Managar'
FreW Scvviees
Suppo�t
6ayton's Blulf
Initlative"
ReMal
Registration
v�
Naternent
Fidd Services,
Supervisorof
Inspee(iors
Mayor
Clerical Suppat
Unit,
0/Fce Manager
ComplaiM,
Investigafive 8
Patrol Unit (East
and West Teamsj
PP2000
Yaczct Build[�gs
Unit
Adminis6afive
Support, Budgd,
6lanagernerrt
AssistaM
Tnrth in Sale d
Housing
� Code Enforcement staff aze assigned to this azea to support the Graffiti Abatement program in Public W orks.
x' The Dayton's Bluff Initiative was scheduled to run through the end of December, 2000.
*•' The Manager is a loaned official from the Police Depaztmrnt, and is not a permanent position witliln the CSO.
1Lerefore, if the posidon is returaed to the Police Department, the other positions would report direc[ly to the CSO
D'uector.
1000 Saint Paul Ciry Council Kesearch
Pe[formance Audit of the Ciry of Saint Paul's Citizen Se�vice p�ce 27 O f— � `
Overlapping Interests of Code Enforcement and Other
Departments
The work of Code Enforcement relazes closely to the work of other departmenu throuahout the
City. For instance, Code Enforcement may receive calls regazding properties about which the
Police Department has also received complaints. If the calls are about a suspected drug house,
the two departments will coordinaze efforts through the Police Department's FORCE unitb, which
coordinates the Ciry's efforts to reduce street-level drug-related crime. Two Code Enforcement
inspectois aze on call for the FORCE unit at all times, and check in with them daily to review
cases and determine whether they need to accompany officers to execute wazrants.
Code Enforcement also works with the Office of License, Inspections and Environmental
Protection (LIEP). The two offices coordinate efforts when a property that has been cited for
code violations applies for building permits, or when a registered vacant buildings requires
permits to restore the property to the City's minimum property maintenance standards. The two
offices have a conflict over building pe�mits that remain open for long periods of time. Code
Enforcement views them as problematic, feels they create blight, and states there aze numemus
cases of this in the City, while LIEP suggests that there aze relatively few of these long-term
ogen permits and they aze not that problematic.
The Fire Prevention Division of Fire and Safety Services overlaps some responsibilities with
Code Enforcement, particulazly related to vacant buildings. Fire Prevention staff check vacant
buiidings every 90 days when a Certificate of Occupancy is revoked, and the Vacant Buildings
Unit monitors all vacant buildings every 30 days, Vacant buildings pose a substantial risk for
fires, and the Fire Prevention Division is vigilant about monitoring these buildings, as is the
Code Enforcement Division.
Code Enforcement and the Pazks and Recreation Division work together thmugh the abatement
process. Pazks and Recreation receives work orders from Code Enforcement for tall grass and
weeds and garbage violations, and Parks and Recreation performs the abatement.
Finally, Code Enforcement also interacts with the community through block clubs and district
councils. The Weed and Seed progrun, a federally funded program that provides money directly
to neighborhoods for ciean-up and other neighborhood improvement activities, allows them to
work close]y with selected communities. The community will contract with Code Enforcement
for increased services such as targeting basic code violations. Code Enforcement is also involved
with communities through other special programs, such as the Dayton's Bluff Initiative, (a short-
term progam in the Dayton's Bluff neighborhood that encourages residents to monitor the
property maintenance standards of the azea) and neighborhood surveys (code enforcement
sweeps), which are discussed on pages 444b.
Code Enforcement Policies
We found Code Enforcement in compliance with most relevant policies, but we will point out a
few instances in which they either need to change or solidify their practices, or where it seems a
6 Focusing Our Resources on Community Empowerment
2000 SaintPaul CiryCouxci7Research
b/-� 7
Z8
PerFormance A�dit of the Ciri of Saint Paul's Citizen Service Office
change in the Code would be the most logical solution. In most cases, we have listed only the
sections of the ordinance or policy with which we found compliarice problerres.�
2000 Proposed BudgeY Program Objectives
The City's annual budget is an official City document that contains not only the spending and
revenue projections of all City departments and offices, but also their ongoing and project
objectives. Much of the information contained in the 2000 budget activities for Code
Enforcement is simply a description of the services they provide, with a few goal-oriented
objectives included A short discussion of the objectives and whether they are currenUy being
met follows this box. Many of the priorities and objectives will be discussed in other sections of
this report. Here we will highlight only those not discussed in other subsequent sections.
Code Enforcement Objectives
2000 �ty Budget: Ac[ivity Pertormance Plan for Property Code Enforeement
This progrnm enforces minimum hoosing and health code on all interior one- and two-family homes and on all
exterior properties. The p�upose of this program is to protect ffie public health and safety and maintain and
improve ihe housing in Saint Paui in order to make ffie City a safe place to live. .
The progcem priorities aze to:
1. Investigate citizen complainu and respond to calls for service.
2. Case manage chmnic probtem properties.
3. Ptovide support to police officeis, KC.H.S., RC.H.D. (Ramsey County Human Services, Ramsey Coimty
Healih Department).
4. Conduct proactive inspection patroLs.
1'hese goals are accomplished by.
i. Uniform, consistent enforcement of ifie Legisiative Code, State Statutes and federal regulations.
2. Working in collaborstioa with police to sotve neighborhood problems.
3. Working with diuriM coimcils, ore ni�ed block clubs, problem property committees, landlord and ienant
advocacy goups and individuals to eliminate iaban blight
4. Working with child and aduk protection to protec[ vulneiabte children and adults from hazm.
5. Pazticipating in problem pioperty resolution meetings.
2000 City Betlget: property Code Enforce�enh Objectives
i. Identify and target those properties wSdch generate repeat complaints, and xfiich comprise comtinual
nuisances and blight in tfie residentiai neigflborhoods. E,;w.;,t �as°, �.y o aud oaea�a[s
tLrough use of all existing enforcement options, including enforceme¢t of excessive use of service
2. Redvice the number of comptaint calls ta the City by proactive surveiltance patrols.
3. Conduct scheduled s�m�eys of neighborhoods ia ihe City where coadidons wanant closer monitoring by
enforcement officeis.
Findings
1) Code Enforcement has developed a program called PP2000 to handle some chronic problem
properties. This program will be discussed in more detail later in this section.
� The list of alt the codes relevant to Code Enforcemecit are listed in Appendix A
2000 Saint Paul City Council Research
PerFotmance Audit of the Ciry of Saint Pwl's Civzen $ervice Office 29 �`—� �
2) Code Enforcement works with the Potice Department through its support of the FORCE unit,
as mentioned earlier in the introduction to this section.
3} Code Enforcement works closely with the Ramsey Courny Human Services Department when
they discover situations where children and vulnerable adults may be at risk. In some of the ride-
alongs done by Council Research, we witnessed the open dialog inspectois have with child
protection workers, and were impressed with the care the inspectors we visited with took in these
very difficult situations.
4) Code Enforcement is not meeting the objective stating they will reduce the number of
complaint calls to the City by proactive surveillance patrols. Code Enforcement is currently
unable to gather any meaningful data on complaints. Therefore, it is difficult to lmow if they are
meeting the objective to reduce the number of calls. They also have not been able to do routine
proactive surveillance patrois due to a lack of funding and limited staff. Inspectors may look for
non-reported violations when they aze checking the reported violations, but they do not have
specific time set aside to patrol their areas. Sweeps have, in recent years, been done at the
request of Councilmembers or neighborhoods, but beyond those Code Enforcement finds them
difficult to conduct. Code Enforcement recently determined they have some unexpected
financial resowces because of some open stat�'positions. As a result, they have asked
Councilmembers to determine whether they would like sweeps conducted in their respective
wazds.
Recommendation
See Recommendations 53-56 in the Informatfon and Analysis Chapter, on pages 68-69, which
address data collection and analysis.
2000 S¢in[ Paul Ciry Couttcil Ruearch
Ol —b 7
30
Per£ormance Audit ofthe City of Saint Paul's Citizen Service Office
Minimum Property Maintenance Standards and Egcessive Consumption Fees
I.eg. Code Chapter 3d: Mivimum Property
StruMUres
Sec. 34.25. Conflict wit6 other ordivauces.
Ia any case where a provision of ttis chapier is found to be in conflict with a provision of avy mning,
building, fue, safety or health ordinance, chapter or code of ttds city, the provision which establishes the
lugher standazd for the promotion and protection of the health and safety of the perople sha(1 prevail.
See. 34.08.5 Ezcessive Consumpaon of esterior inspectiou services, fee and liabiliry.
(a) The city shall be entitled to collect its costs of enforcement from a property owner wLo consumes
excessive ea2erior inspection services. An excessive consumprion of e#erior inspection services occurs at
each element of an exterior inspection cycIe beginniag after:
(1) Written notice of a violation is served imder seclion 34.OS.3 following an iniriai inspection; and
(2) Three (3) additional exterior inspection cycles are performed at the same locarion witivn a
consecutive twelve-month period after the iniriai inspection; and
(3) Diuing each of the three (3) additional e#erior inspection cycles under subpazagcaph (2), the
enforcement officer 6nds violations of section 34.08.3 w6icfi aze eiiher new vidations or violazions
based upoa failure to conect previous viola�ons.
(b) The fee for ihe fourth iaspection cycle shall be two h�mdred dollars ($200.00). The fee for each inspection
cycle thereafter shall be fiRy dollacs ($50.00).
(c) Owners who fiave received a aotice of waming shall be joim[y and severalty 1ia61e for the erzcessive
consumpROn of eaterior inspectioa services fee.
(d) The amouat of the eaccessive consumption of e�aerior inspection services fee shall be a debt owed to the
city by the responsible person or pecsons.
(e) Action under this sectioa does not preclude any ot6er civil or criminal eaforcement pcceedure.
(fl A aew owner wlw has duly recorded ihe iastrument of conveyance for the subject pmperty avith the
Ramsey County Depaztment of Records and Reveaue witl�in the time provided in Minn. Stat. §§ 507.235 shall
not be liable for any excessive consumption fees azising from inspection services provided to the previous
owaer of the subject pxoperty.
Sec. 34.OS3. Initiat eaterior inspecrion by enforcement officer.
When an enfomement officer conducts an initial inspection of an eueiior property area and determines that
violations of section 34.08 exist, the enforoement officer shall, in addition to any other action the enforcement
officer may imdertaka, serve written notice of ffie violaAion in confrnmance widt the requiremeats set forth in
section 34.21 of dus chapter.
The initial norice must contain a notice of wazning infoiming the owner tLat subsequent e#erior property area
inspections at that same locarion wiUdn the ne� consecutive twelve (12) months may be deemed an e�ccessive
consumption of e#erior inspection services and that the owner may be liable for an e�erior inspection
services fee.
-- ��gS -------------
1) When asked how they handte situations where Chapter 34 confIicts with other relevant
sections of the code, we received varying answets. Some staff stated they use the most stringent
code, othets stated they use whatever reqairements make the most sense given the situation.
Staff stated that perhaps the most problematic of these situations retates to property code
violations ia historic districts. The inspectors may order repairs to shuctures govemed by the
lristoric preservation code. The Historic Preservation Commission may put strict requirements
on the materials that can be used, and the properry owner may not be able to afford those
required changes. Thus, the repairs may go undone and the inspector may let violations go that
in a non-historical azea he or she would have ordered. This appeazs to be a case where Code
Enforcement is not consistent in their enforcement of the Code.
Z000 Saira Aaul Ciry Council Resemch
Perf'ormance Audit ofthe City of Saiat Paul's GRZen Se�vice O&ce
si � � `(� `�
2) Code Enforcement is no longer enforcing the excessive consumption portion of the Property
Maintenance Code. They have found it impossible to collect the fees in most cases. According
to current City Code, these fees cannot be assessed to the property taxes of the violator, therefore
there is no mechanism to ensure the fees aze col]ected. -Code Enforcement has stated that
enforcement of the provisian costs more than they woutd recover from the fee, especially if
violators do not pay after repeated attempts by the City to collect the fees_ It is unclear to some
inspectors as to whether the poiicy is intended to penalize or just to recover costs_ No matter the
intent, the fact remains that the fee is not recovering costs because violators are not compelled to
pay, and the limited revenues generated aze not covering the inspections costs incurred.
3) Code Enforcemen2 inspectors sometimes give oral notices of a violation. This happens in two
situations. Tn the first type of situation, an inspector wili simply tell a property owner to cut the
grass or weeds or clean up the garbage, and may not foitow up with a written order if it seems the
property owner is willing to comply. In the other situation, an inspector may come across an
emergency situation where clean up needs to happen immediately, such as a dwelling which is
filled with garbage and cluldren aze living in it An inspector will tell the occupant to clean-up
and then will send a written order as soon as possible. Clearly the second situation is not of
concem as a written record is made of the incident. Our concem with the first situation described
is the lack of record of the violation, particulazly if the ptoblem persists or if other problems
occur. The information is also important for data collection and analysis purposes. We are also
concemed the property owner may not receive the information on the appeals process if they are
not given a written notice, as the appeals information is contained on the notice.
Recommendations
Recommerrdation #14. Code Enforcement managers should clarify for inspectors which
ordinances provide the highest standard for enforcement.
Recommendation #I5: Code Enforcement, the Ciry Attorney's Office and Council Research
should revise the e.zcessive consumption portion of Chapter 34 to allow the City to, collect fees to
cover costs from repeated inspections at the same properry. 7Tie City should assess the fees to
the property tazes.
Recommendation #16: Inspectors should issue written orders along with any oral orders to
provide wrinen evidence if the problem persists, and to ensure the property owner or tenant
receives the appeals process information.
2000 Saint Pau! City Counci! Research
oI-� 7
3I
PerFormance Audit ofrhe Ctty of Saint Pa¢!'s Ci6zen Service Office
Certain Nuisance Dwellings
Chapter 42. Certaia Nuisance Dwellings � �
Sec. 42.01. Definidons.
Ualess othezwise expiessly stated, Uee following terms shall, for t6e purQoses of 8zis Chapier 42, have tbe
meanings indicated in this section
(1) Dwelling. Any one- or two-family renta( dwelling which is not occupied by the owner thereof. Dwelling
iacludes both the buelding or struchae and ffie land upon wtrich it is located
(2) Nuis�mce dwelling. Any dwelling which has beett found, upon inspection by the fire chie� to be in
violarion of any provision of any applicable safety code on fois (4) separate dates in any twelve-month period.
(3) Fire chief. Fire chief ieclvdes ffie said chie� as well as the official appointed as frre mazshai, aad also any
inxpector imder his or her supervision and conROl, and also inoludes any city officer or employee charged with
iesponsibility for the enforcement of a safety code... .
Sec. 42.02. Registration of a auisance dwel►irtg.
(a) Registratiorz Any dwelling meeting the definition of a nuisance dweRing shall be deemed on the date of
ihe fourth inspection in such twelve-month period to be registered as a nuisance dweliing, and subject w the
additional provisions of Uvs chapier, induding the paymeat of a regimation fee.
Such regishation shall remain in effect for a rivelve-month period beginning on the date of registration az a
nuisance building.
(b) Additioiml requiremems. Aay dwelling daemed resstered as provided in subsection (a) above shatt also be
subject to the requireme¢u of section 33.05 of the I,egislaave Code relating to occupancy so long as it is
registered avd for a period of rivelve (12) months after registcation tecwinates. Such registered nuisance
dwelliag sLall be required to have a certi8cate of oocupancy issued by ihe 6re cldef withia twelve (12) months
after the dake on which it is deemed registered. Failure to have such certificaie issued witLin such twelve (12)
months shall subject such dwelling and its owner to all enforcement and remedial measures which may be
applicabte mmder law or ordinavce.
Finding
According to the City Attomey's Office and Code Enforcement sraff, Chapter 42 was ffie first
attempt to institute a rental registration program in Saint Paut. Since Chapter 42 was last
updated in 1997, a new rental zegishation progam has gone into effect In 1999, Chapter 51 of
the Legislative Code was enacted req»iring all non owner-occupied one and two unit dwellings to
register with the City and obtain a rentai dwelling uait registration certificate. If the dwelling is
deemed a nuisance arcording to Minn. Stat § 617.18, the certificate may be revoked, and the
properry may no longer be occupied. Since this chapter regulates all one and two-unit dweilings,
inciuding fhose dze��c.' ;.:::saur„°s, :i �*s C�+�ster 42 could be reoealed. However, since
there aze some problems with the current registration program, described later in this section, it
would be best to wazt until me ro is fuii o erau:e ;e,`�.,, ���rt-r� q�, __[,7, �e_r ___
P �n Y � '°�..�a....s ----�--�- � ----- --
42, as it is cucrently written, is the responsibility of the Fire Chief. However, as Code
Enfomement is no longer tmder the administraiion of the Fire Ctrief, the language in the
ordinance is incorrect
Recommendation
Recommerrdation #17. The City Council should update the language in Chapter 42 and make it
the resporrsibility of the Director of the Citizen Service Office, or his or her designee. I,f Chapter
51 u successfully implemented, the Citizen Service Off ce should request that Chapter 42 be
repealed, from City Code
2000 Saint Paul Ciry Council Research
Perfosmance Audit ofthe City of Saint Paul's Gtizen Service Office
Nuisance Abatement
33 ��
Chapter 35. Nuisance Abatement
Sec. 45.08. AWhority to abate.
(a) The city is authorized to abete nuisances in accordance with the grocedinc� se[ forth in sections 4510, 45.11 �d
45.12, All abatement cos[s inciured shall be chazged agains[ the propecty as a special assessmefrt to be collec[ed in the
mazmer provided for in the City C6arter, Chapter 14. Faccept when a request is &led for a review of an emergency
abatement, the assessment hearing shall be replaced by the hearing provided for in secrion 45.12.
(b) Abatemeat may i�lude, birt shali not be limi[ed w, mmovai, cieaning, extermivatio4 �& m��& �n&
sewer �ePai�s. dramin& �ecurin& board�n8 unoccuPied stucaues, batricadi¢g or fencing, temoviag dangerous poctions
of s�ucna�es and danolition of dangerous soructiues or abaz�doned buiidings.
(c) Abatemrnt cos� shail include specifically, birt nar exciusively, the cost of the abazement; the cost of investigazion,
inciuding titte searches, inspecROns and tes[it�g; the cos[ of nofificazion including secvice costs; filing cosLS; attomey
fees, witness fces and appraiseis' fces; and adminisaarive costs.
Finding
Gturenfly, the structure of the abatement fees does not, in practice, include costs associated with
Code Enforcement; rather it includes only the costs incurred by Pazks and Recreation, Public Works
or the private contractor. Some discussion has occwred recently about whether the fee should
include costs incurred by Code Enforcement as well, such as an inspector's time and mileage.
Recommendation
Recommendation #I8: The City Council should revise Chapter 45 to include tfie cost of Code
Enforcement inspections in the abatement fee. This would then be campatible with the concept
behirrd excess consumption and recovering costs associated with enforcement.
Truth in Sale of Housing
Chapter 189. Trat6-in-Sale of Housiog
Suwmaty: This ordinance requires that all dwellings for sale in the City of Saiat Paul have an evaluation
cumpleted to deteimine the conditioa of the stcuctutal, el�trical, and mec6anicat systems of the dwelling,
and that the evaluatioo be displayed at the dwelling for potentiai buyers to review. The evaluation must be
done by a certified huth-in-sale of housing evaluator who is certified by the City.
2000 City Budget: Actirity Performance Plan for Truth-in-Sale of Housing
17ris activity:
1. Records, processes, and files evatuarion repocts and fees submitted by the evaluatois.
2. Investigates complaints and initiates disciplinary aMion against the independent evalvators when
appropriate.
3. Performs ongoing ceviews of materials, insruance, forms and continuing education credits.
4. Serves as secretaryhreasiuer to the Tnrth-In-Housing Boazd and administers certificarion e�cams az
directed by ffie Boazd.
5. Nofifies the Division of Fi:e Prevention when a single-family homes dces noi have hazd-wired smoke
detectors.
�2000 CYty Budget: Trnth-In-Sale of Housing: 2000 Objeetives
1. Conduct compliaace investigarions to assure compliance by home seilers.
2. Conduct compliaace investigations of the independent evaluatoxs wtdch asswes conformity to ihe
certification :equirements.
IOQO S¢int P¢u! City Cauncil Ruearch
oi-G� 7
� Pe rfiovnan c e Aud it of the City o fS a mt Faui's Citizen Service OSce
Finding
The Truth in Sale of Housing function of Code Enforcement is generally in compliance both with
the Code and the Budget documents. They have an administrative staff person assigned to the
program who coitects the disctosure and insurance forms and tracks the educarional requirements
for the evaluators. However, Co@e Enforcement does not curreatly have azc inspector assigned to
Truth in Sale of Housing inspections and aze, therefore, not able to conduct the compliance
investigations, though they aze investigating complaints. During the interview ptocess, staff
stated that an inspector will be assigned half-rime to the program. Staff stated they did not have
the financial resources to assign an inspector. However, an ordinance allowing tfie Truth-in-Sate
of Housing Board to seT the fees, rather than having therre established in ordinance, was enacted
by the City Council and is set to go into effect November 2000. It is believed the fees will be set
at a level to cover the administrative costs.
Recommendation
Recommendation #19. Code Enforcement should immediately assign an inspector to the Truth-
In-SaZe of FTousing program or the Ciry should contract out the compliance inspections. The
City should main[ain its resportsibility for irrvestigating complaints.
Housing Plan Chapter of the Saint Paul Comprehensive Plan
The Aousing Plan Chapter of the City of Saint Paui's Compreherrsive Plan contains a number of
policies wlvch relate Yo the work of Code Enforcement. T'he Plan is an official City document,
and its policies are City policies to which departments have an obligaLion to comply_ The
foilowing is a brief discussion of each policy and relevant recommendations.
$ousiog Plan Cbapter of the Saint Paul Comprehensive Plao, March 24, 2999
Policy 43a Additional resources should be devoted to the epsting code enforcement imit to be used'm
pazmers[up with neigfiborhood based improvement efforts such as sweeps, Weed and Seed and residential
sheet paviag.
�IIQIAgS
1) Code Enforcement has limited resources, and'nas sCaied iYicy �z �r..y WiP. v^y2i'..�"..°: `N!*
other organizations if overtime funding is available or if the organization provides some funding
for Code EnforcemenYs participation. In the past, Code Enforcement has assisted some City
departments in their neighborhood improvement efforts, such as the Potice DepartmenYs HEAT
progrun. Code Enforcement expressed fivstration with the Police Depaztment in relation to the
HEAT prograzn, as no funding was provided for Code Enforcement to assist with the pmgrazn,
though the Police Department expected them to participate. However, we found thaY the
resolution passed by the City Council providing funding for the fiEAT program appropriates
fimds only to the Potice Department. Therefore, the Police Depaztment was not aufhorized to
B HEAT staads for Heary Enforcemeai Activity for Thirty Days. Ii tazgets areas imowa ro be hot spocs fur criminat
activity. Part of the mission is to improve the quality of life by reducing crime.
2000 Saint Paul Ciry Council Research
Perfarmance Audit of the Ciry of Sai¢t Paul's Cibzen Service OfEce
o ► -�'�
35
provide any funds to Code Enforcement. Code Enforcement can choose not to provide support
to the Police Department for this program, but the Police Department has stated the process of
condemning buildings is easier if Code Enforcement is involved with the property az the onset of
the HEAT progam's involvement with the property.
Recommendations
Recommendation #20. The City Council should allocate funds directly to Code Enforcement to
ensure their participation in the HEAT program if it wishes to continue the program in its
current form. If the City Cauncil does not want Code Enforcement irtvoZved in the HEAT
program, it should specify that Code Enforcement not participate in the program.
Housing Plan Chapter of the Saint Paul ComQrehensive Plao, March 24, 1999
Policy 4.36 The use of administrative fines, razher t6an the current staff-intensive system that involves a
series of waznings and re-inspections, to enforce the provisions of the housing code should be explored
Finding
Code Enforcement currently imposes no administrative fines, although excessive consumption,
described earlier, is an administrative fee. This Comprehensive Plan policy is a move away &om
a staff-intensive enforcement system to a system heavily reliant on fines as the enforcement
mechanism. It also reflects a philosophy different than Code Enforcement's current approach
which emphasizes direct inspector interaction with properry owners to gain compliance, rather
than the unposition of fines. Ttus conflict may also reflect a lack of communication between the
prepazers of the Comprehensive Plan and Code Enforcement.
Recommendation
Recommendation #ll. Code Enforcement should udvise the Planning Commission to change
Comprehen.rive Plan policy 4.3b iffznes are an ine, f� j'ective a less desirable way to gain
compliance fhan is interacting with properry owners through the standurd violations notice
process.
Housing Plan C6apter of the SaiOt Pau1 Comprehensive Plan, March 2A,1999
Policy 43c City staff should work with the Housing Court to determine how best to aclileve a Irigher
success rate in achieving compliance wiih the housing code.
Finding
Code Enforcement, the City Attorney's Of�'ice and the Housing Court have been working
together to achieve compliance, and Code Enforcement states they have achieved a higher
success rate, though we are not awaze of any concrete data to support this assertion.
2000 Sairrt Pau! City Council Research
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36 Perfoanance Audit of the City of Saint Paui's SStizen Service Office
Recommendation
Recommendaxion #22. Code Enforcement, the Ci1y Attomey s O�ce, Fire Prevention, LIEP and
Housing Court should do an evaluation of the services provided and the level of success of the
housing court program and determine areas for improvement or change.
Housing Plan Chapter of the Saint Paul Comprehensive Plao, Marc6 24, 1999
Po(icy 43d Addizional iesources must be identified and vsed in pamierslvp with those cade enforcement
efforts to assist property owaers to make the necessazy repairs and impmvements before there is sigtificant
deterioration.
Finding
Some inspectors aze proactive about giving oui information To property owners regarding
programs and sources of funding, such as low interest loans to assist with repairs, while other
inspectors aze not
Recommendation
Recommendation #23. Code Enforcement should standardize the irrformation given out to
ensure that everyone receives the necessary information. This information could also be given
out to entire neighborhoods that are the focus of Code Enforcement sweeps. This information
should also be made available on Code Enforcement s web site.
Housing Plan Chapter of t6e Saint Paut Comprehensive Plan, Ma'ch 24,1999
Yolicy 4.4 To the eateni possible, fimds available for residenteal rel�abelitazion should be focvsed on
specific neighborhoods and coordinated with public in&astructuce investments in order to aclueve the
maaimum possibte impact and leverege �e greatest possibie privaie investment iLrough aeighborhood-
based planniag processes, distric[ councils, CDCs, business associaaons, block clubs and other key
stalceholders should be involved in both the seleaion of focus azeas and the development of the capital
investment prog-am.
r`lII�lllg
Code Enforcement is not generally directly involved in fhe seiecrion of focus azeas t"or resideriu�
rehabilita4on, but rather works with commvnity groups and other departments once an area has
been selected for tazgeted fimding through programs Iike Weed and Seed They have not been at
all involved in the qpital investment program. Code Enforcement staff mentioned two
recommendations in response to ihis policy ihat we felt were excellent and should be pursued.
Recommendations
Recommerrdation #24. Code Enforcement should be more irrvolved tivith Public Works in the
selection of projects such as alley paving and plowing, curb and gutter installation, street
lighting upgrade, boutevard and sidewalk maintenance and street surfacing. IjCode
Enforcement w�e to assisl with 1he seleclion, they may be able to target resources to
neighborhoods where City i�zvestment would greatly impact the neighborhood arrd increase the
2000 Saint Paul City Council Research
Perfortnance Audit of the City of Saint Pau('s Citizen Service Of�ce
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37
vaZue of the properties. WhiZe in many irtstances these projects deal with quality of life concerns,
rather than safety concerns, they serve to improve and beaut� neighborhoods and increase
people's sense of security.
Recommendation #25. Code Enforcement shouZd provide statistics that indicate which areas of
the City irrspectors spend most of their time and what the common probtems in the area are.
This could provide data which would help decision-makers determine where resources should be
directed. This information could be used City-wide by various departments.
Housing Plan Chapier of the Saint Paul Comprehensive Plao, March 24, 1999
PoGcy 4.5 Improve management and maiateeance of reatal property. Among the most w(nemble
residential struMures ia the city's hovsing stock aze its rental pmperties. Strategies to identify, train avd
suptwrt quality proper[y management services in order to ensise ongoing maintenance and systematic
investment shoWd include:
a Financial incentives (e.g. rental rehab fimds) or reduced inspection Fees for weil managed
properties.
a Mechanisms to place vulnernble pmperties imdet communiTy management and to build the capacity of
comm�mity based organizatioa to provide tltat management.
Finding
Staff suggested the Rental Registration progrdm is one way to incorporate financial incentives for
well-managed properties. Another staff person suggested a similar program be created for the
vacant buildings program. For instance, the vacant building registration fee could be reduced if
the building has few complaints or increased if the building has an excessive number of
complaints.
Code Eiforcement staffhave strong objections to community management ofproperties.
Through their experience, they believe the same code enforcement problems still existed under
community management� This suggests community management may not address the true
reasons for the problems.
Recommendation
Recommendation #26 The Planning Commission should remove, from the Comprehensive Plan,
policy 4. Sc which promotes the placement of vulnerable properties under the management of a
community based organization.
Housing Ptan Chapter of the Saint Paut Comprehensive Plan, March 24,1999
Policy 4.Sd Training and mentoring for new and prospective landlords.
9 Community management occurs when a community group takes over the management of a property.
?000 SainlPaulCiryCourscilResearch
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PerFormance Audit of the Ciry of Saint Paul's Citizen Se�vice OtSce
Finding
The Police Depai2menY has a pmgram called Crime Free Multi-Housing which provides
landlords and managers of rental properties with training on how to keep criminal activity out of
their properties. The full tlaree-day training session is typically held two rimes a year, but a more
informal group meets monthly to discuss issues of concem. Tlus group includes Police and Code
Enforcement staff, other relevant City staff and, most importantly, landlords.
Housing Action Plan 2000
Priority Ac6orts for 2000
321 Code enforcement
a. Strengthen interdepartrnent communication working towazd a coordinated effort to deal with problem
propecties. E�lore possibilities of foiming small information focus groups of City staff to deal with
specific problem properties.
f. Exptore resource oppommiries to go along wiffi code eaforcemeni ia order to eacouiage 'vnpmvemrnt of
uviu and reduce evicaovs and demolition of imits.
Findings
1) Pertaining to policy 3.21a, Code Enforeement currently pazticipates in the Problem Properties
Task Force (formerly the Information Exchange Group) with other departments such as Police
and Fire to address problem properties. Over the yeazs, there have been some plulosophical
differences within this group as to wfiether line staff sfiould be communicating informatly about
these properties, or if the issues had to be dealt with at a higlter management level. The feeling
of the cwrent chair of the task force is that it is more effective if line staff are encouraged to talk
informal[y as tfiey need to outside of the Task Force meetings. However, the Task Force
meetings remain very importanY for ensuring that activides aze formally coordinated.
Some issues have also been raised about sharing information in the group. Some members of the
group prefer to keep information to themselves rathet than share it with others. Tfris group is
vital to keeping communication open between organizations that often interact with the same
properties and people at vazious times.
2) Code Enforcement has sCruggled with how much infoanation is appropriate to provide
P ZO Clt OWLICLS 3ila tCRL@[5 lil OTQ�C�i6 ciiCiiui - 'cu,� "�.. °••,°••`,S:__T* _c. a nhilnc4 h].�_�EtRrilB__
P y � e . ..,.,.,... .-----� �
for them as they are an enforcement agency and are concemed about the mixed messages they
may be giving tenants and property owners if one the one hand they are citing them for property
violations and on the other they are promoting City programs to encoumge rehabilitation.
However, ifie writers of ifie Housing Action Plan 2000 cleariy feel it is important to provide
property owners with information about resoiuces thaY may be availabie to them.
Recommendation
Recommendalfan #27. Code Enforcemeni and the Planning and Economic Development
Department should reach agreement on what irformation about available resources for
rehabiliration is appropriate to provide to properry owners and tenants.
2000 Saint Paul City Cow�cil Research
Perfo[mance Audit ofthe City of Saint Paui's Civzen Service Office
Special Programs 8� Units of Code Enforcement
Rental Registration Program
39 �����
In October 1999, a new ordinance, I,egislative Code Chapter 51, went into effect requiring all
one and two-unit non-owner occupied residences to register with the City. Once the property is
registered, the owner receives a rental dwelling unit registration certificate, which is to be
renewed annually. Prior to this tune, these properties were not required to register and it was
difficult to track these properties and their compliance with housing codes. According to
Minnesota State Statutes, the City of Saint Paul could require these properties to obtain a
certificate of occupancy, which requires periodic inspections to renew the certificate. Howevet,
the City has chosen to tequire a similar yet less stringent dwelling unit registration certificate that
allows for inspections only if the situation meets the specific criteria established in the ordinance.
Code Enforcement and the Housing Informarion Office have been responsible for implementing
this program, and numerous problems have been encountered. The following box contains the
Activity Performance Plan for the Rental Registration prograni.
2000 City Budget: AcYivity PerFormance Plan for the Rental Registrarion Program
17us program enfmces Rmrat Dwelling Umt Regimation, Cdapmr 51 of ihe Legislalrve Code.
• IdrntiSes on� and two- farnily non-owna occupied subject Qroperties and requires regishation and enfomes collection of
fees.
• Lssues RegistraUOn Certificares.
• Revokes, suspends, cancek certificates on probtem pcopeties as provided for by O�dinance.
• Coordinates registrarion and certificare issuance wirh Building Inspecfion Division
• Collects revenue and re�strafion dab and shares this info�ion with other agencies, departments and divisions.
• Provides pmgam infolmafion to the public.
Findings
1) Since the program is relatively new, not all of the problems regazding Rental Registration
have been worked out Specifically, Code Enforcement was inidally condemning properties if
they failed to apply for a registration certificate. The City Attomey's Office has since
determined they cannot condemn properties for tivs reason. Code Enforcement cannot condemn
a building if they have not made the deteimination the building is "unfit for human habitation."
There is a danger under the condemnation section of the City Code that the action could be
construed as regulatory taking. This type of condetnnation is separate from a situation where
Code Enforcement has already conducted an inspection and determined that code violations exist.
However, the ordinance is still enforceable as it is a misdemeanor if a qualifying property owner
fails to register. Other legal issues are being discussed between Code Enforcement and the City
Attomey's Office regazding the circumstances under which inspections can be done. Part of
these conflicts stem from differences of opinion beriveen staff administering the prograni.
�� The City requires a Certificate of Occupancy for rentai dwellings with fluee or more units. This program is
administered by the Fire Prevention Uait of the Fire and Safety Services Departmeni.
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PerFocmance Audi[ of the City of Saint Paul's CiGZen Service Office
2) We leamed from staff that the computer program developed in-house and being used for the
Rentai Regishation program is not effective and is very difficult to use. They aze currently
conveding to the Freelantz softwaze, but have found the systems to be incompatible. Thus, the
information inirially entered in the Rental Regisuation system has to be manually transferred to
the Freelantz softwaze.
3) The Rental Registration prograni is taking longer than anticipated to implement, partially due
to staff resources having been dedicated to the Dayton's Bluff Initiative. This Initiative was not
anricipated when they were planning for Rental Registration.
Recommendations
Recommendation #28. Code Enforce�nent should develop a plan for the administraYion of the
Rental Registratiorr program. It murt address potential infTuences on the program, such as
speeial inftiatives, and how to make the program successful even ifstafJ'resources are limited.
Code Enforcement also needs to plan for implementation of each provision of the ordinance to
ensure they are enforceable. fill staff resporrsible far Reraal Registration should be irrvolved in
the creation of the plan ns well as the City Anorney's Ojj?ce and other relevant stakeholders. As
with mry new program, other staff wuhin the CSO should be educated as to the specifics of the
progrmn in order to prevent confusion over enforcement and administration and to ensure the
information provided regarding the program is corrsistent.
Recommendation #29. Code Enforcement must implement the AMANDA system as quickly as
possible for Rental Regisiration, This would also allow other departments utilizing AMANDA
easy access to the registration data.
Vacant Buildings Unit
The function of the Vacant Buildings Unit (VBL� is to case manage vacant buildings until ihey
are rehabilitated or demolished. The VBU was created in the mid-1960s as a result of a lugh
profile case in wluch a woman was attacked by a goup of inen in an �matteaded, unlocked vacant
building. Since its establishment, the VBU has always been pazt of Code Enforcement It has
traditionatly been pecceived by the Division's staff as an elite unit T1us perception is due in part
xo the belief of some staff that management provides VBU employees with more respect and
resources than regulaz Code Enforcemeat inspectors.
The VBU policies Coancil Research examined for this audit were fovnd in the Saint Paul
Legislative Code and the 2000 City Budget. Most of the Unit's budget objectives aze reiterations
of its responsibilities fointd in the City Code. Therefore, we have listed only 2000 Budget
Objectives to avoid duplication. A list ofthe policies we reviewed are found in the folIowing
table.
2000 Saint Paul City Council Resetvch
Ferformance Audit of the City of $aint pwl'S Grizen Service Office
at ��'
2000 City Budget: Vacant Building Monitoring: Designation ot Services Provided/Ongoing
Objectives
This Program enforces the Vacant Building Legislation, Cl�apter 43 of t�he Legislative Code." This
activity:
1. Idenrifies vscant buildings and "case manages" these properties to eliminaze the public Lealth and public
safety issues associazed with vacant buildings
2. Requires registraLion plans and collec[s regishation fees.
3. Invesrigates complaints on these buildings.
4. Eliminazes nuisance law violations on these properties.
S. Works with the City Council, District Councils, Neighborhood Groups, Biock Clvbs, Police, Fne,
BIDD, and PED on these projecu.
6. Collecis and distributes the vacant building inventory lisu.
7. Identifies "Nuisance Buildings" which are subject to demolition imder activity 30251.
2000 City Budget: Vacaat Building Monitoring: 2001 Objecrives
i. Conduct regutaz inspections of vacant buildings at a minimum of every other month as required by
ordinance.
2. Continue regulaz, routine surveillance of all registered vacarn buildings so citizens do noi have to make
complaiMS abouT miisance conditions at these properties.
I�ndings
Cas�Management of Vacant Buildings
T�acant Building Identifzcation and Registrataon
1) Vacant Buildings aze identified mainly through refeaals from citizens, Code Enforcement
inspectors, and the Police and Fire Departments. Once a building has been identified, a VBU
inspector will evaluate the property in order to make a determination as to whether the property
meets the legal definition of a vacant building or is only considered to be unoccupied.'� Once a
building has been declazed vacant, the property owner is required by City Code to register the
building within 30 days of the declaration. Vacant buildings aze also categoriaed according to
their habitability."
2) The vacant building owner is informed of the registzation requirement through a notice which
states the owner may not occupy the building until it is considered habitable and meets the
standazds found in the Code. The notice also informs the property owner that he or she must
complete a vacant building registration form and submit a fee of $200. The registration form
requires the building owner to provide his or her name, address, and a phone number so s/he may
11 The policies foimd in the 2000 Budget and the Legisiative Code are virtually identical. T6erefore we have lisied
only 2000 Budget Objectives to avoid duplication.
� imoccupied buiiding is a building wtrich is not being used for legal accupancy but it is secured by aoimal
means, that dces not have outstanding housing code violations, and is maintai�d by the property owner.
13 The categories of vacant buiidings aze outiined in Appendix D.
2000 Snint Paul Ciry Councll Reseorch
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4Z Perfoimance Audi2 ofihe CTy of$ain[ Paul's Citizen Service Office
be contacted in the event of an emergency. A placazd is placed on the building staTing the
property has been declared a vacaret bailding. The placard also identiffes the name and phone
number of the inspector responsible for the property.
Irrspections and Complainrs
1) Vacant buildings aze inspected once every three to four weeks. During the inspections, VBU
staff ensure that pmperties aze secured, maintained and are not housing squatters. Atso,
inspectors perform periodic, random spot checks for squatters one night each wee[c.
2) Complaints about vacant buildings typically come in through the Information and Complaint
phone line. These complaiats are entered into the EXI, system and a notice is sent to the
appropriate inspector. CompIaints are also received directly by the inspectors &om citizens who
find their numbers on the placazds posted on the buildings. InspecTOrs prioritize complaint
inspections based on the severity of the situation and will rypicalty wnduct the investigation
within 2 days of receiving ffie complaint.
Demolitions
1) If a properry remains vacant for one year and there are no active building permits for the
property, the demolition process may begin, To begin the process, an inspector will inspect the
property for deficiencies which need to be corrected. A notice of the deficiencies will be sent to
the property owner. The owner has 30 days in which to make the corrections. If, after 30 days
the problems az+e not remedied, a resotution is placed on the City Council agenda announcing a
pubIic hearing before the Legislative Aeazing Officer to be scheduled for 30 days later and a
public hearing before the City Council. After the public heareng before the Legislative Hearing
Officer, the matter comes before the City Council in the form of a resolution requiring the owner
to repair or remove the building wfthin 15 days. If the owner does not comply, the City may
demolish the building.
Community Relationships
1) The Vacant Buildings Unit responds to City Council concems on a case-by-case basis. If
Councilmembers have questions or issues about a parciculaz property, the VBU wil] respond as
quickly as possible. The VBU also provides Councilmembers wiift a qua�terty rep�rt af a?1_
7'w'—^-* �'^—���TM!a an their �'azds• T'hese quarterly reports aze a[so sent to PED staff and other
interested parties who are on a mailing list maintained by the Unit. In acidition; riie iistcis pi,5a:
on the Code Enforcement web page.
2) VBU staff attempt to develop relationships with District Councils by checking-in on a regulaz
basis at their offices and meetings. Inspectors will attend block club and neighborhood group
meetings if they are asked to do so. The VBU atso has weekly conversations with Fire
Department inspectors to discuss issues regazding the Certificazes of Occupancy for vacant
buildings. Tn addition, they also have weekly discussions with PED staff via phone and email
regaz@ing specific properties tltat may be available for redevelopment. Finaiiy, the VBU
supervisor reports that he speaks with representatives from LIEP regazding buiiding permit issues
on a daily basis.
2000 Saira Paul Ci1y Council Resemch
Perfocmance Audit of the Gty of Saiat Pau1's Citizen Service Office
Complaint Reducrion
3) Compiainu about vacant buildings are tracked by the Unit According to VBU staff, they
appear to be going down, but'no analysis is done by the VBU to determine why complaints are
decreasing. Staffreport thaz anecdotal evidence suggesu the decrease is the result ofthe high
demand for housing in the City which has caused property owners to better maintain their
properties so they can more quickly be occupied. According to interviewees, the VBU is not
provided with the complaint reports produced by the Tnformation and Complaint Division.
43 ���°�
Recommendation #30: The CSO's Information and Complaint Division should provide
complaint reports cmd complaint resolution feedback reports to the Pacant Buildings unit. This
information should be used to assist the Yacant ButZdings Unit in determining how well the case
managemettt system is working.
Recommendation #31: The Yacant Buildings Unit shouZd develop more meaningful budget
objectives which are more than just reiterations of City Legislative Code. The unit should
review both their ongoing and an�rual budget objectives. New objectives should set goals for the
unit which go beyond what is required by Code and are pertinent to special initiatives to be
taken in the coming year. The lack of ineandn�'ul budgeY objectives is an issue for mosr of zhe
CSO's budget areas.
Special Initiatives
For the purpose of this audit, we define special initiatives to mean any new project or program
developed by Code Enforcement to address a specific problem. These initiatives are usually pIlot
projects or temporary in nahue. There aze sevetal policies pertaining the Office's special
initiatives found among its budget objectives in the 2000 Budget.
2000 C�ty Budget: Code Enforcemeot - Property Code Enforcemeut Objectives
1. Identify and target those properties which generate repeat complaints, and which comprise
continua] nuisances and biight in the residential neighborhoods. Educate those property owners
and occupants thmugh the use of all existing enforcement options, including enforcement of use
of service (zrcessive corrsumption of exterior inspection services) ordinance.
2. Reduce the number of complaint calls to the City by proactive surveillance patrols.
3. Conduct scheduled surveys of neighborhoods in the City where conditions warrant closer
monitoting by enforcement officers.
PP2000
Code Enforcement's primary initiative far dealing with chronic problem properties is PP2000
(Problem Properties 2000). The program began in January 2000 as the result of a Mayoral
direcrive to develop a prograzn to address chtonic problem properties. This program idenrifies
pmperty owners who have had repeated complaints against their properties and assigns these
property owners to an inspector who case manages the owner's properties. Property owners were
originally selected by senior leaders based on the zecommendations of Code Enforcement
2000 Saint Pau1 City Courscil Research
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Perfocmance Audi[ ofrhe Ciry ofSaint Paui's GNen 5ervice Office
inspecto�. The Code Enforcement inspectors pro-activety work with the property owner to
encourage them to better manage their properties. In the words of one senior manager, the basic
philosophy of the progam is that "if you cure the probtem proper[y owner, you cure the
problem." Working with the owner is viewed by management to be more effective than
addressing the properties because by addressing the mosi ptoblematic property owners and all
their properties, the Division is able to capture a lazger number of properties than if it was
focusing on individuai properties.
Findings
1) The decision to include certain property owners in PF2000 is based primariIy on anecdotal
information provided by the inspectors. No specific, imiform ctiteria was azticulated for
inctusion in the PP2000 program.
2) Results of the prog�run have baen measured thus far targely by iuformai and anecdotat reports.
Code Enforcement officials believe that many ptoperiy owners in the PP2000 program are eithet
rehabilitating their properties or setling them. As far as we were able to discem, there are no
serious efforts to quantitatively evaluate the program's success.
3) The program dces not address owner-occupied properties nor dces it identify owners who have
a small number of rentat properCies in the City that are chronic problem properties. These
properties comprise a substantial proportion of atI properry code violations.
Recommendations
Recommendation #32. IfPPZ000 is to continue Code Enforcement should articulate criteria for
inclusion in the PP2000 program. The criteria should be based in pm7 on quantitative data such
as complaints about the address, the number of citations issued to the properry, and pvlice calls
to the property.
Recoramendation #33. Code Enforcement should immediately compile and analyle data
relating to the PP2000 program to determine its ef, j'ectiveness and worthiness.
Recommendation #34. Cade Enforcement should develop a program to address problem
properties whick are not included in tire �?2G30 pragram, sz:ch.ls awner-occupied cand other
rental nroperties not owned by the subjects of the PP2000 program.
Dayton's Bluff Initiative
This project is a coordinated effort between the Code Enforcement Division, Police Department,
the Fire Depamnent, the Housing Information Office and City residents Yo address code
enforcement violations and the associaYed problems which they may create, such as crime aad
lower property values, in the Dayton's Bluffneighborhood. The project began in February 2000
and is currently scheduled to run through December 2000. Code Enforcement has devoted the
equivalent of one full-time inspector position to the effort. They have also worked with
neighbors to develop citizen patrols and use "good neighbor notices,° which are cards that ask
property owners or tenants to clean or fix something and Yhank them for helping to make the
2000 Saint Paul Ciry Coanci[ Resemrh
Perfocmance Audit of rhe Ciry of Saint Paul's Citizen Service pffice 45 O ���
community better. The program has been viewed as a potential model for other City
neighborhoods with a significant number of problem properties. However, the initiative has been
perceived by some senior management and front-line staff as being driven by people from
ouuide the departmern (i.e. the Housing Information Office). This view has created problems
getting Code Enforcement inspectors to buy into the initiative. Also, for the first three months,
staff were supposed to collect data but did not, according to senior Code Enforcement staff.
However, in a report prepazed for a City Councilmember, data was retrieved from Code
Enforcement files and "good neighbor" code violation notices.
Finding
I) Code Enforcement has done some data collection on the Dayton's Bluff Initiative, but limited
systematic evaluation of the Initiative has occurred. Staff cite the timitations of their data
collection system as part of the reason for the limited evaluation, though an intem for a City
Councilmember was able to collect and analyze data for a report on the Initiative produced for a
Councilmember.
Recommendation
Recommendation #35. Code Enforcement should perform a systematic evaluation of the
Dayton's B1ufflnitiative. This would irrvolve collecting more comprehensive data on the
Dayton's Bluff Initiative to determine its e,�'ectiveness, pmticularly if it is to be e.zterrded or used
as a model in other neighborhoods.
Sweeps/Surveys
Finding
The budget states Code Enforcement will conduct periodic surveys (sweeps) in neighborhoods
which require closer monitoring for Code Enforcement violations. Typically, sweeps involve a
majority of the Code Enforcement inspector, who spend several days in a predetermined
geographic azea pro-actively seeking code enforcement violations. Sweeps focus on primarily
three types of violations: tall grass and weeds, junk cars and garbage. Until a couple of years
ago, the Division conducted 50-60 sweeps a year. In 1999, six sweeps were conducted and so far
in 2000, only one has taken place. With the change in senior management, the division changed
its philosophy regarding the value of these activities. C�rrently, sweeps are not done unless
requested from neighborhood groups or elected officials and they have an outside funding source,
such as Weed and Seed (a federally-funded prograui conducted joinUy with the Police
Department). Current management views sweeps as a superficial response to more systematic
problems. Sweeps require a great deal of time and effort on the part of inspectors. Tnspectors
must not only conduct the sweeps but must also spend rime writing tags and doing papenvork. If
a choice has to be made beriveen allocating resources for sweeps or for routine inspections, this
time and money, senior managers azgue, would be better spent on traditional inspections.
However, when coupled with routine enforcement activities, managers suggest sweeps aze
worthwhile and effecrive. At the time of writing this report, Code Enforcement determined they
have some unanricipated resources as a result of staff changes in the Division, and decided to use
2000 SaiM Peul Cily Councrl Research
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�' Performance Audit of the Ciry of Saint PauPs CiSun Service Office
the money to conduct sw�ps. City Councilmembers were asked to identify any azeas wittrin
tlteir wards where they woutd iike sweeps conducted.
Recommendation
Recommendation #36: Code Enforcement should collecr data to determine the efJ'ectiveness of
sweeps. If they are found effective, the City Council should provide special funding to conduct
them in addition to routine Code Enforcement activities.
2000 Saint Paul Ciry Council Research
Perfortnance Audit of the Ciry of $aint Paul's Citizen Service O1Tice
CJR�ANIZAT'IONAL QUALITY
ASSESSMENT
The efficiency and effectiveness of the Citizen Service Office aze evaluated using an
Organizationa] Quality Assessment. While there aze several methods to evaluate effectiveness
and efficiency, our approach is based on work done by the organizers of the Malcolm Baidrige
National Quality Awazd who identified the characteristics of a high-pecforming organization.
47 � t —� r
The study of high-performing organizations has typically identified seven characteristics believed
to be essential for an organization to achieve excellence. These criteria have been identified from
studies over many years and aze widely accepted as indicators of organizational excellence. Our
criteria, based on that used by the Malcolm Baldrige National Quality Awazd and the Minnesota
Quality Award to assess organizational development and to identify quality organizations, aze
summarized in the table on the following page . None of the quality categories stand alone.
Each impacts the other, and all are essential to achieving a high level of performance. Quite
often improvement in one quality category will positively impact another. For example,
improvement in the category of Information and Analysis often significantly impacts both
Results and Improvement Processes.
Each of these quality categories is a chapter in the report, and each chapter contains the ratings, a
discussion of the quality of the organization, and our findings and recommendations. In addition
to the Results chapter, which focuses on organizational outcomes, an overview of performance
measures and their potential applicarion in the CSO is provided in the Performance Measures
chapter. Performance measurement in this performance audit means ffie regular collection of
specific information about the effectiveness, quality and efficiency of services and pro�rams.'"
The suggested measures will enable the CSO to evaluate on its own whether the resources
expended (labor or financial resources) on an activity aze used efficiently, have the intended
effect and result in a quality outcome. Measures can be based on information obtained from
written records, observations by specially trained staff or through surveys of customers. This
performance audit will examine existing performance measures and suggest other performance
measures. However, the audit will not perform the actual measurements.
The table on the following page outlines each quality assessment category, the key concepts that
comprise that category, and the pages on which the operations of the Citizen Service Office aze
described in relation to the quality category.
14 i'he Urban Institute (1980). Perjormance Measurement: A Guide for Local Elected Officials. Washington D.C.:
The Urban Institute, p. I.
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48 Per foimance Audit o f t he City of Saint Paul's Citizen Service Office
Assessment Categories
Quality Category Key Concepts Discussed on Pages:
Planning
Internal Plans
Plan Development
Plan D'assemination & Implementation
50-53
Leadership
Mission, Vision, Values
Stakeholder Relationships
Staff Recognition
TPaining & Training & Education Resources
Development Employer Commitment
Employee Conhibution
Work Environment
Labor-Management Relationship
Employee Evaluation
Information and
Analysis
Collection of Data
Analysis of Data
Effective Use of Automation Systems
Processes for
54-58
59-64
65-69
Idenrification of Potential
Improvement �provements
Implementation of Improvemenu
Evaluarion of Improvement Practices
Customer Focus
Resalts
Customer ldentification & Knowledge
Measuring Customer Satisfaction &
Needs
Customet Service Practices
Customer Service Standards
Otganizational Outcomes
Financial Outcomes
Customer Satisfaction
Use of Performance Indicators
Criteria Ratings
70-73
74-78
79-83
We have gathered a wealth of informarion about the various activities of the CSO while
conducting this performance audit. Although capturing all of tivs information in any rating
system is impossible, we believe ratings will help decision-makers grasp the essence of the
2000 Saint Pau1 Ciry Council Resemch
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Performance Audit of the City of Saint Paut's Citizen Service �ce
49
information. We have developed a simple summary rating system we believe conveys the
essence of our findings. We intend ihese ratings to reflect what interview subjects have told us
about the CSO. While organizations and processes consist of individuals, we intend the ratings
to reflect current organizational practices and they should not be interpreted as judgements about
individuals.
The summary ratings for the quality categories are intended to poRray both the level of
development and the level of integration of each quality criterion. Development, in this
performance audit, means the extent to which highly-valued organizational characteristics aze in
evidence. They should be systematic, manifest, pro-active, fact-based, and evaluated.
Integration refers to the extent criteria are practiced. It is possible, indeed likely, for criteria to be
practiced in some parts of the organization, but not in others.
The summary ratings used for the quality assessment are:
**** Criteria fitlly developed and practiced throughout the organization.
*** Criteria well developed and prac6ced throughout most of the organization.
ic �c Criteria present and practiced in some parts of the organization.
* Criteria very rarely present or practiced in the organization.
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50 Performance Audit of the C iTy o f Saint Pa C itizen Secvice Office
PLANNING
Quality Rating: �
Planning is an activity that incorporates a suong
future orieatation and a willingness to make
KEY CONCEPTS: -
❑ Internal Plans =
❑ Plan Development Participation =
❑ Pian Dissemina[ion & Implementation
long-term commitments to stakeholders. High-perfomming organizations aciively engage in
planning and recognize the impact not only of intemal changes, but also of environmenta]
factors, on the organization. Planning considers resource allocation, economic projections, futwe
needs of employees, future customer needs and expectations, technological developments and
stakehoider requirements. Plans can be long- or short-term, issue specifiq organizational-wide,
departmental-wide or unit-wide. In order to be effective, plans need to be catt out and
updated frequently.
Office-Wide Planning
The CSO performs a wide variety of functions, and should therefore have plans that incorporate a
variety of activities. However, the only office-wide "plan" we discovered is the set of "Strategic
Plans" co�tained in the annual budget. The CSO's "Strategic Plans" are really not plans at al1.
Rather, they aze a set of goals and functions. A meaningful organizational strategic plan would
provide a clear set of steps to achieving goals and making the vision a reality. Many of the
objectives in the CSO's "Strategic Plans" aze vague, such as: "Sttengthen the City's approach in
deiiveting City services." If this was a true strategic plan statement, it would include a closed-
ended statement with specific steps to take to achieve the goal, and a time line for
implementation and/or completion. To change the aforementioned statement to an actual plan
objective, the CSO could add an action statement at the end to explain what steps the Office will
be taking to strengthen the CiTy's appmach. A strategic planning process should also include
stakeholders and customers, which the CSO has not done. In addition, the "Strategic Plans"
developed by the CSO have remained essentially the same for at teast the last three years, with a
statement pertaining to the Code Enforcement Division added to the 2001Propased Budget.
T?te lack of �lanning in the CSO is exemplified through their disjointed process of implementing
a new computer system. The CSO is replacing the EXL system, but has not made any ciear
�i5i.5 iv yi:?au.�.^'�.�:�-. °:'.'— ��etgm__ i2aY}SCT__ftl3D 1tI7hLCA7ERtlllg E�E1N�l�� 2S Of}1CL CIEp3Tf[RETItS
such as the Office of License, Inspections and Environmental Protection and Fire Prevention and --- -
Inspection unit aze doing, the CSO chose to first go with cheaper softwaze from Freelantz, with
the expectation they will implement AMANDA later. The Freelantz softwaze is not operating
well; therefore, it would have been advisable to impiement AMANDA instead af wairing until
LIEP was done in the hope that the problems with the system would be worked out by LIEP. To
15 See the CSO's "Suategic Plans" in Appendix B
16 For more infortnation on creating a strategic planning see: Bryson, 7ohn. (1995). Strategic Planning for Pub[ic
aird Nore-Profrt O,gancationr. Jossey-Bass. San Francisco, CA.
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undertake such a groject without a clear plan ta guide actions makes implementation faz more
difficult and leads to unnecessary eacpenses being incurred.
Marketing & Promotions Division
51
The Marketing and Promotions Division of the CSO has made a commitment, through an
administrative order approved by the City Council on Apri126, 2000, to develop and implement
a year-long, multi-level marketing plan to celebrate Saint Paui. The Markering Director
presented their plan to the City Council and highlighted how the various activities they were
planning fit into an overal] theme of "Rediscovering Saint Pau3." Because much of the
Mazketing Division's work is project oriented, their plans aze short temt and project specific,
such as the plans for the "ilovestpaul.com" website and the Peanuts on Patade eachibit.
Marketing staff shared with Council Research written, specific objectives, tactics and events
designed to fiilfill the vision for Saint Paul's sesquicentennial celebration. Mazketing staff also
met with each Legislative Aide az the beginning of the'u current terms to discuss mazketing goals
for their wazds, and plan to make these meetings annual. They will also be developing an"afteo-
Snoopy" plan to build on the success of the Peanurs on Parade project.
The City's website developers aze atso part of the Mazketing and Promotions staff. It is not as
clear they have a particulaz plan for web development, though the City is currently involved in
developing plans for a-govemance efforts Ciry-wide. However, it does not appear the website
developers have a specific plan for their work or the assistance they provide to other departments
with their respeetive websites.
Information and Complaint and City Clerk/Records Division
Staff in the Information and Complaint and the City Clerk/Records divisions of the CSO were
lazgely unawaze of the Strategic Plans contained in the budget, though many of the objectives are
within their realm of resgonsibility. The divisions also have no plans ffiat pertain specifically to
their work. Planning would help balance workloads, share information and prepaze for futute
changes, such as those relating to the new computer systems.
Code Enforcement Programs Division
Within the CSO, there is no overail plan for Code Enforcement. Reasons staff offered for the
lack of planning in tivs area are: 1) their work is complaint-based and therefore reactionary; 2)
their work is often influenced by political decisions; and, 3) they have too much work to do to
take time to plan. We courner that these aze the reasons a department should create plans. Plans
can provide a framework for discussions about prioritization of projects and fimction as a
workload management tool.
While there ue no plans for Code Enforcement, the Vacani Buildings Unit has stated they have a
glan m address long-term vacant buildings (vacant buildings that have been on the vacant
building list for more than one year). However this is not a written plan. The Vacant Buildings
Unit stated they aze able to manage their daily work better as a result of having even these
informal plans and ihey ate able to address problems more proactively by laying out the problem
and mapping so]utions to it. However, the fact remains that without a specific written plan,
2000 Saint Pnul Ciry Cowci] Ruearch
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SZ Perfoanance Audit of the Ciry of Saiai Pwl's Citizea ServiceOff+ce
implementation and continuation of the plan will be difficult. Other specific special programs
within Code Enforcement, such as Rental Registration, could benefit &om having a plan to
address and mitigate the problems they are now facing with implementation, as discussed in the
Code Enforcemeai policy corrcpliance section.
O[her specific plans have been created by Code Enforcement together with community groups
when they have been approached by the community groups to participate in prograttis like Weed
and Seed, a federally funded progaun to which communiries can apply for fimding for special
projects. Recently, the Railroad Island community conuacted with Code Enforcement as part of
Weed and Seed funding they received, and Code Enforcement developed a plan with the
community to provide staff and rime for concentrated code enforcement sweeps.
Plan Dissemination and Implementation
Most front-line staff seem unawaze of the "Strategic Plans" contained in the budget, even though
the pIan has been included in the budget for at least the past three yeazs. CSO staff were not
involved in the development of the "Ptans" (50 pe�ent of CSO staff report they do not
participate in planning and 23 percent neither agree nor disagree that they parkicipate), nar has the
plan been discussed with them by managets and supervisors. When asked in interviews who
would be responsible for implementarion of the "Plans", the overwhelming response was the
managers. It is possible that, because the CSO has few plans, many named managers assiuning
ttus is a management responsibility.
5ummary of Findings
1) The majority of general planning that occurs in the CSO invoives upper-level management
only. Some of the project-specific planning, such as Weed and Seed programs, also involves the
affected communities. The Marketing and Promotions Division cteates detailed plans for their
projects. The Vacant Buildings Unit states they have some informal, unwritten plans.
2) The "Strategic Plans" contained in the budget are not plans. Rather, they are a set of
objectives and fiutctions that contains no time line or implementation information, The concepts,
as stated in the budget, aze not specific enough to be truly meaningful or manageable.
3) Few staff are awaze of any CSO plans, except for specific project plans in ffie Marketing and
- --- -- -
. _ . .
__rYVPIi6`uviu^'viv.SiGiati ----'-�- -' --- --- -�----
4) Reasons offered for failing to create plans, such as heavy workloads aad the effect of outside
influences on their daily activities, are actually strong azguments for the creation of plans.
5) The CSO, with a few exceptions, has not included iu stakeholders or customets in its very
limited planning activities.
Recommendations
Recommendation #37. The CSO should create a true strategic plan with outcomes, time lines
arrd action steps. It should involve all staffand representative stakeholders and customers in its
2000 Saira Paul City Counci[ Resemch
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53
development, rmd make sure that all staff ine made aware of the plans and how they contribute
to achieving oufcomes. All divisions within the CSO should have plans relating specificalZy to
their work which help them manage worktoads artd expectations, and to anticipate potential
changes. The need for planning in Code Enforcement is particularly apparent. Plans would
allow them to better manage sta,ff work assignments_ The CSO should di.scuss the plarzr with the
Council and Mayor to garner their input.
Recommendation #38. The CSO should engage in planning prior to implementation of the
AMANDA system to errsure the system is functional for staff, and to assist them in managing the
training and workloads during this period.
Recommendation #39. The Marketing and Promotions Division should solicit Council input
annually during Marketing's planning process for the upcoming year.
Recommendation #40. The CSO should create a plan for the City s website development. This
would assist the O,�ice in guiding other departments through the development of their own web
pages and clearly state the time frame and expectations for development.
I000 Saint Paul Ciry Council Research
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PerFonnance Audi[ of the City of Saint Paul's Citiun Service Office
LEADERSHIP CONCEPTS: _
❑ Mission, Vision, Values =
Q Ua�lt Ratin : �'/2 ❑ StakehoiderRe(ationships _
Y 9 ❑ Staff RecogniNon
Senior organizationa] leaders need to set direction,
-�_—�� _ -�.--«_--�
create a customer focus, establish and articulate a
cleaz vision and communicate and make visible the values of the organization. Reinforcing
values and expectations requires personal commitment and involvement. Leaders need to take
part in the creation of strategies, systems and methods for achieving excellence. These systems
and methods need to guide all activifies and decisions of the organization. Leaders must also
recognize the role of stakeholders in these processes, and maintain positive relationships with
them. Finally, stafF need to be recognized for their contributions to the organization and its
mission, vision and values.
Many of an organization's policies and practices aze derived from strong leadership principles.
In this discussion, we look at six leadership azeas: mission, vision, values, communication,
stakeholders and staffrecognition. Good leadership works to ensure that all in the organization
understand the organization's purpose — its mission — and where the organization is going - its
vision. Good leaders also ar[iculate values cleazly and exempiify them on a daily basis. Strong
leadership involves good communication between managers and line staffand is aware ofthe
need to recognize staff for outstanding work.
�1SS10�
The mission and vision must be cleazly articulated from the top of the organization down. This
is a vitally important characteris6c of a high-performing organizarion. The following is CSO's
mission statement:
The Citizen Service Of,�ce consists offour divisions — City ClerkRecords, Marketing &
Promotions, Code Enforcement Programs and Information and Complaint. Together, the
employees of the Cirizen Service Office maintain Saint Paul's official recorded history,
promote its viiaii'ry arsd divErsi�y, :u'e :.��Yr�c�?i>>e s�l�raons to correct eode violations,
and help resolve citizen issues related to City services by serving as advocates and
- ---- ..
_. _
liaisons. _ _. __ _ _ __
The mission statement for the CSO was developed witti the heip of Human Resources and
involved the Director, the Deputy Ciry Clerk, Division managers and some staff prior to the
incorporation of Code Enforcement into the Office. Shortly thereafter, the statement was
enhanced to reflect the current composiYion of the Office, which now includes Code
Enforcement. If the divisions that make up the CSO were to be sepazate departmenYS, each
would have their own mission statements that may not be much alike. This is evidenced by the
fact Code Enforcement has been working under the informal direc6ve to "enforce the City code
and improve the quality of life in Saint Paul." Some in Code EnForcement view this mission as
being contrary to the mission of ttte CSO. The CSO Director has a]eadership style that
emphasizes customer service more than enforcement.
2000 Sain� Paul Cily Council $esemch
Performance Audit of the City of Saint Paul's Citizen Service Office
55 01' ��
Forty-eight percent of survey respondenu believe the Director and managers effectively convey
the mission to staff, 27 percent say they do not, and 24 percent neither agree nor disagree. This
may be the result of many staff from the Office reportedly having not seen the mission statement.
It was appazent from interviews that although a majority of staffhave not seen the mission
statement, they do adhere to its ideals and believe their mission is to serve the citizens of Saint
Paul.
�1S10I1
Given that the vision should be clearly articulated from the top of the organization, we identify
the Mayor as having the ultimate responsibility for communicating a vision to staff, whether this
is communicated directly from him or through department and office directors. According to
survey responses, only 24 percent of employees believe the Mayor effectively conveys a cleaz
direction for the future of CSO. However, those interviewed responded that they have a sense of
the Mayor's vision for the Office and feel he supports the work they do.
Only 31 percent of survey respondents believe the CSO director conveys a clear vision for the
future of the Office. When we asked staff about the vision they receive from the CSO director,
several stated he conveys a similaz vision to that of the Mayor. However, some employees,
especially those in Code Enforcement, felt he lacked an understanding of their duties and
therefore it was difficult for him to azticulate a cleaz, meaningful vision. The Office admits to
being in a reactive rather than proactive mode which enhances the effect outside pressures can
have on the Office. Some staff believe the Director is too sensitive to these outside interests.
This point will be discussed further under the Training and Development section.
Values
When asked about organizational values, CSO employees demonstrated a cleaz understanding of
the values. Although the divisions within the Citizen Service Office are different, managers and
senior leaders are very cleaz about the level of politeness, faimess, common sense and decency
they expect from the employees. These values aze not written down, but staffhave a thoughtfiil
grasp of the professiona]ism required and demonstrate these values. According to the survey,
about half the staff aze aware of the values they aze expected to demonstrate; 51 percent reported
the Directar and managers convey the core values of the organization while only 20 percent of
respondents stated they do not. Also, interviewees cited several examples where core
organizational values were, in fact, demonstrated by the I?irector and managers. These values aze
disglayed through such things as their willingness to pitch-in and help line staf� their flexibility,
their professionalism and their willingness to listen to staff concerns.
Communication
Within the CSO, communication at all levels could be improved. Survey results demonstrated a
split between those who agree that communication wiUvn the CSO is effective and those who do
not. Some interviewees expressed frustration about not being kept up-to-date or included in
management decisions. All-staff meetings aze not held frequently, though staff report
information is disseminated thtough e-mail and word of mouth. Interviewees also stated there is
a strong "us versus them" mentality throughout the organization. Despite these significant
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Perfom�ance Audit of the City of SaiM Paul's Cilizen SeN�ce Office
issues, 75 percent of respondents surveyed felt that mar�agers aze visible and in interviews staff
stated managers aze accessible and have an open-door policy.
Communication between the divisions is poor. It was reported that communication between the
Mazketing and Promotions Division and the Informarion and Complaint Division suffers because
Mazketing does not receive weekly updaYes from the Information and Complaint Division They
would like information and compiaint data identifying the questions and complaints received that
are related to Marketing events. Likewise, it was reported that Marketing occasionally fails to
update lnforatation and Complaint Division staff about marketing projects ihaz require
Tnformation and Complaint staff to give out rimes, locarions and other information about events
Lo the public.
It was also revealed that the InformaYion and Complaint Division has communication problems
with Code Enforcement inspectors. These problems concem such issues as if and when an
inspection occurred. Inspectors also believe that Information and Complaint personnel do not
understand what Code Enforcement does, and they are concemed about whether Information and
Complaint staff aze providing accurate informarion to the public.
Communication within Code Enforcement is still rather poor in soine respects, despite the
changing work environment. Some staff in Code Enforcement are not included in discussions
because of the past lustory of their role in the organirarion and their relationship with others in
the Division. In some cases, management and staff have conflicted over various aspects of a
program, such as Rental Registration and the conflict over whether to condemn a property if the
owner fails to apply for a registration certificate. Communication between Code Enforcement
clerical staff and Code Enforcement managers could be impmved. Certain staff feel they are not
heazd by management. Some Code Enforcement clerical staff also feel it is difficult to connect
with inspectors. They feel they aze not told thiugs unril the last minute wluch makes them feel
excluded and undervalued. Part of this problem may stem from the fact that the Vacant
Buildings Unit and all cletical stafF, with the exception of one person, aze koused in the City
HaIU Cour[house building, while other Code Enforcement staff are aY the Police DepaztmenYs
Eastem Patrol District building. Code Enforcement views the hiring of an office manager as a
posirive step in aiding communication between clerical staff and inspectors. The fact remains
that communication in Code Enforcement is vital particulazly given the changes and upheaval the
Division has experienced in the past few years. We also recognize tUat some of these
communication probiems ��ort, fram pe:s�r.a: .^^�fl:e*s ��n eanployees - conflicts wluch
have created an atmosphere that has hindered clerical staff's ability to communicate with one
another and other emnlovees �e Csu. — -
Stakehoiders
Positive stakeholder relationslrips aze essenriai to maintaining strong leadership. Leadership
must be able to identify its stakeholders and understand their needs, and incorporate those needs
into the departmenYs planning processes. Stakeholders are "auy person, group, or organization
that can place a claim on an organization's attention, resources, or output or is affected by that
output "" The quality of stakeholder relationships should be based on communication, fulfilled
�� Bryson, Joha Strategic Planning for Public and Non-Profit Organizations. Jossey-Bass, 1995, Page 27.
2000 Saint Paul Ciry Council Research
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Perfo�mmce Audit of the Cay oFSaint Paul's Citizen Se�vice Office
expectations, and information sharing. CSO's stakeholders include the Police Department, the
Fire Department, LIEP, Ramsey County, community organi�ations and elected officiais_ Many
of these stakeholders aze discussed in the Policy Compliance section. Overall, the CSO
maintains funcrional stakeholder relationships, though certainly communication could be
improved between some of them, such as the City Council and the CSO regarding complaints
and satisfaction razes. They also have not incorporated their stakeholders' nceds into their
planning processes.
Staff Recognition
57
Forty-svc percent of staff surveyed agree the Director and managers effectively recognize staff
contributions, while the remaining 54 percent either feel their managers do not recognize stafF
contributions or they neither agree nor disagree that contributions aze recognized Interviews
revealed staff recognirion is informal and takes the form of "thank you, good job" and "atta-
girls." Management has also held pizza parties and other informal gatherings to thank staff for
their work. However, interviewees were not awaze of any plans by senior leaders to create a
formal recognition system to recognize ouutanding contributions to the organization. Without a
formal, organized recognition system, recognition can seem azbitrary, and many staff may not be
awaze of any recognirion shown to employees, as the survey results indicate. T1us problem
extends faz beyond any one department; ihe City no longer has an employee recognition
program, which has left employees wondering to what e�ctent City leaders value their work.
Summary of Findings
1) Although a majority of CSO staff have not seen the mission statement, they do adhere to its
ideals and believe their mission is to serve the citizens of Saint Paul. There is some
disagreement in Code Enforcement as to whether the mission is enforcement or customer service.
2) CSO staff demonstrated a clear imderstanding of the values that are expected of them despite
the fact that the Office has no fornial values statement. Staff stated the managers exemplify the
values.
3) Communication between the divisions, between the clerical staff and the Director, and
between clerical staff, inspectors and managers is generally poor. There is a strong "us vs. them"
mentality within and between some divisions.
4) The Office does not have a formal employee recognition program, though they do recognize
staff through other informal means. The City also discontinued the City-wide recognition
program.
Recommendations
Recommendation #41. The CSO should revise its mission statement and involve all CSO staff in
its development. This could be done in conjunction with the development of an Offzce-wide
sbategic plan. See also recommendation #37 in the Planning section.
2000 Saint Paul City Courtci! Research
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Perfoituance Audit of the Ciq of Saint Paul's Citizen Service 06ce
Recommendation #42. The CSO Director shouZd schedule monthly a11-staff ineetings for
dissemination of information between divisions and staffrecognition. Unit-wide meetings should
also be held on a regular basis.
Recommendation #43. The CSO should establish an employee recognition program and make
recognition an important part of daily worlc Employees should be included in the formation of
the program to determine what types ofrecognition are most meaningful to staff.
Recommendation #44. Senior leaders should formalize the values of the Ofj'zce and integrate
them into formal customer service standards. Staffshould be directly imolved in this process.
Recommendation #45. CSO leadership should work with employees to develop a strategy to
mitigate the "us vs. them" mentality that occurs beiween staff. The OfJice should work to create
a sense of employee ownership of the CSO.
2000 Saint Paul City Council Resemch
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Performance Audi[ of the City of Saint Paui's Citizen Service Office
TRAINING &
DEVELOPMENT
Quality Rating: ��
�Y]
KEY COP3CEPTS:
D Work Environment
a Employee Involvement
❑ Employee Evaluation
o Labor/Management Relationship
n Education & Training Resowces
Employees in successfui organizations aze provided the tools they need to deliver quality
services. T4iese same employees are given encouragement and the resources to develop a set of
ski]ls that allows them to contribute effectively to the organization. For example, if an
organization values continuing education for its employees, it will provide workers the
opportunity and resoucces needed for them to attend classes, seminazs and in-house trainings. A
successful organization also creates an environment which increases the growth and well-being
of its employees. Finally, organizations should link the training of their employees to the
organization's goals and priorities. This connection should occur through the development and
implementation of a long-term strategic plan tied to basic organizational values.
CSO Work Environment
Code Enforcement Merger
The merger of Code Enforcement with the Citizen Service Office has resulted in a number of
perceived and reported improvements in the Division's work environment. Almost all the
employees interviewed reported the motale and leadership of the Division have improved. Staff
credit much of this improvement to a change in Code Enforcement management and that the
CSO has provided a much more supportive environment than the one that existed under the Fire
Department. Also cited as a major improvement was the creation of the Supervisor of
Inspections position, which is a level of management between the Manager of Code Enforcement
Programs, who oversees the entire Code Enforcement Program, and the program supervisors,
who are assigned to individual areas in Code Enforcement. Staff expressed they appreciate
having someone with the technical knowledge about Code Enforcement inspections in upper
management and can act as an intermediary between front-line staff and CSO senior leaders who
do not have Code Enforcement backgrounds. They also reported the Supervisor of Inspections is
very accessible and that it is beneficial to have the Supervisor present at the Police DepartmenYs
Eastern Patrol District O�ces and available in the field. The facility at the Eastem Patrol
District is reported to be a significant improvement over the previous offices where the Division
was housed. In the new facility, there is more space and an open floor plan which allows
inspectors to easily talk to one another.
Despite these achievements, there have been a number of problems created by the merger. Staff
reported the three mergers it has experienced in ffie last five years have created a tremendous
amount of instability and distraction for staff. Few Code Enforcement staff members identify
themselves as employees of the CSO and aze hesitant to get too comfortable with this label.
2000 Saint Paul Ciry CounCi7 Reseetrch
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Performaace Audit of the City of Saint Pw2's Civzen Service OAice
More importantly, many Code Enforcement employees feel their mission is incompatible with
rest of the CSO, as discussed previously in the Leadecship section. Code Enforcement
employees claim the customer service mission of CSO contradicts their mission of enforcement.
While we do not believe these concepts aze necessarily mutually exclusive, we did find enough
evidence to conclude that this difference in philosophy creates significant tension and a very real
discortciect between Code Enforcement and the rest of the organization.
Another difficu1Ty created since the merger is that Vacant Buildings Unit and clerical staff aze
located downtown in City Hall and are separated from tUe inspectors who aze at the Eastem
District Patrol Offices. This situation has created communicarion and morale problems for the
Division. Traditionally, there has been a high degree of collegiality among inspectors and the
rest of the staff. FIowever, it was reported that since the staffhas been split apazt, camaraderie
has sufFered and the Code Enforcement clerical stafF feel especially alienated &om the rest of Yhe
Division. Regulaz communication between different units of the Division has beere made more
difficult. Perhaps the best indicarion of this fact is the Division has not conducted an all-staff
cneeting in sis months. Inspectors did report, however, that they aze pleased with their new
location, despite the communication problems.
Political Influence
It was frequently mentioned by senior leaders and &ont-line staff that the CSO is wlnerable to
polirical pressures. Several respondents reported that Councilmembers, the Mayor's Office and
the media have a tremendous influence over the practices and plans of CSO. Although it is
entirely appropriate for these parties to take a keen interest the operarions of government
agencies, many front-line employees clauned this involvement was overly meddlesome and was
often motivated by something other than the public good. The work of CSO, by its very nature,
is reacrive in that most of the acrivities they undertake aze either customer service driven or in
response to complaints. Therefore, it is not surprising that crises, stories in the newspaper and
Council initiatives aze perceived by staff as the primary drivers of work in the Office. However,
the CSO lacks the ability to sufficiently navigate this political environtnent because it does not
undertake planning, results measurement or stakeholder analysis that would allow it to be more
pro-active. If the Office were to have a clear vision of what the organization was Yo be, they
would be able Yo better manage the various demands on their services and operations.
Diversity
Weli over half the employees in the CSO (61 percent) feel senior leaders create an environment
which is respectful of employees regardless of their race, ettmicity, class, gender, age, narional
origin, seacual orientation or physical ability. However, 21 percent of employees surveyed did
not believe this was the case, and 18 percent neither agreed nor disagreed that the environment is
respectful of all employees. In our interviews, some staff reported that racial or class intolerance
affected their work environment. They believed they were not respected by others in the
organization because they held low ranldng posirions.
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Employee Involvement
61
Most employees in the CSO feel they have an opportunity to contribute to decisions made abouL
their work, although no formal mechanism exists for this to be done. Almost all staff who were
interviewed reported that CSO senior leaders were very accessible. Most of the Office's
managers have an open door policy and informally check in with staff daily_ Less is done,
however, to active]y solicit the suggesrions and opinions of employees. The Code Enforcement
Division did seek out volunteecs to assist in writing a procedures manual. i3nfortunately, only
one person volunteered for this projec[ and the manual was never completed_ Finally, it should
be noted that CSO clericai staff and Information and Complaint employees fcel, much more so
than CSO staff in general, disconnected from decisions which impact their work.
While the CSO appears to have an informal system for employee input, it should be noted that
there are certain benefits to having a more formal system. An informal system may seem
arbitcary, and may miss input from some staff who aze not as comfortable approaching a
supervisor or manager in an informal setting. A more shuetured setting can also create an
environment in which employees feel more vatued as they know management has made it a
priority to gather feedback from staff, and have ach�ally solicited it, rather than just waited unril
stafF approached them with concems or ideas.
Performance Expectations and Annual Evaluations
Formal, written performance expectations do not eacist in the C50. I-Iowevet, staff feel they
understand the expectations of their supetvisors and they have leamed these ea�pectarions through
experience on the job_ For instance, the reports issued by Code Enforcement inspectors are
reviewed on a daily basis by their immediate suparvisors. Serious concem was eapressed by
staff, especially those in Code Enforcement, that formal, written performance expectations would
]ead to performance quotas. A procedures manual was created by a previous Director of Code
Enforcement and was being updated by an employee; however, this project was lazer dropped.
At the moment, it appears the manual is no longer being actively used by staff.
Annual performance evaluations of employees have not taken place in the CSO for three years.
Before the practice was discontinued, the Office used the standard evaluarion process and forms
provided by the City's Human Resources Department. The Code Enforcement Programs
Manager stated he would like to commence performance evaluations for the Division's clerical
employees, but has been waiting until an office manager was hired. This lack of evaluation is
pmblemaiic because employees are not getting feedback on their performance nor do they know
what is expected of them.
Labor-Management Relationship
For the most part, the labor management situation in the CSO appears to be similar to the rest of
the City. In the past year, only two significant labor relations issues stand out. When the Code
Enforcement IJivision introduced the Freelantz data base system, inspectors were required to
perform all data enhy for their reports. This issue caused great distress among inspectors who
aze not trained in keyboattling. As a result, the inspectors filed a labor contract grievance to stop
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Perfomiance Avdii ofthe Ciry ofSaint Pau!'s Ci6zen Service Office
trus practice, arguing that data enhy is not part of the duties for the Code Enforcement inspector
classification.
The other significant labor relations issue that has faced the Office in the last year was a
grievance filed by Code Enforcement inspectors that a political appointee was worlang out of
title as an inspector. T'his appointee was charged with overseeing the Dayton's Bluff Initiative
but was involved in some day-to-day inspection duties related to the project. This issue was
complicated because the individual was reportedly very �mpopulaz with &ont-line staff. The
grievance became irrelevant when the political appointee was fired from lus position due to
reasons unrelated to this issue.
Training
Senior leadership has made haining a high priority and provides many training opporlunities far
staff. The Office's training opportunities are perhaps best developed in the Code Enforcement
Division. The Division's employees are encouraged and provided resources to take job-related
training in the comm�utity college system_ Many also attend art annual conference at the
University of Minnesota and a regional conference in Madison, Wisvonsin. It was reported the
Division had provided in-house haining in the past but this practice has been discontinued in
recent years. Most Code Enforcement inspectors take advantage oftraining; however,
interviewees reported junior employees do not utilize ihe opportunities as much as they should.
Other CSO staff have simelar chances to participate iu training, but they appeaz not to take
advaniage of them to sazne eartent as their Code Enforcement counterparts. This may be paztly
explained by the fact that c[ericai employees and other CSO employees have less-developed
professional necworks when compazed to Code Enforcement inspectors.
New staff in the CSO aze trained through mentoring done by senior emptoyees. In the Code
Eaforcament Division new inspectors "ride-along" with experienced stai�'for their first six to
eight weeks. New inspectors aze also required to study the I.egislative Code. Other CSO stafF
are also irained through paztnering with senior staff.
Summary of Findings
1) The mission of Code Enforcement appears to conflict at rimes with iize overait �issi� a£;; �
..U� ?�.�s�?E?*:e�� ;�,onka9butingLo s_ome tension between the divisions within the CSO.
2) The Citizen Service Office, particu[az[y its Code Enforcement Division, encourages training
and provides resources to staff to attend various training sessions and conferences. Some staff,
such as clerical support staff, are less inclined to attend haining, although they are �couraged to
do so.
3} Severat staff commented the work environment of the Code Enforcement Division has
improved since it was administratively moved to the Citizen Service Office. Since the merger,
some problems have been created as a result of ihe Division's staff being separated from each
other.
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Performance Audit of ffie Cty of Saint Paul's Ctizen Se�vice Office 63
4) Code Enforcement seems particulaziy susceptible to outside influences from sources such as
the City Council, Mayor and the media They have not yet found a way to balance the demands
of the various interests_
5) Code Enforcement used to have an employee manuai that contained valuable information on
standard procedures and requirements. It appears this manual has it been updated recently nor is
it being used.
6) Opporiunities for staff to contribute to decisions made about the operations and procedures of
the CSO are inadequate and informal at best
7) The CSO has not done employee performance evaluations in over three years. Employees are
not getting regulaz feedback on their performance.
Recommendations
Recommendation #46: Consistent with recommendatinn #41, the Citizen Service Offzce shouZd
undertake an e, fj'ort to redefine their mission, particularly because the missiorrs of Code
Enforcemenf arui the rest of the CSO appem incorxsistent and possibly incompatible. The Off ce
needs to do a better job of integrating these two functions. If the missions cannot be aligned,
serious consideration should be given to whether Code Enforcement should be located elsewhere
in the City s governmental strucnrre.
Recommendation #47: As described in recommendarion #37, the CSO must pursue strategic and
long-term planning in order to be less vutnerable to political influence and tess apt to have its
work driven by crises.
Recommendation #48: Senior leaders of the CSO should create a process by which employees
can be more directly ittvolved in decisions made about their worlc
Recommerrdation #49: The CSO should develop a plan to house the entire Code Enforcement
sta$in one tocation. Communication cmd the morale of clerical staff woutd improve. The fzles
downtown should be moved fo where inspectors are located because of the inefficiencies caused
by the current arrangement.
Recommendation #S0: Code Enforcement should review and revue its employee manuat. A
work group representing senior leaders, inspectors, and clerical staff should be resporuible for
this effort. A revised mcmual would help the division ensure consistent enforcement arrd cod�
existing performance expectations for Code Enforcement emptoyees.
Recommendation #Sl: The CSO should reintroduce performance evaluations. To this end, the
CSO should undertake an effort which irrvolves all stafJ`'to develop an appropriate evaluation
process and forms for each of the functions in the Office. While the CSO may wish to continue to
use the Human Resources format, it may be in their interest [o customize the form to reflect the
work done by the d�erent functions within the Offzce. After the new process is developed, CSO
leaders should beg'm conductingperformance evaluations immediately.
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Perfotmance Audit oflthe City of Saint Paul's Citizen Se�vice Office
Recommendation #52: CSO senior leaders should determine why some stafJ'are less inclined to
attend training. Pmticular uttention should be paid to members of the clerical staff and less
senior code enforcement inspectors who reportedly are less Iikely to take advantage of these
opportunities. Senior Ieaders should consider providing an fncentive for slaff to take advantage
of training by making this an important factor in evaluating an emp[oyee's performance. Staff
should also be encouraged to pursue training that would advance them professionally and be
rewm�ded for their successful pursuit of career-track training.
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INF�RMATION
& ANALYSIS
65
KEY CONCEPTS:
� Data Collection
❑ Analysis of Data
❑ Effective Use of Automation Systems '
_.� "`�' ---."---��t.�:__._._�_.._.._.__:...�a._
Quality Rating: �
Information gathering and analysis aze vita] fimctions for any arganization. Quality organizations
should collect data on customers, services, employees and costs. Organizations should also
concentrate on collecting and using data that relate to their goals and plans.
Collecting data serves little purpose if it is not analyzed and used to make improvements. It is
very important to extract the lazger meaning from data to support evaluation and decision-
making at various levels throughout the organization. Analysis should employ the examination
of trends, projections, comparisons and cause-effect correlations. Using data and analysis
systematically is impodant in properly setting goals, deve]oping plans and allocating resources.
The information collected and analyzed should be used throughout the organization and used to
evaluate the organization and its progress. Information is essential in monitoring goals and it
should play a key role in the decision-making process. Finally, organizations must have
information systems which are useful to staff and provide them with the tools they need to
collect, retrieve and analyze data.
Data Collection
The work azeas in the CSO, in particular the Code Enforcement and the Information and
Complaint Divisions, have the potential to collect a substantial amount of data about their
operations. The Office cunently collects some data but these efforts have been limited by poor
information systems and inconsistent information gathering. We exaznine below the data
collection efforts of the divisions within CSO.
Information and Complaint Division
The Information and Complaint Division collects data on complaints which the Office receives.
The Division tracks the number of complaints, the type of complaint, the date the complaint was
received, and the City department responsible for resolving this complaint. Based on these
complaints, the Division also generates reports for complaints that have taken more than five
days to resolve. These five day late reports aze distributed to department and office directors
responsible for seeing that their departments address the complaints. Very limited customer
satisfaction data is collected, and it is not compiled or analyzed.
Code Enforcement Division
There are numerous activities and actions the Code Enforcement Division undertakes which have
the potential to a robust sources of data. Code Enforcement has a history of collecting data about
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PerFormance Audit ofihe City ofSaint PaW's Citizen Service Office
its activities, often collecting and tabulating it by hand. Recently, data collection efforts have
decreased for two primary reasons: I) the Division has inadequate computer systems which are
unable to reliably collect, store and retrieve data; and 2) there has been a change in leadership
within the Division which has resulted in a de-einphasis on data cotlection. Despite the
dec:reased data collection in the last fiew years, the Division does collect the number of
inspections conducted, the type of inspection, the address of the property and the miteage driven
by inspectors. This information is taken from the inspectors' work sheets and entered into the
EXL system by the clericai staff.
Senior leaders report that the EXL complaint data base system is so poor at managing and
extracting data that the Division cunently pays little attention to the data collected. In their
opinion, doing so would be a wasted effort as long as the CSO uses the data bases currently in
place. However, this change in practice was not communicated to their stakeholders, thus many
stakeholders, such as the City Council, were under the impression they were continuing to report
data and provide meaningful information.
Two sub-units of Code Enforcement, the Vacant Buildings Unit and the Rental Registration
Pmgram, collect their own data. Arguabty, the Vacant Buildings Unit collects the best data
within the CSO. The Unit trecks the nwnber of vacant buildings registered, their location, the
number of inspections performed at the unit, and the numbet and types of citations written. In
addition, the VBU tracks the status of vacant buildings based on the type and condition of the
property. The Rental Registration Program, which is now a year old, reportedly collects data on
the number of properties registered and the amount of fees collected, though at the time this audit
was being prepazed, their computer systems were not functioning as hoped and the Rental
Registration Program was not running at its optimum level.
Marketing and Promotions Division
The Mazketing and Promotions Division collects customer data and basic information on the
economic impact of its projects. The Division's film staff collect data on the amount of money
spent as the result of films produced in the City. This data is disaggregated based on the type of
film, whether it is an independent, motion picture or a commercial project. The Division also
collects customer information through business surveys, web hits on City web site, and visitor
and events survey data.
ti`'aia v�Q,'
Similaz to the Office's data collection efforts, the analysis and use of the data in the CSO is
generally not well-developed and it varies across divisions. It is our belief that if better data was
collected and analysis were done, it would inform planning activities and decision-making. With
better data collection and analysis, CSO leaders couid be more proactive and less dependent on
crises management. 1n addition, with improved data analysis, elected officials would have better
information for introducing initiarives and making decisions.
The Information and Complaint bivision provides, based on calls received, feedback to other
Departments about particulaz problem azeas which need to be addressad. For instance, the
2000 Saint Panl Ciry Council Resemch
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PerFormance Au&t of die Ciry of Saint Paul's Cifizen Service O&ce 67
Division will inform the Public Works Department that they aze getting a lazge number of
complainu about potholes on University Avenue.
The Code Enforcement Division has performed almost no analysis of the data it collects on its
regulaz functions. The Division did have a research analyst position which was removed from
the City's Budget in 2000 and replaced with an office manager posirion. Currently, there is no
one in the Office with primary responsibility for atl of the Office's data collecrion and analysis
activiries.
Little data analysis takes place far planning, unplemerning and evaluating special projects and
initiatives, such as the Dayton's Bluff Initiative and PP2000. For example, when the CSO
worked with the City's Housing Information Office to establish the boundaries of the Dayton's
$luff Iniriative, data stored in the Office's EXI, system was not used to determine the scope of
the project. Rather, the CSO relied on suggesrions from inspectors to determine the boundaries.
Similazly, the properties selected for PP2000 were chosen based on anecdotal evidence. Little
effort has been made to systematically track the results of special initiatives. The reason given
by senior leaders for this lack of analysis has been that the data bases currendy used by CSO,
EXL and Freelantz, are inadequate_ Interestingly, however, there has been no effort to track
results of special initiatives using other daYa base software that would be capable of analyzing
data of this natiue, such as SPSS or Lotus.
Information Systems
The CSO's information systems, by which we mean the computer and communication hardwaze
and software, were consistently rated as poor by both senior leaders and stafF. The Office
appears to have adequate computer hazdware and has made efforts to improve communication for
Code Enforcement inspectors in the field with acquisition of NEXTEL phones. However, as we
have already noted in this section above, the EXL complaint system, which serves as the Office's
data base, and the Freelantz system, which was developed to temporarily replace the EXI,
system, are believed to be inadequate by everyone we interviewed.
The EXI, system was created in 1979. The view that the system is unreliable and no longer
usefiil for data collection and analysis has fostered an attitude that data analysis cannot take place
given the state of EXI.. Furthermore, Technology and Management Services has stated it will
not support the EXL system after 2001. As a resuit, all data analysis in Code Enforcement has
appeared to have completely ceased. As mentioned earlier, some data collection and reporting
does take place in the Code Enforcement Division, but most data are not analyzed for use in
dccision-making or the development ofthe divisional plans or strategies.
To address the deficiencies of the EXL, system, Code Enforcement has been worldng on
developing softwaze created by a company called Freelantz, to be a temporary reQlacement for
EXL until the new data base was established (possibly the AMANDA system). However, the
development and convetsion of EXL to the Freelantz software was poorly planned and has not
been completely implemented. Tlie software's development under the direction of a former
Director of Code Enforcement did not involve staff: Severai front-line employees reported that
if Code Enforcement inspectors were involved in the creation of Freelantz's, many of the
pro�ams flaws would have been avoided. Many interview subjects with laowledge of the
program reported that Freelantz performs fewer functions and takes more time to operate than the
2000 Soint PouT Ciry CouncJ Resewch
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68 Performance Audit offfie Ciry of Saint Paui's Citizen Se�vice Of£ce
azchaic EXL system. Currently, the new system is being used on a trial basis by the Vacant
Buitdings Unit. The Rentai Registration Program is utilizing another system that requires
outside support, and therefore due to a desire to keep expenses ]ow, this system is not fully
functional either. The resulting problems with implementation mirror those resulting from the
Freetantz software. The Director of Code Enforcement states that the failure of the Freelantz
software to function adequately will result in the conveision to the AMANDA system sooner
than expected.
Both the Freelantz sofrware and the AMANDA system require Code Enforcement inspectors to
perform data entry. In the past, data entry on the EXL system has been done by Code
Enforcement clerical staff. This has resulted in a discontent among some inspectors who do not
have keyboarding skills. As mentioned in the Training and Development section, the inspectors
have filed a grievance claiming that data entry is outside their regulaz duties and therefore
violazes their labor conhact.
Summary of Findings
I) The CSO in general collects very little meaningful data about its operarion, and performs even
less data analysis. Tixe Vacanf Buildings Unit and Marketing and Promotions are the two anas
that perform some data collection and analysis, and the Informaiion and Complaint Division
creazes a five-day late report based on complaint resolurion time. The CSO has been waiting to
convert to the AMANDA systeac until the other offices implementing the system have worked
out any problems in the ptogram.
2) The new computer systems the Office fias been trying to develop aze proving to be wcefiilIy
inadequate and inoperable. The cutrent computer system is outdated and can no longer pmvida
accurate information.
3) Code Enforcement no longer has a staff person dedicated to data analysis. They decided
dedicate the FTE (full-time equivalent) to the newly created position of office manager instead.
Recommendateons
Recommendation #53: The CSO should convert to AMANDA ar quickly as possible. The O�ce
iws piannecl to adapPlui�Y.:fi afE L�F r,�; h:.r.'r�ra �sri2r.�2 x::h :he s�s!e• a�, rh.e hope
the O�ce could learn from LIEP's experience. However•, we believe this would be a misla&e. As
our fzndings demonstrate, this O�ce co�tt[e meanzng/ui mforman`on a'aauriF�wori�i
and performs almost no data analysu. eLs an explanation for this fact, almost everyone has
bZamed the EXL system for this problem. tLloreover, lhere is every indication that LIEP hos been
successful in implementing AMANDA. Therefore the CSO should co�zvert it's databases to the
�IMfINDE1 system as soon as possible.
Recommendution #54: The CSO should hire an employee whose primary duty it is to perform
research and analysis. There are a number of ways to implement this recommendation. An
employee eould be hired to serve all four divisians of the CSO. Alternatively, the Code
Enforcewnnent or Information and Complaint Division could hire someone who splits their duties
between ruearch, analysis and other work activities in the Office. Another consideration might
be that, eonsistent with the O�ce's 2000 strategie plans, this staffperson could poteRtially do
2000 Saira Pau1 Ciiy Couneil Rese�ch
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Perfortnance Audit of the City of Saint Paul's Cirizen Service Office
data analysis for other City Departments and O�ces in an eff'ort to improve services and
programs City-wide.
69
Recommendation #55: The CSO should immediately begin data collection and analysis for
special initiatives which it is currently undertaking, such ns PP2000 and the Dayton's Blufj
initiative. Even ifEXL or Freelantz systems are inadeguate to collect data and perform analysis,
the Office could do meaningful anaZysis on simple spreadsheets and statisricalprograms, such as
Lotus 1-2-3 and Statistical Program for the Social Sciences (SPSS).
Recommendation #56: The CSO should spec� data coltection, analysis and evatuation
strategies in the plan for any new initiatives. This aspect of the plan should specify the goals of
the program, how they will measure whether these goals have been achieved and who will do the
measurement.
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70 P Audit of t he City of Saint PaW's Citizen Service Oftice
IMPROVEMENT �YCONCEPTS: °
❑ Identification of Potential Improvements =
❑ Implementation oflmprovements =
PRO CE S SE S � Evaluation of Improvement Efforts _
Quality Rating: �
T'he improvement process occurs when an organization considers the design, management and
improvement of inYernal organizational processes. Similazly, the improvement process should be
part of the daily work within the organization, and should seek to eliminate problems at the
source and be driven by opportunities to improve. Tmprovement practices are the methods
identified in the improvement process to enhance operations - the implementation stage. Many
organizarions engage only in the implementation (improvement practice) stage, and fail to go
through the planning and evaluation (improvement process) stages. The improvement process
must contain planning, implementation and evaluation, all of which require information and
methods for assessing progress. All practices of an organization should be continually evaivated
to identify problems and successes. The improvement process is charted in the following
diagram.
Identtfy
Deficiencies
in Yhe
Current Process
Idenhfy Methods to
Address Deficiencies;
Select the Most
Appropriate
Plan Implementation
of New/Revised
Method(s)
�
Evaluate the
Effectiveness and Implement the New/
Efficiency of the Revised Method(s)
New/Revised Method
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Perfortnance Audit of the Ciry of Saint Paul's CiGZen Suvice Office
Improvements in the Citizen Service Office
71
While the CSO is attempting to incorporate a number of improvement practices, these
improvements did not come out of an overall improvement plan. Rather, they are a reaction to a
given situation, and little consideiation is given to the loag-term effects of the changes. A key
component of the improvement process is evaluation of the improvement effort Did it
accomplish what was intended? Why or why not? What should be modified? The CSO does
not do this type of evaluation of their improvemern efforts. Most review is lazgely anecdotal and
based on whether compiaints aze down and the reaction of elected officials. They also receive
some feedback &om the Intemet site. Marketing may do more evatuation by looking at
attendance at events, methods by which people found out about the event, money generated by an
event, and so on. Overall, however, the CSO could do a better job of tracking their improvement
efforts.
The CSO evaluates their vendors only through the bidding process. The Office tracks complainu
and discussed them with their vendors, as well as does spot-checks on the contractors who board
vacant buildings for them and those who cut tall grass and weeds when an abatement is ordered.
The following paragraphs discuss the improvement practices the CSO has attempted. Again,
these improvements were not part of a planning proczss, nor have they been evaluated as to their
effectiveness.
Code Enforcement Division
Code Enforcement has made a change to the structure of the Division. An Office Manager has
been hired to coordinate activities, staff have begun some job-sharing, and the Division has
placed a clerical srtaff inembet at the Eastem Patrol District OtT'ices where most of the inspectors
are located. Unfortunately, the Office Manager position comes at the expense of a data analyst, a
posirion that could be very valuable to Code Enforcement in deteimining the effectiveness of
various progrems, as mentioned previously in the Information and Analysis section. Code
Enforcement has also been involved in creating the Dayton's Bluff Iniriative and assisting with
Weed and Seed programs, such as the one in the Raikoad Island commimity. Again, these
programs were not necessarily of Code Enforcement's own initiative, but Code Enforcement
worked with those interested in creating the programs to cany them out. They continue to look
ai ways to reduce the number of chronic problem pmperties, whether through case management
or woridng with owners of these properties more closely to remedy the problems.
Code Enforcement and the Police Department have also devised an initiative calied the Red Cazd
program to assist with identifying abandoned velucles. The Police Deparnnent places a red card
on vehicles that appear to be abandoned requesting the owner to move the vehicle, and notifying
them that it may be towed. The Police Department and Code Enforcement have found this to be
an effective way to gain owner's cooperation and avoid having to tow numerous vehicles.
The Vacant Buildings Unit is also actively looking for ways to eliminate long-term vacant
buildings through such activities as incentives to tear down or rehabilitate these properties. Other
improvements include placing the vacant building list on the Internet.
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Marketing and Promotions Division
The Mazketing and Promotions Division is continually trying to find new, inexpensive ways to
promote events and increase participation. They have created an e-mait infrastructure to mazket
City events directly to employees of downtown businesses. They aze also working with existing
attractions and encouraging them to not only market theu attractions, but to mazket Saint Paul as
well. They have partnered with radio stations to encourage their presence at events, which resulu
in on-air, in-kind advertising. Marketing and Promotions is also placing a greater emphasis on
mazketing events through the Intemet, such as the ilovestpaul.com website, which is a
paztnership with other Saint Paul organizarions and businesses. They are also trying to work
morz directly and lend their expertise to fhe neighborhoods to mazket their evenu, rather than
simply pmviding them the funding and ]eaving the organizations to figure oui what to do to
promote their events. For e�mple, a neighborhood organization can call Marketing and
Promotions staff, and the staff will provide them with contacts aY businesses and organizations
that might be interested in worldng with the neighborhood group to market their neighborhood
events. They will also try to help the neighborhood groups find oYher sotaces of revenue beyond
the City, as well as encourage media sponsorship of local events.
Mazketing staff have also provided training session for production houses that come to frlm in
Saint Paul that helps them better prepare for filming here. Staff took the initiative to make an
unscheduled presentation at a seminar for production companies and went over common
qaestions and situations production companies face when they come to Saint Paul. Staff also
produced an easy-to-use reference guide that covers oommon sitvations an@ problems such as the
process for getting parking meters hooded, azranging for traffic detours, the fees chazged for
special services, and other pertinent concems and situations. After presenting and preparing the
reference guide, staff aoticed a decreased levei of shess and time spent amanging for filming and
a smoother filming process.
Information and Complaint, City Clerk/Records
The Informarion and Complaint Division now has a form far walk-ins to fill out when they come
in to report a complaint, rather than having a staff person take the complaint directly from the
individual. It appeazs this new practice benefits the employees, but it is not as clear as to whether
this benefits the customers. However, it does create a written record of the complaint, whicfi
III1Y g1VC SOIII@ 35SUL3DCC TO Y[1C CUShOIl'ICP t`'[58i f� w7u'�5c ia'v uuu ifinw, Sr::�'.:3;`j. Tti� �S?�'
Clerk/Kecords Division does not have any appazent impmvement processes in place. Other
Summary of Findings
1) Overall, most evaluation of improvements in the CSO is based on anecdotal evidence and is
very informal. The evaivations are not used to ruake ptaos for the OflSce.
2) Code Enforcement has engaged in some improvement efforts such as prograznmatic and
staffing changes. However, many of these improvements are reactive rather prevenrive measures.
The CSO has not prepared any concrete plans to fully itnplement the changes and artricipate any
potential problems resulting from the changes.
2000 Saiu Pau1 Ciry Council Resemch
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Perfo�mance Audit of the City of Saint Paul's Ci6zen Service Office
73
3) The Mazketing and Promotions Division is perhaps the only division in the CSO that engages
in any planning and evaluation of their improvement efforts.
Recommendations
Recommendation #57. The CSO should engage in a more formal improvement process that
includes planning, implementation and evaluation of the improvement ejforts. By engaging in an
internal process to idenrify improvements, pianning the implementation of the improvements, and
evaluating their impact, they will move away from the reactive mode to a more proactive
errvironment. The new hire to perform data analysis, suggested in the Information and Analysis
recommendatioru, should be heavily invoZved zn this e,ffort.
2000 Saint ParJ City Cowci! Research
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74
CUSTOMER
FOCUS
Quality Rating: �'�`[%a
Performance Audit of the City of Saint Paul's Ci4zen Service OfSce
KEY CONCEPTS:
❑ Customer ldentification & Knowledge
❑ Measuring Customer Satisfaction & Needs
❑ Customer Service Practices
o Customer Service Standards
Attention to customer needs is critical for achieving organizational excellence. Through the
creation and management of relationships with their customers, organizations which excel in
customer satisfaction obtain informaYion on customer service requirements, expectations arrd
satisfaction. Knowing the requirements of its customers enables an organization to develop
standards which are designed to enhance customer satisfaction.' For these standards to be
effective, they must be understood and followed by everyone in the organization.
In recent years, the CSO has placed a great deal of emphasis on providing good customer service.
The vision for this effort comes from the Mayor and the Ilirector. However, since incorporating
the Code Enforcement Division into the Office, the philosophy of providing good customer
service has been strained by the fact that Code Enforcement is an enforcement agency.
Inspectors and managers have for years wrestled with the notion of customer service being the
parainount objective. Other divisions within the Office do not struggle with this notion to the
same degree. However, there are srill some azeas in which the Citizen Service Office could
improve. Organizarional improvement requires that staff understand the impoRance of customer
service training and that good customer service skills can be leamed and enhanced.
CSO's Customers
Most CSO staff agreed that anyone requesting services or information, whether intemal or
eacternal, is a potenrial customer. However, with the aforementioned exception, Citizen Service
Office employees indicated through the survey a general lack of agreement as to who aze their
customers. A list of customers Yhat were identified include: the general public, citizens of Saint
Pa�z?, r*o�P*?y oevneas, businesses, neighborhood groups, City workers and elected officials.
While this list is very broad it does shed some light on the difficulty employees face when trying
ozi�nn�i�«u';z c:ga^..:�^;:�.y �^c..'�rt:�S�Zvt� rn�c;-.s��st��axers ,�h.auld�m when each
division within the Office is chazged with different responsibilities. Interviewees stated that
citizens are perceived as customers by ali the divisions because they provide the Office with
infonnal feedback as to how well the Office is doing its job. This is aa important criteria for
them when deciding who their customer is because these individuals provide the organi�ation
with information pertaining to customer sarisfaction and needs.
�$ In many cases, an organization's customers may be the same as their stakeholders. However, customers and
stakeholders each provide the organization with a unique set of infocmatioq and the relatio�ship behveen [he
organization and its customers versus the relationship between the organization and its stakeholders is different. For
more discussion of stakeholders, see the Leadership section.
2000 Saint Pau[ Ciry Council Research
Perfo�mance Audi[ ofthe Ciry of Saint Paul's Citizen Se[vice Office 75 0 ' ^� �
Code Enforcement Division
Survey respondents within Code Enforcement overwhelmingly chose the citizens of Saint Paul as
their customer. Many aiso view the general public, City of Saint Paul employees, businesses and
commimity groups as customets. There is some confusion about whether or not property owners
with code violations should be considered customers.
Information and Complaint Division
The Infomiation and Complaint Division also identified the public and citizens of Saint Paul as
its primary customers. Because they also interact with the City Council regarding neighborhood
problems, they identified the Council as a customer as well. This Division has tlte unique
responsibility of serving walk-in visitors and phone-in customers. In fact, systems have been
developed to deat with these individuals in a friendly and efficient manner. Walk-ins aze served
by counter personnel and aze given a complaint sheet to fill out and phone-ins have their
complaints entered into the computer and passed on to the appropriate City agency.
City Clerk / Records Division
This Division believes that people requesting copies of City documents aze their primary
customers. City departments and the City Council are identified as customers who aze served
less frequently, but who aze still customers. The City Clerk also pmvides information about
official City documents, local elections, petirions, and lustorical data to researchers.
Marketing and Promotions Division
Marketing and Promotions staff feel their customers aze the residents, visitors and film
production companies that come to Saint Paul to attend events or film movies. The Mayor's
Office, the City Council and City departments were reported to be customets as well. This
Division allocates a certain dollar amount for mazketing and promotions efforts in each City
wazd, which involves working with Councilmembers and their aides to detetmine how the money
should be spent. The Division must also work with other City depariments and organizations
which promote the City to coordinate City services for events occurring in Saint Paul.
Mazketing and Promotions also provides the City's website development services. The City's
website provides useful information, but is somewhat difficult to navigafe for people less familiar
with the City's governmental struchue. Each City departmenYs website has its own look, rather
ffian a standard structure that makes it easier for a viewer to recognize it as being a City of Saint
Paul web page. 'fhe CSO's own website is useful and contains various complaint forms, meetSng
information, and links to other useful sites. However, it does not have as many linlcs as might be
usefiil for citi2ens and visitors looking for infoimation. The Citizen Service Office is often the
first place people go to seek information. Therefore, their website has the potential to be one of
the most valuable of the City's pages. Just as people call the CSO when they are unsure of what
department to call, many people may constilt their web page first in the hope of finding a link to
the information they aze seeking. People aze also becoming more technologically sophisticated
and aze finding it easier to submit information requests and complaints via e-mail.
2000 Sa�t Paul Ciry Crnmcil Research
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� 6 Perfo'manc Audi of tlie Ciry of Saint P CiUZen Service OtSce
Determining Custo�ner Needs and Satesfaction
Good customer focus involves determining what specificaily the customer needs and how
satisfied the customer is with a product or service. The CSO identifies what its customers need
tluough responding to complainu and talking with property owners, businesses, visitors to the
Office and community organizations. However, only 35 percent of respondents surveyed fett that
CSO staff frequently monitor for changes in customer needs, and 41 percent neither agreed nor
disageed. Similazly, forty five percent of respondents believe the Office is responsive to
changes in customer needs, while 41 percent neither agreed nor disagreed that the Office is
responsive. Ttzese nurrtbers can be explained by the fact that although staff say they determine
customers needs by verbal communication and letters from cirizens, the Office has no formal
mechanism for gathering customer needs information or sharing customer responses with staff.
InformaLion is difficult to gazher from the cutrent computer systems and the Office does not hold
staffmeetings where it wouid be easy to share and discuss customer informarion.
Customer sarisfaction is admittedly a more difficult aspect for the Office to ascer[ain than
customer needs. Beyond limited call-backs, the Office does not have a formal survey instrument
or process to ascertain levels of customer satisfaction. In fact, only 24 percent of staff surveyed
felt the Office monitors for changes in customer sazisfaction, while 27 percent felt they do not
monitor for changes, and 59 percent neither agreed nor disagreed. Only 28 percent of
respondents felt that the Office was responsive to changes in customer satisfaction, with 14
percent reporting they are not, and 57 percent neither agreeing nor disagreeing. The Information
and Complaint Division does not pass along its very iimited customer satisfaction results from
call-backs to other CSO staff or to the Code Enforcement inspectors. Inspectors remarked that
they only receive customer satisfaction results when they are negative and the feedback is usually
in the form of an angry phone ca11 or ]etter. Marketing and Promotions conducts informal
surveys of its customets after lazge events such as the Titanic exhibit at the Union Depot building
and the Peanuts on Pazade e�ibits_
High performing organizations use customer satisfaction data for planning and implemer�ting
strategies that enable the organization to be less reactionary. 1n truth, if the organization captured
customer sarisfaction and needs information through a reguiaz process of formai surveys and
analysis of the results it could adjust its practices to deal with changes in customer sarisfaction
without disrupting daily mutines. Not only is this important for the CSO, the City could benefit
CIIOYYPIG i �fsa�aII� li. u �.�'�` S'.:I'YC� 2FS� �121"^a fli�04P_� L!� 2IId $8Y1SfSCUOIS a2T2
available for all of its operations.
Customer Service Standards
Formal customer service standards help staff understand what is expected of them by the
organization and by their customeis. The CSO does not have a set of formal customer service
standards that aze written down and circulated to all employees. Code Enforcement t�as some
standazds in a manual ttiat was created tmder a former manager. However, many Code
Enforcement staffare noY aware of its eacistence. Information and Complaint, Mazketing and
Promotions and the City Clerk all purport to have informal cvstomer service standards. Staff
aclmowledge these are not written down, as such, but are relatively widely understood and
2000 Sairu Pavl Ciry Council Resemch
Perfo[mance Auda of ffie City of Saint Paul's Citizen Service OkSce 77 �� I c �
practiced. Forty-four percent of respondents surveyed agreed that there were customer service
standards in their work azea, and 41 percent neither agreed nor disagreed.
Many of the informal customer service standards referred to by staff aze close to being values or
are values of the organization. This is evidenced by the fact that these standards are leamed and
reinforced by employees observing their co-workers in the fieid and on the phones. While it is
good that 42 percent of staff surveyed imde�stand the Offices' informal customer service
standards and attempt to follow them, over 1/5 of the staff reported they do not understand or feel
that staff follow them. This is an insufficient management practice. Unless standards aze
formalized, written down, and widely circulaYed they can not be updated, amended or added to in
any way ffiat would promote efficiency, effectiveness and consistency. This situation is
compounded by the lack of all-staff meetings where organizational information is usually
exchanged.
Summary of Findings
1) The CSO in total does not agee on who its customers aze. While deference is paid to those
seeking information or services, there is no Office-wide agreement as to whom the organization
should consider as its customers.
2) The CSO does not have a formal process for assessing customer needs and sarisfaction.
Divisions within the Office rely on complaints from citizens and informal surveys to determine
Uris information. The Information and Complaint Division occasionally utilizes a call back
method to gamer some customer satisfaction information. I-Iowever this information is not
compiled or shared with any other staff in the Office or City.
3) The Office does not have a formal set of customer service standards. Rather, the employees
adhere to an infortnal set of value-driven, common sense s[andards that are enforced by action
and word-of-mouth and emulated by staff.
4) The City's website has the potential to be an invaluable resource and method for
communicating with residents, visitors, businesses and anyone seeking informarion on Saint
Paul. However, the City's website is currently difficult to use and lacks uniformity that would
make it easier to navigate. The CSO's website provides useful information and complaint forms,
but should be developed fiuther as many visitors to the City's site may go to their page first
when they aze unsure of which department they need.
Recommendations
Recommendation #58. The CSO should ident� as pmt of it strategic plannzng e, ff'orts, who its
customers are and put processes in place to identify their needs and satisfaction with the
information and services provided by the Of, j'zce. This could be accomplished by initiating a
formal annual survey of its customers once they have been identified by staff and management.
Recommendation #59. The CSO should produce a written set of customer standards attd
circulate them to all staff. Based on the fact that emptayees curremly fotlow an irtformal set of
2000 Saint Paul Ciry Coursci! Research
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�g Pafrrmance Audit of the C'ny of Saint Paul's Cxtizen Service Ottice
standards based on organizational values this should not be di,�'icult. This will clar� czrstomer
ezpectations for all staff and aid in the training of new staf}:
Recommendation #60. Code Enforcement should provide customer service training to its
inspectors and clerical staff in order to provide a more corrsistent customer focused artitude in
the course of carrying out their jobs. This would be in line with the vision from the Mayor's
Of,�'ice and fhe Director.
Recommerrdation #61. The CSO should be a leader in developing a more useful, functional City
website. Some suggestions to reach this goal are:
• make permit and complaint forms easily accessible from the CSO's web page;
• standardize the City website so all City department pages have a unzform, recognizable look;
• develop a standard complaint form; and
• create an cruto-reply function for inquiries.
20D0 Sairrt Paul Ciry Coumil Ruemch
Performance Audit of lhe City of Saint PauPs Citizen Service Office
RESULTS
Quality Rating: �i'/2
� o��-�'1
KEY CONCEPTS:
❑ Organizational0utcomes
❑ Financial Outcomes
❑ Customer Satisfaction
❑ Use of Performance Indicators
The Results component of the Malcolm Baldrige system addresses an organization's ability to
determine if and how well it is accomplishing its mission. Successful organizations know how
well they perform. Through result measurement an organization is able to evaluate the
effectiveness and efticiency of its operations. Organizations should track results over time and
compare these results to other similar organizations. Results management should be the last
phase in an ongoing cycle involving goal setting, planning, the execution of plans and
improvement practices. Using results information in this way can help staff provide the best
service in the most efficient way possible. Decision makers can also use results information to
monitor the provision of services on the publids behalf, ensuring govemment accountability.
The work functions within CSO have a great deal of potential data available which could be used
to measure results. However, as mentioned in the Information and Analysis section of this audit,
CSO's data collection effoRs are poor and their data storage and retrieval systems are inadequate.
These factors have severely limited the Office's capacity to perform meaningful results
measurement.
Outcomes Measured
The measurement of results is not a well-developed concept in the CSO. Below we detail the
Office's efforts to develop, measure and use results.
Information and Complaint Division/City Clerks Office
The Information and Complaint Division collects response time data regarding how long it takes
City departments to resolve a complaint. After five days, the Division will send out a late report
if the complaint is unresolved. These reports aze sent to department and office directors but not
directly to staff responsible for resobing the complaint. The Infortnation and Complaint
Division also collects very limited information on how satisfied citizens are with City
Departments' ability to resolve their wmplaints. The Division's staff occasionally calls citizens
who have made complaints and asks them state whether they were satisfied with the timeliness
and quality of the City's response. However, they do not compile this data or prepare any reports
with this information; therefore, other City staff aze unaware of the limited satisfaction results.
Despite this shortcoming, we believe soliciting citizen satisfaction information is an excellent
practice and represents an important mechanism which the City can use to understand its
customers' requirements.
There was no indication the City Clerk's O�ce measured the results of its operations.
2000 Spim Paid City Cormcil Research
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Pertormance Audit ofthe City ofSain[ PauPs Citizen Service O�ce
Code Enforcement Division
The activities of the Code Enforcement Division have the potential to provide a rich source of
data which could be measured to determine organizational results. Given this potential data
source, the Division could be a very results-oriented organization. However, senior leaders state
the organization's ability to focus on results has been limited because of poor data collection
effoRs and inadequate computer systems. With the change in leadership in the division, there has
also been a de-emphasis on data collection.
The Division's data storage system, EXL, is currently is able to collect data but cannot easily
retrieve data. The Freelantz system, which was initially created to replace EXL, has not been
fitlly implemented. The new program has run into difficulty and senior leaders report it is
unlikely the Division will ever fully deploy the program. It now appears the Pivision will
conveR to the AMANDA system to serve as its complaint data base.
The Code Enforcement Division tracks the number of complaints they receive. Several interview
respondents stated the number of complaints has decreased over the last year, but none of these
employees could provide an explanation of why complaints have gone down. One senior
manager suggested tracking the number of complaints is a poor measure of the Division's
success because the Office does not track data which would explain the decreasing number of
complaints. For instance, he suggested it is possible that one could interpret a drop in initial
complaints to mean that people are calling less because they aze increasingly discouraged by the
City's ability to deal with Code Enforcement problems.
The Division also tracks the number of complaints resolved. Cases are considered closed once a
member of the clerical staff enters the inspector's final report on the EXL system. It was
reported this measure may be inaccurate because the information is sometimes entered weeks
after the inspector has completed the repart, thereby exaggerating the number of open cases.
The most results-oriented unit of the Code Enforcement Division is the Vacant Building's unit.
The Unit tracks the number of demolitions, the number of demolitions disaggregated by property
owners, the number of active vacant buildings, and the number of vacant buildings that aze
rehabilitated. A report of these results is published quarterly and distributed to the Mayor's
Office and the City Council.
Code Enforcement staff have a good understanding of the results they would like to measure.
They hope the conversion to a data base, such as AMANDA, and a new commitment by senior
leaders will lead to a greater use of results measurement. In the table below we detail the
measures that Code Enforcement would like to track.
➢ Number of summary abatement orders and number of abatements performed by the City
> First notice compliance rates
> The disposition of citations
➢ The number of condemnations
➢ Complaints broken down by U.S. Census track
> Data regazding the safety of inspectors
2000 Saint Pau! City Counci! Research
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PerFoxmance Audit of the CiTy of Samt Paul's Citizen Service Qffice gl
A senior leader suggested that many of these staristics would provide the City with a better
indication of how Code Enforcement is doing and help the Division develop future strategies and
plans. In our view, estabtishing the measures mernioned by staff would be an excellent
beginning for measuring the IJivision's performance. FIowever, we believe these measures alone
do not serve as a complete list of potemial perfrnmance indicators which could be used by the
divisions. Nor do we believe they sufficiently account for social and economic factors which aze
beyond the con�ol of the Division. For instance, as one of the Division's supervisors mentioned,
the declining number of vacant buildings is not meaningful imless one also looks at the condition
of the housing mazket in Saint Paul. To provide better information for the analysis of results and
the development organizational plans, new measures should attempt to incorporate eactemal
social and economic factors.
Result Measurement for Special Initiatives
Several senior leaders within the CSO stated the Office dces a particulazly poor job of ineasuring
the results of special iniriatives. For the purpose of this audit, we define special initiatives to
mean any new project or program that has been developed to address a specific problem. These
initiatives are usually pilot projects or temporary in nature.
The inadequacy of the Office's data collection efforts is a major impediment to its efforts to
measwe the results of its special initiatives. The D'uector of Code Enforcement stated that in
1999, this Division conducted six Weed and Seed pmgrams and there are no records of how the
program's money was spent or about the results of the programs in terms of citations, arrests and
property impmvements. Similazly, the Division is currently undertaking a pilot program, the
Dayton's Bluff Iniriarive, foz which there was supposed to be a serious data collection effort
undenvay during its fust three months. However, it was reported that the collection efforts were
so poor that the data was essentially useless for a serious evaluation of the program. Currently,
the Office's most significant special iniriative is PP2000. PP2000 is the Division's program to
address the pmblems created at some of Saint Paut's most troubled properties. To track the
success of the pmgam, staff collect data on whether complaints on PP2000 properties aze
decreasing. Howevet, they say they would also like to collect the number of properties sold by a
PP2000 property owner, the number of complaints based on ownership, and whether corrections
were made as a result of wriring a citation.
There are several reasons why tracking results of special initiatives, such as PP2000, should be of
great importance for the CSO. Fiist, PPZ000 and the Dayton's Bluff Initiative have been
mentioned as potential models for dealing with the City's problem properties. Without good data
collection and continuous tracking of results, it will be very difficult to determine whether these
programs are successful, whether they should be continued and implemented on a lazger scale.
Second, there appears to be a great deal of resistance to some of these programs among staff and
some senior leaders. Many complain that uritiatives such as these use scarce resources which
would be better used for the day-to-day activiries of the Code Enforcement Division. By
systematically tracking results of these special initiatives, senior leaders and decision-makers wili
be able to judge whether resources are being used in the most effective manner possible.
" For a more detailed discussion of these programs, see the "Special Initiatives" section of Policy Aligiment
portion of this audit.
200o Sa"vitPavl Ciry council Research
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gz Perfomiance Audit ofthe Ciry of Saint Paul's Citizen Service Office
Marketing and Promotions Division
The Marketing and Promotions Division measures the resulu of some of iu activities. The Film
Dffice determines the financial results of its efforts by exatnining the budgets of the projects it
helps bring to Saint Paul. This data is disaggregated by production type. The Division also
collects data on visitors and revenues generated by events that it promotes in the City. Staffalso
track press clippings to determine the success of their promotional efforts. Finally, the Division
seeks feedback from stakeholders about speci&c projects it has undertaken. Several staff
members stated they would like to receive regulaz reports &om the CSO's Information and
Complaint Division abouT requests and complaints related to their acTivities. They have made a
request to the CSO Director to be provided with this information; however, the Division has yet
to receive these reports.
Comparisous of Results
Divisions within the CSO do not compaze their results to the outcomes of other sunilaz
organizations. Occasionally, employees informally speak or swap stories with staff from other
cities who perform similaz functions. Many Code Enforcement staff members stated it would be
difficult to compare Saint Paul's results with other similar agencies because of the difference in
housing code and enforcement traditions.
Staff Knowledge of Goals and Goal Achievement
UlUmately, the measurement of results should be undertaken to determine whether an
organization is ackrieving its goals. Staff, however, appear to be 2utclear about the goals of the
CSO. The staffls Imowledge about organizarional goals is essentially the responsibiliTy of senior
leaders. Leadeis must make it cleaz, through the vision and planning process, whaY the goals of
the organi7ation are and how they will be achieved. Although the point is intertwined with much
of what is stated in the audiYs Leadership section, it is mentioned here because if an organization
does not have clear and defined goals, it is difficuit for an organizarion to determine whaz resutu
should be measured. Since there does not appeaz to be consensus in the CSO about the
organization's goals, it is not surprising the Office has paid scant attenrion to measuring results.
of Findings
1) The CSO does noi have a results measurement system.
2) The Information and Complaint Division does track some response times and citizea
satisfaction levels, Marketing and Promotions Division measures the success of their programs
and the Vacant Building Unit hacks case management data.
� As an exampte, articles about Peanuts on Parade have appeared in papeis as far away u Japan, Gecmany, Canada,
Belgium, and Puerto Rico, and staff were interviewed by Ausualian radio.
2000 Suira Pwl Ciry Council Resemch
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PerFormance Audit of the Ciry of Saint Paul's Citizen Service Office
3) For the most part, the Office's performance indicators aze poorly developed and do not
provide the organization and elected officials with useful information which could assist them
with decision-making.
Recommendations
83
Recommendation #62: The Information and Complaint Division should generate customer
satisfaction reports and distribute them to all staff in the CSO, as well as other depart»tents.
Over 50 percent of complainls received by the Information and Complaint Division are Code
Enforcement related. Thu type of feedback would be irrvaluable for Code Enforcement to track
how if well it is doing. Moreover, the CSO should also provide these reports to relevant
frontline stafJ'of other City departments and o�ces, such as Public Works, LIEP artd Parks and
Recreation, who also receive a large share of these complaints. The CSO should also consider
posting these reports on the City's web site so residents and City workers can track how well the
City is doing to resolve problems identified by citizens.
Recommendation #63: The CSO should include, in its planningfor the implementation of the
AMANDA computer system, a discussion of what results it wishes to track. It should determine
whether these results can be adequately tracked by the new systems. The consideration of the
results suggested by staff in the performance audit interviews are an excellent starting point for
this discussion.
Recommendation #64: The CSO should compare its results to other similar organuations.
Recommendation #65: Senior leadership in the CSO should clearly detail goals for each work
activity in CSO through organizational vision and strategic planning efforts. Stafj'should be
informed about these goals and have an understanding of how their work is connected to the
achievement of the goals.
2000 SaintPaulCiryCounci/Research
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84
Performance Audit of the Ciry of Saint PauPs Ciezen Service Office
PERFORMANCE MEASURES
Performance measures, also referred to as performance indicators, provide an organization with a
means to gauge how well it is achieving its goals. Although not everything an organization does
and seeks to accomplish can be quantified, there aze some measures that aze good indicators of
this. Fundamentally, performance indicators should measure how well an organizarion is
meeting its missioa For this reason, CSO's mission bears restating here. "The Citizen Service
Office consists of Four Divisions — City Clerk Records, Mazketing & Promotions, Code
Enforcement Programs and Information and Complaint. Together, the employees of the Citizen
Service Office maintain Saint Paul's official recorded history, promote its vitality and diversity,
identify proactive solutions to correct code violarions, and help resolve citizen issues related to
City Services by serving as advocates and liaisons." In this chapter we will explore how the
CSO may seek to inform itself, its customers and stakeholders about how well it is doing at
achieving its mission. This chapter is intended to provide a basis for discussion and assist CSO
in developing performance measures. The CSO will embazk over the next yeaz on the
implementation of AMANDA, the inFormation system which will track much of the needed data
for performance measurement. Therefore, it is a critical juncture for CSO to consider these
issues.
Council Reseazch has approached this examination of performance indicators with several
assumptions in mind. First, we believe the City Council has a vested interest in examining
performance indicators as a part of the budget review process. The use of performance indicators
gives the City Council a cleaz picture of whaz has been accomplished in past years, and the
reasonableness of expecta6ons for future years, They meaningfully connect dollars spent to
hoped-for outcomes in the services expected of City govemment. Indeed, as the Council
deliberated upon "managed competition proposals," the need to translate CiTy activities into
meaningful performance indicators became very appazent. The development of such indicators is
necessary to make cleaz with anyone-- employees or private vendors just what aze performance
requirements which will be specified in the contract. Second, we believe performance indicators
can be useful management tools for communicating with statt' about expectations. However, we
also put forwazd the notion thaY staff must be a part of the creation of performance indicators and
see their usefulness in their daily work lives. T7?e �eo�ie u�ho wi!?, iR �:ae?i:z, ��s:de
information for performance indicators aze also pmfoundly affected by what the indicators may
_ � ri�..11..�.i.t.�.rt�'"' _
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communicate about the success of an organizarion, there is little else available to provide "a
gauge" on progress. Comprehensive evaluations of programs or activities aze timely and
expensive, and do not necessarily allow for the incremental improvement of efforts.
The CSO does have a number of so-called "performance indicators" in its budget. In our view,
however, most ofthe indicators included in the budget do not constitute meaningful, useful or
effective measures. Developing performance measures begins with identifying what pieces of
informazion indicate the organizarion's effectiveness, efficiency, and quality. Some guidelines
for the development of ineaningful performance indicators are provided below.
2000 Saint Paul Ciry Council Resemch
Perfo�mance Audit ofthe Ciry of Saint Paul's Cidzrn Service Office
Performance Indicators Should Be:
ss D/'�v 7
❑ Quaritifiable, readily available, easy to calculate, "hackable" and show the direction of progress
❑ Strongly connected to the mission of the organization
❑ Intrinsically meaningful and imderstood throughout the organization
❑ Focused on outcomes and products, rather than processes when possible
Examples of Perjormance Measures:
❑ Customer and employee satisfaction
❑ Volume of outputs as work units or products
❑ Productivity and efficiency: time and cost per unit of product
❑ Errors, mistakes, wmplaints, waste, rehun rates or.pollution
❑ Quality
❑ Timeliness
❑ Impact: changes resulting &om activity
It is important to note that performance indicators are often most meaningful and effective when
the measwes can serve as a basis for comparison. Comparisons are best when they are made
using similaz data from similaz organizations, or if they compare the same activiries within the
organization over time. Comparing the City of Saint Paul's performance in these azeas over time
is likely to yield more meaningfiil resutts because of the idiosyncratic nature of these processes.
Therefore, it is recommended that the following measures be tracked at periodic intervals for
comparisons.
We have or ni� our discussion of potential performance measures by division: City
Clerk/fnformation and Complaint, Code Enforcement, and Marketing and Promotions. What
follows is not intended to be an exhausrive list of potential measwes, but rather provides what we
believe would be good measures for some aspects of the Office's work. Some of the data needed
for these measures aze already collected.
City Clerk
1) The timeliness of record retrieval could be measured by hacldng what percent of record
requests are fiilfilled within a certain time period, for example 24 hours. This
information could also be tracked and reported by type of request.
2) Similuly, the City Clerk's Office could measure how promptly official City documents
are processed and filled by tracking the percentage of documents processed within a
certain time period.
3) To measure the accessibility of official dceuments to the general publiq the Clerk's
Office should track how up-to-date document indexes and compilation of City records,
such as Council minutes, are.
2000 SointPaulCrryCouncARuearch
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86
Perfom�ance Audit of the City of Saint Paul's Citizen Service Office
Information and Complaint Division
1) To measure the response time to citizen complaints, the Division should measure the
average time it takes to refer the complaint to the appropriate departrnent
2) The Information and Complaint Division should formalize the collecrion of citizen
satisfaction data regarding the Ciry's response to complaints. This information is
currently being collected on an irregulaz basis. The Division should develop a consistent
policy and methodology for collecting this data and reports should be ptoduced and
distributed city-wide.
3) Part of the development of citizen satisfaction data collection policy should include the
measurement of the Division's ability to conduct these call-backs in a rimely manner.
This should include tracldng the amount of time it takes Information and Complaint staff
to call citizens back after their complaint has been resolved.
Performance Measures for Code Enforcement
1) To measure workload, the Code Enforcement Division could measure inspections per
inspector, or inspections per year.
2) To measure timeliness, the Division could measure (a) average response time in calender
days for initia] inspection of code violations for the most recent fiscal year; and (b) the
average time in catender days for progressing from inspec.4or's report to either voluntary
wmpliance or the initiation of administrative or judicial action.
3) To measure the effectiveness of code enforcement actividies, the Division could measure,
(a) the percentage of code violations brought into voluntary compliance prior to the
initiation of administrative or judiciat action; or (b) the number of code violations
resolved per full time equivaleats (FTEs) units.
4) To measure cost, the Division could measure the cost per code enforcement case.
Marketing and Promotions Division
1) The Division sho�td attempt to measure the effecxiveness of their efforts to promote and
M21'KCL CVC'IITS Uy S�UIYByffi�a�'icZiu� awiai v::�.. �::: �.,�'�'.'�* r?'?!SJ.��3* �!�tIS- -
2) The Division sho�d survey stakehoiders, such as commturiry grovps and businesses,
which benefit from its activities. The Division should focus on measures which relate to
stakeholder needs and sarisfactioa
3) The Film Office should measure the average amount of revenue generated by film
projects in the City. This data should be disaggregated by the film type, such as
commercial, feature film, or video.
2000 Saira Paul Ciry Council Research
81-tP7
PerFormance Audi[ of ihe City of $ain[ Paul's C�UZen Service Office
CONCLUSION
87
The employees of the Citizen Service Office aze diligent and very concemed with providing
services and information to the extent possible and as dictated in law. We found some policies
where further development of CSO practices aze necessary, and others where a change in policy
would be more logical. We also found a geat deal of room for improvement in the efficiency
and effectiveness of the Office's operations. Through our interview process, we discovered that
staff and the managers and director have a willingness to improve operations. Our intent is to
provide them with recommendations that would do just that. Many of the recommendations aze
not difficult to implement and could dramatically improve the overall quality of the Office's
operations. The following is a summary of our findings.
Planning
The Citizen Service Office does very little planning for its operations. The only "plans" we
discovered were the "Strategic Plans" found in the City's Budget document, and some plans
created by the Marketing and Promotions Division directly related to various events and
activities. Staff suggested the overall lack of planning is a result of the reactionary nature of their
work and the influence of political decision-makers on their operations. Council Research offers
that creating plans to guide their work would assist the Citizen Service Office in balancing the
demands on their resources and assisting with prioritizing requests.
Leadership
Most staff within the Citizen Service OfTice have not seen the Office's mission statement.
However, most staff agree the mission is to serve the citizens of Saint Paul. Staff aze less sure of
the vision for the Oftice, though they do feel the Mayor provides a vision of the future of the
Office and supports the work they do. This was particulazly evident in the Code Enforcement
Division. The vision from the Director of the CSO seemed less clear to staff.
While the mission and vision may not be entirely clear to staff, the values of the organization aze.
The Director and managers deserve special recognition for exemplifying the values, in the eyes
of the staff, and for being open and accessible to their staff. Still, it would be helpful to new staff
to be able to view a vision, mission, and values statement to get a better understanding of the
organization.
Communication is a problem for the Citizen Service Office. We found many instances where
there was an appazent lack of communication between divisions and between management and
staff. Staff meetings and more information sharing between divisions could result in a great
improvement in the level of communication in the Office.
Training and Development
The Citizen Service Office, particularly the Code Enforcement Division, encourages training and
provides resources to attend various training sessions and conferences. Other staff, such as
2000 Saint Pauf Ciry Councit Research
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88 PerFocmance Audit of the City of Saint Paul's Cilizen Service Office
support staff, do not seem as inclined to attend training, though they aze atso encouraged to seek
training.
The work environment of the Code Enforcement Division has reportedly improved since they
were administratively moved to the Citizen Service Office, and most statFwere physically placed
in the Police Department's Eastem Patrol District offices. They have also come under new
management which, staff state, has an open-door, approachable philosophy. Some problems still
�ist with derical and vacant buildings staff being located in City Hall and the rest of the
inspectors being located at the East team offices. The files are also located downtown, which
decreases efficiency of operations and access to information. The work environment of other
divisions appeaz to be fairly healthy, though there were some problems discussed that appear to
be human resources issues that need to be handled on an individual basis.
Direct employee involvement in decision-making is an area that needs improvement in the
Office. Many employees feel decisions aze made at higher levels and they aze the last to find out
about changes.
Information and Analysis
The Cirizen Service Office is collecting very little useful data at the present rime. They have
stated tttat their current computer system dces not allow them to rehieve meaningful data;
therefore, any analysis of this data would be inaccurate. Two azeas within the Office are better
able to collect data: the Vacant Buildings Unit and Mazkering and Pmmotions. Infotmation and
Complaint is able to generate some reports as well, but not to the extent we feel they ought to be.
The Office has also began to move away from the old EXI, data base system. Some units within
the Office aze experimenring with Freelantz softwaze, which they have found to be inadequate.
They are also pursuing fhe possibitiTy of using the AMANDA system, which LIEP and Fire
Prevention have already begun to use. Council Reseazch feels they should be moving more
quickly towazd implementing AMANDA with greater input from cunent users.
Improvement Processes
As we have found in many other audits, the City overaii does noi engage in a sy� �;a,�:.,
- *±?e�i.n¢£ul_imnzovement_nrocess, and the Citizen Service Office is no e xception. Th aze very
good at finding different ways to improve their services, whether it is accepting informahon -- —
requests and complaints on-line or creating special initiatives to address specific Code
Enforcement problems. However, they aze lacking in the planning process for these initiatives,
and therefore run into unanticipated, avoidable problems in implementation, and they are less
sure of the success of the iniriatives because they have created no mechanisms to evaluate the
iniriatives or changes.
Customer Focus
We aze constantly impressed with the level af concern City employees show towazd citizens,
their customers. The Citizen Service Office is very interested in ensuring they aze providing
2000 Saira Paul City Counci! Rese�ch
Perfo�mance Audit of the City of Saint Paul's Citizen Savice Office g9 �����
citizens with the information and assistance they need. Currently, Information and Complaint
staff sometimes follow-up with complainants to assess their satisfaction with the CiTy's response
to their inquiry or complaint, though this information is not compiled or distributed. A more
ihorough assessment of residents' needs and level of sztisfaction would be beneficial to the City,
and ought to be done on a broader scale than just those residents who call the CSO. While the
responsibility for laiowing ihis information rests with every City deparknent, the CSO is best
poised for conducting a city-wide survey.
The employees of the Citizen Service Office understand a basic, informal set of customer service
standards. However, it would be helpful to have more forma] standards to assist staff in
understanding what the expectations are for their gerformance in relation to customers.
Resutts
Closely related to planning and information and analysis is results measurement. It is vitally
important that organizations gauge how well they are achieving their mission. The CSO does not
have a highly developed results measurement system. T1te Information and Complaint Division
does track some response times and satisfaction levels, Mazketing and Promotions tracks the
success of their programs, and the Vacant Buildings unit tracks information such as how many
vacant buildings aze rehabilitated. However, overall the Office does not use even the litile
information it has to analyze to assess its operations. The Office needs to re-examine its
performance indicators used in the City's Budgei. Performance measwes aze not just volume
indicators, they are used to assess progress, efficiency, and satisfaction. For example,
Information and Complaint staff currenfly track the number of call backs they do. A more
meaningful measure for them would be the number of call backs within three days, wlrich is their
objective as stated in the budget. They could set a goal for the level of satisfaction of
complainants - for eJCample 80 percent.
Performance Measures
The Citizen Service Office currently has few meaningfiil performance measures. However, they
have the potential to create measures using data they anticipate collecting with the development
of their information systems. Using performance measures in an ongoing cycle of planning,
evaluation and improvement could significantly assist the CSO in yeazs to come, and will
enhance intemal management and accountability to customers and stakeholders.
2000 Sairst pouJ Ciry Covncil Research
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� Perfomiancz Avdi[ o f tLe C ity o f Sa P CiGZen Se�vice OtSce
Appendix A: Resources
General Citizen Service O�ce Policies Applicable tn All Divisioru
2000 Budget Objectives and Activity Performance Plans
2000 Budget Straiegic Plans
Administrative Code Chapter 2. Office of the Mayor
Code Enforcement Pdicies
Legistafive Code:
Chapter 34. Properry Code Maintenance
Chapter 35. Rental IJisclosure Posting
Chapter 39. Smoke Detectors
Chapter 43. Vacant Buitdings
Chapter 45. Nuisance AbaYement
Chapter 51. Dwelling Unit Registration
Chapter 113. Snow and Ice on Sidewalks
Chapter 163. Abandoned Vehicles
Chapter 189. Tnrth in Sale of Hausing
Chapter 357. Solid Waste Provisions
The Saint Paul Comprehensive Plan: Housing Plnn, Adopted by the City Council March 24, 1999.
Housing Action Plan 2000
City Clerk/Records Policies
City Charter.
Chapter. 8. Initiative, Referendum, and Recall
Chapter 14. Special Assessments
Chapter 17. Generat Provisions
Legislative Code:
C}+_zpter 9. Publishing Costs of Special Ordinances and Resolutions
Chapter 28. Campaign Contributions
� ,,,: :;;,. �_� '-�-- v=, ��_�..+:�� c±�ra ? �d nther Public Grounds
li°k' ---_=- --- _
Administrative Code:
Chapter 4. Office of the City Clerk
Chapter 76. City Electioas — Nominating Petitions and Petirions in Lieu of Filiag Fees
Chapter 77. Elections — Canvassing of Retums and Certi&cations of Resutts
Chapter 87. Depository for pocuments
Chapter 91. Procedure for Public Hearings Regarding Public Nuisances
Chapter 94. Protection of Trade Secret Information
Append'vs Chap. 3. All Public Meetings —Notice Requirements
Minnesota Statutes Chapter I3. Govemment Data Practices Act
Minnesota Rules 1205. Department of Administration - Data Practices
1000 Saint Paul Ciry Council Research
Perfomisnce Audii ofthe City of Saint Paul's Citizen Smice Office 91 a��`e �
City Council Resolution 99-881
Information and Complaint Policies
Chapter I 13. Snow and Ice on Sidewatks
Chapter 163. Abandoned Vehicles
Books / Miseellaneous Documents
Ammon, David N. (1996). Municipal Benchmarks: Assessing Local Performance and
Establishing Community Standards. Sage: Thousand Oaks, CA.
Bryson, John. (1995). Strategic Planning for Public and Non-Pro,fit Organization. Jossey-Bass.
San Francisco, CA.
Malcolm Baldrige Narional Quality Awazd Ptogram. 2000 Criteria for Performance Excellence.
The Urban Institute (1980). Performance Measures: A Guide for Local Elected �cials.
Washington D.C., The Urban Institute.
2000 Saint Pau! Ciry Coumci! Research
ol -� 7
�
Pafosmance Audik ofthe GTy of Saint Paul's C'itzen Service Office
Appendix B: CSO "200Q Strategic Ptanss
Communicate usefiil infomzarion regazding city services to elected offecials and the citizens of
Saint PauL
Strengthen the City's approach in delivering City services.
Ensuring stronger collaborative partnerslups with intemal and e�cternal customers (i.e. community
organizations).
Measuring and reporting citizen satisfaction rate related to requests for service and responses to
complaints.
Phasing in a new computerized complaint system that will be used in City Offices and
Departments.
To provide citizens and City operations with accurate credible, pro-active research and policy
development by:
Idenrifying "real" problem issues in the City.
Clarifying whether we need to re-allocate reso�ces.
Providing accurate, base information to affect poIicy development or modifications,
Pinpointing the nced for system changes, etc.
Ensuring an educational component to our work to encourage professional and personal
development.
Ensuring public information employees within the City stay current.
Increase the frequency and quality of information going to City eraployees.
Solving long tecm communication issues.
Heip with implementation of communication strategies.
_`___'-.--`:_� �^a n..,.,,,*_+fi.,.� �f C'�tv events both downtown aud in the neighborhoods.
' fmm Page 64 of the 2000 Proposed City of SainX Paul Budget
Z000 Saira Paul Ciry Covncil Resetvch
Performance Audit ofthe Ciry of Saint Pwl's Ciazen Service Office 93 Q � _ � �
Appendix C: Excerpt from the "Agreement Between Ramsey
County and the City of Saint Paul for Election Office
ManagemenY'
i. countv Duries
Tiie County will assume all electian duties required by Minnesota Statues to be performed by City
Election staff with exceprions as noted in this Agreement These duties will include:
• Continue efforts to improve customer service in part through the use of random surveys to gauge
voter satisfaction
• Locate and amange for polling piaces that are handicap accessible, wherever possible, and
obtain City Council approval for any changes
• Recruit and train election judges
• Prepaze and maintain the election calendar year
• Handle candidate filings and maintain candidate files
• Supply copies of candidate filing to the city Clerk within twenty - four (24) hours of receipt
• Order ballots, envelopes and other voting supplies
• Monitor delivery of ballots from printer, sort new baliou, prepare test decks
• Administer City absentee ballotmg
• Arrange for public accuracy tests
• Program for elections and test those progams
• Package and de(iver election supplies
• Maintain and store voting equipment
• Provide main office ghone coverage to answer questions whenever polls are open or election
judges are still at the polling locations
• Provide unofficial election resuks at the eleetion office to the media and candidates at least
every half hour after polls close on election night
• Accumu3ate election returns and provide City Council with resuits for their approval
• Store voted ballots and election retums
• Verify signatures on petitions, iniriatives, referzndums and recalls
• Provide an analysis to the City of the election costs for proposed legislation as requested
• If a new voting system is used, the County will inform voters and provide demonstrations as
required by Minnesota Statues section 206.58
2000 Saint Poul Ciry Courscil Research
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� Perfolmance Audit of the Ciry of Saint Paul's Cirizen Service Office
Appendix D: Vacant Buiiding Categories
: Must be
to take
3ing off
List
• Pull stop
order card
and retum to
Nuisance
Buildings
Code
Enforcement
Program
_ 1 2 3
• Pay • Pay outstanding fees • Pay outstanding fees
outstanding
Yees • Code Compliance or • Code Compliance or
Certificate of Cacificate of
• Occupy Occupancy Inspection Occupancy Inspection
Report Report
• Pemaits if
needed
• All necessary work
pertnits
• Code Compliance
Certificate or
Certificate of
Occupancy issued
• Pull stop order card
and return to Nuisance
Buildings Code
Enforcement Program
• $2,000 cash deposit or
Performance Bond
Posted
• All necessary work
pertnits
• Code Compiiance
Cerrificate or Certificate
of Occupancy issued
• Puil stop order card and
retum to Nuisance
Buildings Code
Enforcement Program
- -
2000 Saint Paul Ciry Council Research
Performance AudR of the C5ty oFSaint Paul's �tiun Service Office
Appendix E: Compilation of Recommendations
9i b � ^ ��
Recommendation #I. The Information and Complaint Division should resume providing customer
satisfaction data to the Mayor, City Councit and department and o�ce directors, ar well ar to
other staff in the Citizen Service Office. Other computer systems could be used to prepare the
reports until the AMANDA system is fully operationaL They must also set a high standard for
doing catl-backs, such as a setting a goal of calling back 90 percent of all complainants within
three days.
Recommerrdation #2. The Citizen Service Ofj'ice should prepare an annual repon for the Mayor
mrd City Council clearly showing each depurtment's response times to complaints and inquiries,
as well as customer satisfaction dafa. The data should be delineated by department. They should
create an objective to provide this information at teast anrruatly, if not more ofYen.
Recommendation #3. The City Council should direct Councii Research, the Citizen Service Qffice,
and the Planning and Economic Development Department to conduct a City-wide survey to
ascertain the level of citizen satisfaction with City services and citizen service needs.
Recommendation #4. The CSO should work with other departments, such as the PoZice
Department, LIEP, Fire Prevention, and Public F�orks to create a plan or system to follow so that
complaints are addressed quickly and uniformly. Specific data should be compiled on when a
complaint is received and forwarded to the department, to whom it is fonvarded, when a service is
rendered, and when a resporrse is received. Information on compiaint resolution should be made
part of the frve-day late report.
Recommerrdation #5. The CSO shauld establ "uh specifzc guidelines requzring departments to
submit to the CSO, on a biannuad basis, a Records Retention Schedute. They should also devise
guidelines to ensure departments notify the City Clerk when documents are permanently removed
from City files or disposed of, and these notifications should be maintained by the City Clerk.
Recammerrdation #6. The City Clerk/Records Division should prepare a plan to trcrosition paper
documents to the new document imaging system.
Recommendation #7. The City Clerk/Records Division should prepare a specifzc plan to ensure
fhat Council Proceedings are prepared annually and indexed in a timely fashion. Funds should
not be re-atlocated for other uses if ihey me spec�ed for binding.
Becommendation #8. The Citizen Service Office should take responsibility for educating
departments on what documents need to be provided to the Public Library. Council Research, the
City Council, the Public Library and the Citizen Service Offzce should work together to review the
reguirements of the ordinance to determine whether three paper copies need to be submitted, or if
the number ofpaper copies required could be reduced if an elecdonic copy is provided. Following
this review, an ordinance change should be made if necessary.
Recommendation #9. The City Clerk should devise a more formal system for departments and
other relevant Ciry o,�'icials to notify the Clerk of newly elected and appointed officials who need to
receive the oath of ofJ'ice. The Clerk's budget objective should be modified to indicate it the oath
of office wi11 be administered within a spec�ed amount of time, such as rhirty days.
1000 SainrPaul Ciry Council Research
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� Perfom�ance Audit ofthe Cry of Saint Paul's Citizen Service OtSce
Recommendation #10. The Citizen Service �ce shoutd immediately develop a straregy io inform
all City departments of the requirements and process for trade secret storage.
Recommendation #II. The City CouncB should update the language in Legislative Cnde Chapter 48.05
10 reflecl the current Ci1y departments.
Recommendation #12 , The Mrnketing and Promotions Division should resume production of hrnd
copies of the Resident's Guide and ensure that all residents hcrve access Co the information.
Recommendarion #13. The Administration should prepare, for City Council consideration, an
amendment to the Administraiive Code outlining the duties and powers of the Marketing and
Promotions Division.
Recommendation #14. Code Enforcement managers shouZd clar� for inspectors which
ordinances provide the highest standmd for enforcement.
Recommendation #I5: Code Enforcement, the City �tttorney s Of, j�zce and Council Research should
revise fhe excessive corrsumption portion of Chapter 34 to allow the Ciry to collect fees to cover
costs jrom repeated irrspections a11he same properiy. The Ci1y should assess the fees to the
P�'aP�'h' tctzes.
Recommendalion #16: Inspectors should issue written orders along with mry oral orders to
provide written evidence if the problem persists, cmd to ensure the properry owner or tenant
receives the appeals process ireformation.
Recommendation #17. The City Council should update the language in Chapter 42 and make it the
responsibility of the Director of the Citizen Service Offzce or his or her desigrree. If Chapter 51 is
successfully implemented, the Citizen Service Office should request that Chapter 42 be repealed
from City Code.
Recommeudation #18: The Ciry Council should revise Chapter 45 to include the cost of Code
Enforcement irupections in the abatement fee. This would then be compatible with the concept
behind excess consumption and recovering cosls associated witk enforcement.
Re...^�n!m�dation #19. Code Erforcement should immediately assign an i»spector to ihe Truth In-
Sale ofHousingprogra»z or the City shauld contract out the comp[iance inspection,. :?za !'i:y
- - -- -i-�_... r _ ,,,..;,,.,r;�.o rmm�laints.
SITGT[tu�'fiiG�i"ufi::.....;:.'r.ii::;a,:�...e .:,,__.' ___' '
Recommcrndatian #20. The Ciry Council should allacate funds directly to Code Enforcement ro
eruure their participation in the FIEAT program if it wishes to continue the program in its current
form. If the Ci1y Council does not wanl Code Enforcemenr i�svoZved in 1he HE.4T program, it
shauld specify that Code Enforcement not participate in the program.
Recommendation #21. Cade Enforcemerrt should advise the Planning Commission to change
Comprehensive Plan policy 4.3b iffines m�e an ineffective a less desirab[e way to gain compliance
than is interacting with property owners through the standard violations notice process_
Kecommendation #22_ Code Enforcement, the City Artomey s Office, Fire Prevention, LIEP and
2000 Saint Paul City Council Research
Pecfocmance Audit of the City of Saint Paarl's Citizen Service OfSce 97 �� ^��
Housing Court should do an evatuation of the services provided and the Zevel of success of the
housing coun program and determine areas for improvement or change.
Recommendarion #23. Code Enforcement should standmd'ue the information given out to ensure
that everyone receives the necessary information. Phis information couZd also be given out to
entire neighborhoods that are the focus of Code E'nforcement sweeps. Thu information should
also be made available on Code Enforcement's web site_
Recommerrdation #24. Code Enforcement should be more irrvolved with Public Works in the
selectian o}"projects such as alley paving and plowing, curb and gutter installatiorr, street lighting
upgrade, boulevard and sidewalk maintenance and street surfacing. If Code Enforcement were to
assist with the selection, fhey may be able to tcnget resaurces to neighborhoods where City
irevestment woutd greatty impact the neighborhood and increase the value of the properties. While
in many instances these projects deal with quality of life concerns, rather than safety concerns,
they serve to improve and beautify neighborhoods and increase people's serrse of security.
Recommendation #25. Code Enforcement should provide statistics that indicate which arear of the
City inspectors spend most of their time and what the common problems in the area are. This
couZd provide data which would help decuion-makers determine where resources should be
directed. This information could be used City-wide by various departments.
Recommendation #26. The Planning Commission shoudd remove, , from the Comprehensive Plan,
policy 4.Sc which promotes the placement of vulnerable properties under the management of a
community based organization.
Recommendation #27. Code Enforcement and the Planning and Economic Development
Deparhnent should reach agreement on what information about availqble resources for
rehabilitation is appropriate to provide to property owners and tenants.
Recommendation #28. Code Enforcement should develop a plan fer the administration of the
Rental Registration program. It must address potenfial influences on the program, such as special
initiatives, and how to make the program successful even if staff resources are limited. Code
Enforcement also needs to plan for implementation of each provision of the ordirrance to ensure
they are enforceable. All stafJ"responsible for Rental Regisfration skould be involved in the
creatfon of the plan as well as the City Attorney's O�ce and other relevant stakehotders. As with
arry new program, other staff within the CSO should be educated as to the specifics of the program
in order to prevent confusion over enforcement arrd administration and to ensure the information
provided regarding the program is consistenf.
Recommendation #29. Code Enforcement must implement the AMANDA system as quickly as
possible for Rental Registration. This wauld also allow other deparhnents utilizing AMANDA easy
access to the registration dafa.
Recommendation #30: The CSO's Information and Complaint Divuion should provide cnmplaint
reports and complaint resolution feedback reports to the Yacant Bufldings unit. This information
should be used to assist the Yacant Buildings Unit in determining how well the case management
system is working.
2000 Scint Paul Ciry CovrsciZ Research
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98
Perfom�m�ce Audit ofthe Ciry of Saint Paul's CNUn Service Of&ce
Recommendation #31: The Yacant Buildings Unit should develop more meaningJul budget
objectives which are more than just reiterations of City Legislative Code. The unil should review
bvrh their ongoing and annual budger objectives. New objectives should set goals for the unit
which go beyond what is required by Code and are pertinent to special initiatives to be taken in the
coming year. The lack of ineaningful budget objectives is an issue for most of the CSO's budget
areas.
Recommendation #32. If PP2000 is to continue, Code Enforcement should articulate criteria for
inclusion in the PP2000 program. The criteria should be based in pan on quantiJatave data such
as complaints about the address, the number of citatiorrs issued to the properry, und police calls fo
the property.
Recommendation #33. Code Enforcement should immediately compile mrd analyze data relating
to the PP2000 program to determine its effectiveness and worthiness.
Recommendation #34. Code Enforcement should develop a program to address problem
properlies which are not included in the PP2000 program, such as owner-occupied and other
rental properties not owned by the subjects of the PP2000 program.
ltecommendation #35. Code Enforcement should perform a systemaYic evaluation of the Dayton's
Bluff Initiative This would iavolve collecting more comprehensive data on the Dayton's Bluff
Initiative to determine iYS effectiveness, particularly if it is to be eztended or used as a model in
ofher neighborhoods.
Recommendation #36: Code Enforcement should collect data to determine the effectiveness of
sweeps. If they are found efJ`'ecrive, the Ciry Council shauld provide special funding to conduct
them in addition to routine Code Enforcemenl activities.
Kecommendation #37. The CSO should create a true strategic plan with outcomes, time lines and
action steps. It should irrvolve all staff and representative stakeholders and customers in izr
development, and make sure that all staff m�e made aware of the plans and how they corrtribute to
achieving outcomes. e111 divisions within the CSO should have plans relating specifically to their
work which help them manage workloads and expectatiorrs, and to anticipate potential changes.
The need for planning irr Code Enforcement is particularly apparent. Planr would allow fhem to
beirer mmrrge,t�w�rR �sseg::,�:�:�. 77se CSO should discuss the plans with the Council and
Mayor to garner their input.
— -- --
------ --- -------------
--
ecommendaiion #38. The CSO should engage in planning prior to implementation of the -—
e1M�INDtt system to ensure the system is functional for staff, and to assist them in managing the
iraining and workloads during this period.
Recommendation #39. TOze Marketing and Promotions Division should solicit Council input
annually during Marketing's planning process for the upcoming year.
Recommendation #40. The CSO should create a plcm far the City's website development. This
would arsist the Office in guiding oiher departments through the development of their own web
pages and clearly srate the time frame and expectations for development.
2000 Saint Paul Ciry Council Rese[vch
Perfoxmance Audit of t}�e Ciry of Saint Paul's Citizm Secvice Office
� o � -�'�
Recommendation #41. The CSO should revise its mission statement and irrvolve a11 CSO staff in its
devetopmenz This could be done in conjunction with the development ofan Of,J�zce-wide strategic
plan. See also recommendation #37 in the Planning section.
Recommendation #42. The CSO Director should schedule monthty all-staff ineetings for
dissemination of information between divisions and staJf recognition. Unit-wide meetings should
also be held on a regular basis.
Recommendation #43. The CSO should estabtish an employee recognition program and make
recognition an important part of daily work Employees should be included in the formation of the
program to determine what types of recognition are most meaningful to stafj.
Recommendation #44. Senior leaders should formalize the vatues of the Of,�zce and integrate them
into formal customer service standards. Staff should be directly irrvolved in this process.
Recommendution #45. CSO leadership should work with employees to devedop a strategy to
mitigate the "us vs. them" mentality that occurs between staff. The Offtce should work to create a
sense of employee ownership of the CSO.
Recommendation #46: Consistent with recommendation #41, the Citizen Service Ofjice shauld
undertake an effort to redefine their mission, particularly because the missions of Code
Enforcement artd the rest of the CSO appear inconsistent and possibly incompatible. The Office
needs to do a better job af integrating these two functioru. If the missions cannot be aligne,d,
serious consideration should be given to whether Code Errforcement shoutd be docated elsewhere
in the City s governn:ental structure.
Recommendation #47: As described in recommendation #37, the CSO musf pursue strategic and
long-term planning in order to be tess vutnera8le to political in}luence and less apt to have its
work driven by crues.
Recommendation #48: Senior leaders of the CSO should create a process by which employees can
be more directly involved in decisions made about their work
Recommendation #49: The CSO should develap a plan to house the entire Code Enforcement staff
in nne location. Communication and the morale of clerical sfaff would improve. The files
downtown shoutd be moved to where irrspectors are located because of the inefficiencies caused by
the current arrangement.
Recommendation #50: Code Enforcement should review artd revise its employee manual. A work
group representing senior deaders, inspectors, and clerical staff should be responsible for this
efforz A revised manual would help the division ensure cousistent enforcement and codify existing
performcmce ezpectatiorrs for Code Enforcement employees.
Recommendation #51: The CSD should reintroduce performance evaluations. To this end, the
CSO should undertake an effort which i�rvolves all staff'to develop an appropriate evaluation
process and forms far each of the functioru in the Office. While the CSO may wish to continue to
use the Human Resources format, it may be in their irtterest to customize the form to rejlect the
2000 Saim Paal Ciry CawrciT Reseasch
ol-� 7
�oo
Perfonnance Audit ofthe Ciri ofSaint Paut's Cifizen Service O$ce
work done by the dzfferent functions within the O�ce. After the new process is developed, CSO
leaders should begin conducting performance evaluations immediately.
Recommendarian #S2: CSO senior leaders should determine why some staff are less inclined to
attend training. Particular anention should be paid to members of the clerical staff and less
senior code enforcement inspectors who reportedly are less likely ro take advanlage of these
opportunities. Senior leaders should corrsider providing an incentive for staff to take advantage of
training by making this an importanr factor in evaluating an employee's performance. Staff should
also be encouraged to pursue training that would advance them professionally and be rewarded
for their successful pursuit of career-track training.
Recommendation #53: The CSO should convert to AMANDA as quickly as possible. The Ofj'ice
har planned to adopt AMANDA afler LIEP has had more experience with the system in the hope
the Office could learn from LIEP's experience. However, we believe this would be a misrake. As
our findings demonstrate, this Office collects very Zittle meaning ful informaiion about its work and
performs ulmost no dcrta analysis. As an explanation for this fact, almost everyone has blamed the
FX/, system for this problem. Moreover, there is every indication that LIEP hac been successful in
implementing EIMtIND�t. Therefore, the CSO should convert Zt's databases to the AM�fNDff
system as soon as possible.
Recommendation #54: T7re CSO sPrould hire an employee whose primary duty it is to perform
research and analysis. There rne a rrumber of ways to implement this recommendation. An
employee could be hired to serve all four divisions of the CSO. Alrernarively, Jhe Code
Enforcement or Information caad Complaint Division could hire someone who splits their duties
between research, analysis and other work actfvities in the �ce. Another consideration might be
thcrt, consistent with the G�Qice's 2000 strategic plaru, this staffperson cauld potenrially do daza
analysis for other City Dep�ntments and Offices in an effort to improve services and programs
City-wide.
Recommendution #SS: The CSO should immediarely begin dafa colleclion and analysu for special
initiatives which it is currently undertaking, such as PP2000 and the Dayton's Bluff initiative.
Even ifEXL or Freelaniz systems are fnadequate to coI[ect data and perform analysis, the OfJice
could do meaningful analysis on simple spreadsheeu and statistical programs, such as Lotus I-2-3
and Slatisiical Program for the Social Sciences (SPSS).
_ Recommendation #56: The CSO should specify data colleciion, analysrs and evaluation siraiegies
_— ' ' : �..-_ -r__ �z.,,,.�a o,.o,.;fi, thp on�rls ofthe pro
rai the p�an7ora�y ncrn�w�u�.�.s.—rr:;.;-��� :�:��� t .�:.� ----r °---- �
-- — •w - -=— -
how they will measure whether these goals have been achieved and wha will do the measuremersf. -- -
Recommendation #57. The CSO should engage in a more formal improvement process that
includes plannin� implementation mzd evaluation of the improvement effons. By engaging in arr
intemal process to identz,fy' improvements, planning the implementation of the improvements, arrd
evaluating their impact, they will move away from the reactive mode to a more proactive
e�rvironment The new hire Jo perform dafa analysis, suggested in the Informalion and Analysis
recommendations, should be heavily irrvolved in this efJ'ort.
Recommendation #58. The CSO should identify, rrs part of it slrategic planning efforts, who its
cuslomers are and put processes in place to identify their needs and satisfaction with the
2000 Saint Paul Ciry Council Research
Perfo�m�ce Audit of rhe Cry of Samt Pwl's Cid�en Se�vice Office
ioi bl�'l
information and services provided by the Of�tce. This could be accomplished by initiating a formal
annual survey of its customers once they have been identifzed by staJJ'and management.
Recommend¢tion #59. The CSO should produce a written set of customer standards and circulate
them to all stafj: Based on the fact that employees currenrly follow an infornzal set of standards
Based on organ"uational values this should not be difficult. This will clarify customer ezpectations
for a11 stafJ'and aid in the training of new sraff.
Recommendation #60. Code Enforcement should provide customer service training ro its
irupectors and clerical staff in order to provide a more cottsistent customer focused attitude in the
course of carrying out their jobs. This would be in line with the vision from #he Mayor's Office
and the Director.
Recommendation #61. The CSO should be a leuder in developing a more useful, functional City
website. Some suggestions to reach this goal are:
• make permit and complaint forms earily accessible from the CSO's web page;
• standmd'ue the City website so all City department pages have a uniform, recognizable Zook;
• develop a stnndnrd complaintform; and
• create an auto-reply function for inquiries.
Recommendation #62: The Information and Complaint Division should generate customer
satisfaction reports and distribute them to all slaff in the CSO, as well as other departments. Over
SO percerrt of complaints received by the Information arrd Complaint Division are Code
Enforcement relatetl. This type offeedback would be iizvaluable for Code Enforcement to track
how it well it is doing. Moreover, the CSO should also provide these reports to relevant frontline
staff of other City depm�hnents and offices, such as Public Worlrs, LIEP and Parks and Recreation,
who also receive a large share of these complaints. The CSO should also consider posting these
reports on the City's web site so residents and City workers can track how well the Cify is doing to
resolve problems identifzed by citizens.
Recommendation #63: The CSO should include, in its planning for the implementation of the
fiMfINDR computer system, a discussion of what resulfs it wishes to tracic It should determine
whether these results can be adequately tracked by the new systems. The consideration of the
results suggested by staff'in 1he performance audit inlerviews are an ezcellent siarting point for
this discussion.
Recommendation #64: The CSO should compare its results to other similar organizations.
Recommendation #65: Senior leadership in the CSO should elearly detail goals for eac& work
activity in CSO through organizational vision and strategic planning efjorts. Staffshould be
informed about these goals cmd have an understanding of how their work is connected to the
achievemeni of the goals.
2000 Saint Pmel Ciry Cormcil Ruearch
b>-b7
t02 Petfoimance Audit of t6e Ciry of Saint Paul's Citizen Service Dffice
Appendix F: CSO Performance Audit Survey
Answer the qoesfions 6y ciroling the number of the
response category which best answers the question or describes your opinion.
AN responses are anonymous. Thank you fo� your cooperation.
1. Plaus in my work area are mada..
4 At least twice a year
3 Annually
2 Every 3 years or more
1 Never
0 Don't lmow
* If never, go to quesrion 6,
2. The duratioos of the plaus ia CSO
are... (Circle all that apply)
3 More ffian three yeais (long term
Pl�)
2'I'hree years or less (short term plans)
1 Don't lmow
3. CSO makes the followiag types of
plans... (Circle all Wat apply)
3 Issue-sp�ific plans
2 Geneiat organizationai plans
1 Other
4. I regulady participate in CSO's
planning efforts
6 S�as�Y aS'ee
4 Agree
2 Disagee
1 Strongly IJisagree
6. The Mayor effectively couveys a clear
direction for the future of CSO
5 Strongly agree
4 Agree
3 Neither Agree nor Disagree
2 Disagee
I Sirongly Disagree
7. The CSO Dirertor conveys a clear
vision for the future of CSO
5 Strongly agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongiy Disagree
8. The CSO Director and managers
effectively convey the core values of the
orgauizalion
5 Strongly agree
4 Agree
3 Neither Agree nor Disagree
2 T}isagree
1 Strongly Disagree
9.
5. CSO plans are implemented frequently
5 Strongly agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Sh�ongly Disagree
mission
convey an organizational
5 Strongly agree
4 Agree
3 ATeither Agree nor Disagree
2 Disagree
1 Strongly Disagree
1000 Saint Paul City Counci! Research
Petfoimance Audit of the Gty ofSunt Paul's Ci6zen Service Office
10. Senior management is visible aad
accessible to empIoyees
5 Suongly Agree
4 Agree
3 Neither Agee nor Disagree
2 Disagree
I Strongly Disagree
11. The communicalion withiu CSO is
effective
5 StronglyAgree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Suongly Disagree
12. The Director and maaagers effecrively
recognize staff rnntributions
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
13. The Director aad managers eucourage
participation in pmfessional
organizations
5 Strongiy Agree
4 Agree
3 Neither Agree nor I}isagree
2 Disagree
1 Strongly Disagree
14. I have a good understanding of
performance ezpectafions in my area
of work
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
2 Strongly Disagree
303 01— r
15. The current employee evaleation
process is useful to emptoyees for
itnproving t6eir performance
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Ilisagree
16. CSO senior leaders, supervisors and
employees treat each other with
respect regardless at their race,
ethnicity, class, gender, age, national
origin, sexual orientation or p6ysical
ability
5 Strongiy Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
17. In CSO, labor and management work
wetl together
5 Suongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
18. My job makes good nse of my skilts
and abilities
5 Suangly Agree
4 Agee
3 Neittier Agree nor Disagee
2 Disagree
1 Strongly Disagree
3000 Snint Paazl City Cound! Rerearch
�1 7
i� Pafom�ance Audit ofthe City of Sai¢t Pau!'s Cifiun Se�vice Office
19. My work gives me a fee{ing of personal
accomplishment
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
20. Opportunities ezist for me to
contribute to t6e decisions made about
operalloas and procedures in CSO
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
I Strongly Disagree
21. I receive the training necessary to
perform my job effeciively
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
22. 2Ky individual perFormance is
evaluated...
4 Twice a year
3 Annuaily
2 Every 3 ye�s ar �„^re
1 Never
Z3. The current employee evaluation is
nseful in 6elQing me improve my
performance
5 Strangly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
24. CSO collecffs data to effectively
support its activities
5 Strongly Agree
4 Agee
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
25. The collected data is useful and
relevant to fhe work performed in
CSO
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagee
1 Strongly Disagree
26. CSO uses data to evaluate its activities
and to improve its performance
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
27. The CSO's information systems
cnrrenUy meet my needs
5 Strongly Agree
4 Agree
3 Neither AgrPe nor Disagree
9 Te.__�—__ ._ —
1 Strongiy Disagree
28. Activi6es in CSO are formally
evaluated...
4 Twice a year
3 Annually
2 Every 3 yeazs or more
1 Never
0 Don't know
* if never, go to question 30
2000 Saira Paul City Cour`cil Resemch
ar-��
Perfomcarrce Audit af fie City of Sainc Pwl's �tizm Secvice O&ce
29. CSO practiees are regutarly chauged
based on the results of ttee evaluations
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
30. CSO frequently changes the way work
is done to improve performaace
5 Strongly Agree
4 Agree
3 Neithet Agee nor Disagree
2 Disagree
I Strongly Disagree
31. Administrative practices (such as
forms and reporting proeedures)
within CSO are reviewed frequently
for improvement
5 Strongly Agree
4 Agee
3 Neither Agree nor Disagc�
2 Disagree
1 Strongly Disagree
32. The performance of CSO's vendors
(providers of goods $nd contracted
serveces) is regularly eva]uated
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
i Strongly Disagree
33. I know wLo the customers of CSO are
5 Strongly Agree
4 Agee
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
105
34. List who you consider to be the
customers of CSO
5
4
3
2
1
35. CSO staff frequentiy monitor for
chaages in castomer NEEDS
5 Strongly Agree
4 Agee
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
36. The CSO is responsive to c6anges in
customer NEEDS
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
I Strongly I3isagree
37. CSO staff frequenNy monitor for
chaages in customerSATISFACT70N
5 Suongly Agree
4 Agrce
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
38. CSO is responsive to changes in
customer SAT7SFACTION
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
I Stroagly Disagree
2000 Saint Paul Ciry Comrcil Rcxarch
01-� 7
1 � PerFotmance Audit of ihe Crty of Sa3nt Paul's Citizen Service Office
39. CSO has customer service standards
for my area of work
S Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
i Strongiy Disagree
40. CSO's customer service staadards are
written
5 Strongly Agree
4 Agree
3 Neither Agee nor Disagree
2 Disagree
1 Strongly Disagree
41. I anderstand CSO's customer service
standards
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
42. StaB'fotlow established customer
service standards
5
4
3
2
i
Strongiy Agree
��
Neither Agree nor Disagree
Di ee
44. CSQ cnmpares its results to thase of
similar organizations
5 Strongiy Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
45. CSO often achieves its desired goals
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
i Strongly Disagree
41. How do you know goals have been
achieved? (Please egplain�
DEMOGRAPHIC QUESTIONS
How long have you been employed by
CSd?
5 less than one year
4 1 to 5 yeais
3 5 to 10 years
2 10 to 20 yeazs
1 20 or t*_:� y2a�
� --
Strongly Disagree �:,,. _. . _ - ---_---- - --- - _ _
___ _ ------ `�` �.`;:'�; �� emproyee are you?
-- — — --
-- " 43. CSO regularly measures the results of
its activities
5 Suongly Agree
4 Agree
3 Neither Agee nor Disagree
2 Disagree
1 Strongly Disagree
3 fuil time
2 part time
I intem
Wh�t area do yon work in? (Circle all that
apply)
4 City ClerklR�ords
3 Information & Complaints
2 Code Enforcement
i Marketing & Promotions
1000 Sain[ Paul Ciry Covncil Resemch
Council File # p�� G7
OR(GINAL
Green Sheet # � 11j)�b
RESOLUTION
Presented
Referred To
Committee Date
RESOLUTIONAccepting the Council Researc& Perfor�nance Audit ofthe Saint Paul Cifizen Service O�ce
1 WHEREAS, the Saint Paul City Council has directed the City Council Investigarion and Reseazch Center to conduct
2 performance audits of City departments to examine their policy compliance and determine the level of efficiency and
3 effectiveness of City operations; now, therefore, be it
4 RESOLVED, that the Saint Paul City Council accepts the report titled "Performance Audit of the City of Saint Paul's
5 Citizen Service Office," and requests the director of the Citizen Service Office to provide to the City Council a response
6 to the performance audit findings at the February 7, 2001 Council meeting.
7
Requested by Deparnnent of:
By: t� \`��-� ,���..��
Approved by Mayor: Date �ili( c �j � y� l
B _
OF SAINT PAUL, MINNESOTA
a�
�
Form Approved by City Attorney
�
Approved by Mayor for Submission to Council
Adopted by Council: Date � �
Adoption Certified by Council Se tary
b�-`'1
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GREEN SHEET No � ��7�p
�
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TOTAL # OF SIGNATURE PAGES
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(CLIP ALL LOCAiIONS FOR SIGNATURE)
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PLANNING COMMISSION
CIB CAMMRTEE
CNIL SERVICE CAMMISSION
RSONAL SERViCE CONTRACTS MUS7 ANSWER 7HE FOLLOWIN6 QUE57ION5:
H8511116 P�11116�RlMOfk¢d UMM 8 COId18d(Of �II6 d2�3ih11Plll?
vES NO
Fies Mic pnaoNfirm eoer hecn e Wy empbyee4
VES NO
Dcesttus pe�Ca�firm Po�s a ddl not non�ativc�� �Y �f' artem dlv andov��
YES NO
la Mis pnaoNfpm a teryetetl veMOY1
VES NO
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ROUNT OF TRANSACTION f
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COSirttEVENUEBtJD6ElEO(qRCtEONEJ YES HO
ACTIVT'NUL�ER
Performance Audit of
Saint Paul's
Citizen Service Office
January 2001
� C tTY �F
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� 186' �
PERFORMANCE AUDIT PURPOSE
Saint Paul City Council
Council Research Report
0 � '`�
The Saint,Paul City Council established the Performance Audit Program to help fulfill two major legislative
oversight responsibilities:
■ Ensure City practices are consistent with City policies; and
■ Assess the degree of efficiency and effectiveness with which City policies are being carried out.
This performance audit examines the activities of the Citizen Service Office (CSO), which includes four
divisions: Information and Complaint, Marketing and Promotions, City Clerk/Records, and Code Enforcement
Programs.
CITY POLICIES
In its effort to identify policy statements relating to CSO activities, Council Research reviewed City Ordinances,
City Council resolutions and 2000 Budget Performance Plans. The City's Housing Plan Chapter of the
Comprehensive Plan and the 2000 Housing Action Plan were also reviewed.
EFFICIENCY AND EFFECTIVENESS
The City Counci) wants to know if the Citizen Service Office is operating at an optimal level of quality and, if
not, what can be done to remedy any deficiencies preventing it from achieving the level of exoellence expected.
Information needed to review the CSO was obtained through document-review, site visits, interviews and an
Offtce-wide survey. The seven criteria used to assess organizational development and to identify quality
organizations are: planning, leadership, training and development, information and analysis, processes for
improvement, customer focus and results.
MAJOR FINDINGS - POLICY COMPLIANCE
■ The CSO is generally in compliance with relevant City policies, with the exception of some Budget
objectives.
■ The CSO is in compliance with records retention requirements, but the CSO should develop more formalized
administrative practices to increase efficiency and ensure compiiance by other City departments.
■ We found no enabling legislation in City Code for the Marketing and Promotions Division.
■ The CSO should develop formal administrative practices to ensure compliance with trade secret storage
requirements.
MAJOR FINDINGS - QUALITY ASSESSMENT
■ The CSO prepares very few plans with the exception of the Ivlarketing and Promotions Division.
More Findings -�
�.ti
■ Staff feel the values of the organization, though informal, are exemplified by the Office's management staff.
■ Communication at all levels and between all divisions within the Office is relatively poor.
■ Staff are encouraged to attend training and training resources are readily available.
■ The work environment of Code 6nforcement has reportedly improved since they were moved to the CSO.
However, some problems still exist with staff being placed in different locations and the fact that the files are
located downtown, while most Code Enforcement inspectors are located at the Police Department's Eastern
Patrol District building.
■ The Citizen $ervice Office collects little data and performs virtually no analysis or results measurement.
■ Staff are very focused on providing goqd customer service. However, they do very little assessment of
customer needs and satisfactiom.
EFFICIENCY AND EFFECTIVENESS RATINGS
Council Research developed a summary rating system we believe conveys the essence of our findings concerning
the City's Citizen Service Office and the seven efficiency and effectiveness criteria used in the assessment. Each
area assessment was assigned a"star" rating based on how fully developed and practiced a criterion was
throughoutthe organization.
Key to Efficiency and Effectiveness Rakings
**** � Criteria fully developed and practiced throughout the organization.
*,t * � Criteria well developed and practieed throughout most of the organization
** —i CriYeria present and practiced in some parts of tha organization. ,
* � Criteria very rarely present or practiced in the organization.
Citizen Service Office
* Planning
*YZ Leadership
** Training and Development
*'/z ' Information and Analysis
RECOMMENDATIONS
and Effectiveness
* Improvement Processes
**%: Customer Focus
*'/a Resulks
Thirty-six recommendations are made concerning policy compliance arid twenty-nine recommendations are
offered conceming the'efficiency and effectiveness criteria. The most significant .recommendations pertain [o:
■ creating a useful strategic plan for the CSO;
■ improving communication and employee input;
■ measunng results;
■ measuring customer satisfaction and naeds; and
■ developittg meaningful budget objectives.
FOR QUESTIONS, COMMENTS OR A COPY OF THE REPORT
PLEASE CONTACT
Geny Strathman, Council Research Director
at
(651) 266-8575 or crry.strathmail(c�stpaul �ov
D l-��
CITY COUNCIL RESEARCH REPORT
Performance Audit of
The City of Saint Paul's
Citizen Service Office
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Saint Paul City Council
Council Investigation and Research Center
Saint Paul, Minnesota
��,�n
,
Saint Paul City Council
City Council Investigation &
Research Center
Saint Paul, Minnesota 55102
651.266.8560
http:/1www.ci.stpau I. mn. us/council/circ.html
Performance Audit of
The City of Saint Paul's
Citizen Service Office
January 2001
Director
Gerry Strathman
Policy Analysts
Jennifer Dunn
David Godfrey
Kenneth L. Smith
Questions?
If you have questions regarding this
report please contact
Gerry Strathman at
651.266.8575 or
gerrv. strathman Ca�ci.stpa ul. mn. us
City Council Research Report
TABLE OF CONTENTS
6l-��
Performance Audit of
The City of Saint Paul's
Citizen Service Office
INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . 1 Special Prograzns & Units of Code
Enforcement .................... 39
CITIZEN SERVICE OFFICE OVERVIEW .... 4 Rental Registration Program ..... 39
Vacant Buildings Unit . . . . . . . . . 40
POLICY ALIGNMENT Special Initiatives . . . . . . . . . . . . . . . . . . . 43
Information & Complaint Division . . . . . . . . 5 PP2000 . . . . . . . . . . . . . . . . . . . . . . . . 43
Objectives of the Ci6zen Service Program . 6 Daytods Bluff Initiative ........... 44
Common Complaints . . . . . . . . . . . . . . . . . 7 Sweep/Surveys . . . . . . . . . . . . . . . . . . 45
Snow and Ice Removal . . . . . . . . . . . . . 8
Abandoned Vehicles . . . . . . . . . . . . . . . 8
City Clerk/Records Division . . . . . . . . . . . . . 10
Records Retention . . . . . . . . . . . . . . . . . . . 10
Documents Maintained by the CSO ..... 12
Documents to the Public Library . . . . . . . . 14
Elections .......................... 15
Initiative, Referendum and Recall . . . . . . . 16
Abandoned Property . . . . . . . . . . . . . . . . . 16
Oath of Office and Bonds for
City Officials . . . . . . . . . . . . . . . . . . . 17
Peritions Regazding Public Nuisances .... 18
Trade Secret Information . . . . . . . . . . . . . 18
Public Information Meetings . . . . . . . . . . . 20
Campaign Contributions . . . . . . . . . . . . . . 20
Condominium Conversion Notices . . . . . . 21
Marketing & Promorions Division . . . . . . . . 22
Mazketing and Promotions Policies ...... 22
ORGANIZATIONAL QUALITY
ASSESSMENT ....................... 47
Planning ............................. 50
Leadership ........................... 54
Training & Development . . . . . . . . . . . . . . . . . 59
Information & Analysis . . . . . . . . . . . . . . . . . . 65
Improvement Processes . . . . . . . . . . . . . . . . . 70
Customer Focus . . . . . . . . . . . . . . . . . . . . . . . 74
R esults ..............................79
PERFORMANCE MEASURES . . . . . . . . . . . . . 84
CONCLUSION .......................... 87
APPENDIX A: Resources . . . . . . . . . . . . . . . . . . 90
Code Enforcement Division . . . . . . . . . . . . . 24
Code Enforcement Organizational Chart .. 26
Overlapping Interests of Code Enforcement &
Other Departrnents . . . . . . . . . . . . . . . 27
Code Enforcement Objectives . . . . . . . . . . 28
Minimum Property Maintenance Standards
& Excessive Consumption Fees . . . . . . . . 30
Certain Nuisance Dwellings . . . . . . . . . . . 32
Nuisance Abatement . . . . . . . . . . . . . . . . . 33
Truth in Sale of Housing . . . . . . . . . . . . . . 33
Housing Plan Chapter of the Saint Paul
Comprehensive Plan . . . . . . . . . . . . . . 34
Housing Action Plan 2000 . . . . . . . . . . . . 38
APPENDIX B: CSO "2000 Strategic Plans" .... 92
APPENDIX C: Excecpt from the "Agreement
Between Ramsey County and the City of Saint
Paul for Election Office ManagemenY' ...... 93
APPENDIX D: Vacant Building Categories ... 94
APPENDIX E: Compilation of
Recommendations ........ ... .... .... . 95
APPENDIX F:
CSO Performance Audit Survey . . . . . . . . . 102
o!-��
Pedortnance Audit of the Ciry of Saint PauPS Citizen $ervice O�ce
INTRODUCTION
The City Councii, as the goveming body of the City of Saint Paul, ls responsible for establishing
City policies and ensuring that City practices aze consistent with these policies. As the body
responsible for approving the City Budget and authorizing the ta�c levy, the Council must also
assess the efficiency and effectiveness of City operations. Therefore, the City Council
established the Performance Audit Program in the fall of 1996 to help it fulfili these legislative
oversight and budgetary responsibilities and directed Council Research to conduct performance
audits of City operations. Performance audits analyze the consistency of departmental practices
with City policies, as well as provide insight into how policy directives aze implemented. The
performance audit also examines whether an organization's practices aze efficient and reflective
of those used by high-performing organizations.
SCOPE OF PERFORMANCE AUDIT
This audit is an examination of the policy compliance, efficiency and effectiveness of the Citizen
Service Office (CSO). The Office is composed of four divisions: Code Enforcement Programs;
Marketing and Promotions; Information and Complaint; and City Clerk/Kecords.
Poticy Compliance
The City Council establishes policies to govem the operations of all City activities including the
divisions of the Citizen Service Office. While there are many general City policies which affect
all City activities, this report addresses only policies which apply specifically to the functions of
the CSO. In order to determine the extent to which CSO activities aze consistent with City
policies, it is necessary to identify policies the City Council has established regarding their
functions. To this end, we have reviewed CiTy Ordinances, City Council Resolutions, the
Housing Plan Chapter of the City's Comprehensive Plan, the Housing Action Plan 2000, and the
2000 Budget Activity Performance Plans to isolate any policies adopted by the City Council as
part of the annual budget procesa The first section of this report identifies City policies related
to the Citizen Service Office and assesses the extent to which actual practices are consistent with
CiTy policies. Where discrepancies aze found, the reason offered for these differences will be
provided along with recommendations to bring policies and practices into alignment. These
recommendations may suggest changes in Office practices, City policies or both.
City Ordinances and Council Resolutions
We have searched the City Charter, the Legislative and Administrative Codes, and City Council
Resolutions for policies pertaining directly to activities of the CSO. The City's Administrative
Code is the compilation of City Otdinances which pertains to how City govemment is structured
and should operate. The Legislative Code is the wmpilation of ordinances which regulates
citizens and property owners of the City. The Code is usually explicit and leaves little room for
administrative discretion concerning the execution of ordinances. The Council would view
2000 Samt Pau1 Crty Counci! Research
�`-� �
2 Perfortn Audi[ of ffie City of Saint Paul's Citiien Serv�ce Office
failure to comply with the City Code to be a serious matter. Council resolutions aze forma]
expressions of opinion, intent or will that, if passed by the Council and approved by the Mayor,
become City policy. The sections of this report which focus on City Ordinances and Resolutions
will identify any differences between policies and pracrices and offer recommendations to resolve
inconsistencies.
Comprehensive Plan and Kousing Action P[an 2000
The City of Saint Paul maintains a Comprehensive Plan that defines the City's plan for most
City services. The chapters of the Comprehensive Plan are created through a careful and usually
lengthy process invoiving many parties and interest groups. The most rec;ent version of the
Housing Plan Chapter of the Comprehensive Plan was formally adopted by the City Council in
Mazch, 1999. It stands as a written statement of the City Council's policy expectations for
housing in Saini Paul. The Housing Action Plan 2000 is an implementarion plan for action to be
taken during 2000 to implement the policies in the Housing Plan and the Saint Paul-Ramsey
County Five-Year Low Income Housing and Homeless Services Report and Plan.
Since the plans aze not explicit policy directives, some differences are eacpected between the
Plans and actual activiries. Eiowever, such differences should be periodically resolved by either
changes in practice or revisions of the Comprehensive Plan or Housing Action Plan. This report
will idenrify the differences between policies, as stated in the Comprehensive Plan and Housing
Action Plan, and current practices in the CSO and offer recommendations to resolve any
inconsistencies.
Budget Performance Plan
Each year, as part of the City budget process, the Citizen Service Office presents Activity
Performance Plans for each of its divisions and its "Strategic Plans°' to the City Council for
approval as part of its Office budget. These "Strategic Plans" identify both the ongoing and
annual objectives of each budget activity. The City Council then adopts these objectives as part
of its adopYion of the annual City budget, and, as such, these objectives represent City policies.
While the Council understands that objectives set as part of the budget process may be ambirious
and are sometimes thwarted by unforseen developments, the City budget is an official City
policy document and the CSO is responsible for operating in conformance with these adopted
poticy statements. The sections of this report which focus on budget performance plans will
identify differences between policies and practices and provide the division's explanations of
these differences. Recommendations will also be offered to minimize such differences in the
future.
Efficiency and Effectiveness
The Ciry Council is very interested in the value received by citizens for money eJCpended.
Taxpayers rightly expect that money provided for the Ci6zen Service Office will be spent to
�These "Strategic Plans" do not meet what most eacperts in public management define as a strategic plan. This
discrepancy will be discussed further throughout the audit.
2000 Saint Paul City Coumcil Research
Perfom�ance Audit of fie Ciry of Saint Paul's Cipzen Service Office
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3
achieve the best result with the least expenditure ofpublic funds. The efficiency and
effectiveness of govemment operations can be assessed in many ways. One common approach is
for auditors to examine an organization at a micro-levei to try to determine if the organization is
following sound procurement practices, properly protecting its resources, and complying with the
requirements of laws and regu]ations. This micrwlevel approach to auditing is c3osely related to
financial auditing and is often conducted by accountants who spend a great deal of time and
effort examining the inner workings of the organization. While we accept there aze situations
where this type of micro-level auditing is appropriate, such as when fraud is suspected, we
believe a higher level audit is most appropriate here. The City Council is less concerned with the
minutia of daily operations and more concemed with lmowing if this is a top-quality
organization. If not, the Council is interested in knowing what can be done to remedy any
deficiencies preventing them from achieving the level of excellence expected.
The efficiency and effectiveness of the C50 are evaluated using an Organizational Quality
Assessment. While there aze several methods to evaluate effectiveness and efficiency, our
approach is based on work done by the organizers of the Malcolm Baldrige National Quality
Awazd who identified the characteristics of a high-performing organization. The categories and
criteria aze explained in the introduction of each Quality Assessment chapter of this report.
RESEARCH METHODS
Policies pertaining to the functions of CSO were gathered from the Saint Paul Administrative
Code, the Saint Paul Legislative Code, City Council Resolutions, the Housing Chapters of the
City's Comprehensive Plan, as well as the CSO's own internal plans, policies and budget
objectives. It is not Council Reseazch's intent to make specific findings on every in&vidual
policy statement. Rather, we focus on groups of policies that relate to specific functional azeas
within CSO. It is our belief this approach is more useful to both policy makers and par[icipants
in understanding how to improve the efficiency, effectiveness and compliance of the
organization.
We believe the best way to assess the level of organizational development is to ask those most
knowledgeable about the organization—the people who work in the organization. We believe
the employees who work in the Citizen Service Office best lrnow the strengths and weaknesses of
their organizations and will, when asked, candidly report their opinions. Therefore, we have
gone directly to CSO staffto ask them about their work. We were able to administer a written
survey to 29 of 40 (72 percent) CSO staff (there were two vacancies at the time of the survey),
and we also conducted 20 interviews with CSO staff members. Audit team members also
participated in a ride-along with inspectors to gain first-hand knowledge of how inspections aze
conducted. The findings and recommendations in this report aze based on these sucveys,
interviews and site visits, as well as an examination of written materials related to the CSO's
practices.
2000 Saint Paul Ciry Council Research
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PerFormance Audit of the City of Saint Paul's Ciuun Service Office
CITIZEN SERVICE OFFICE OVERVIEW
The Citizen Service Office is composed of four very distinct divisions, listed in the chart below.
The diversity of the furictions of the CSO made this audit both very interesting and somewhat
more complicated because at times it seemed as though we were examining four ofiices rather
than one. The Director of the CSO oversees all the divisions, and has d'uect responsibility for the
Information and Complaint Division, which does not have a separate manager, as the Code
Enforcement, Mazketing and Promotions, and City Clerk/Rewcds divisions have.
The following table outlines the basic functions of each area and the number of staff positions
assigned to each area. The policy compliance sections for each of the divisions will discuss
further their respective responsibiliries.
Divisions of the Citizen Service Office
City • keep all City records, proceedings, official books, papers, seal and
Clerk/Records documents
• provide documents upon request
• document preservarion
• pmcess peritions, claims, summons, wmplaints
3 employees • process norices of vacations for right of ways
• administer appeals to the Legislative Hearing Officer
• administer oath of office to elected and appointed officials
Information & • serve as an advocate for residential and corporate cirizens in responding
Complaint to requests and coruplaints regazding City services
• provide public informa6on to callers and walk-ins regazding City
S employees services and events
• provide call-backs to citizens who call in with concems
Mazkefing & • pmmote Saint Paul ttu�ough various events
Ptomotions • secure movie production contracts for filming in Saint Paul
• assist City neighborhood groups with marketing their events
S employees • produce the "Residents' Guide"
• develop and maintain the City's website
• publish "City Update" for City employees
Code • enforce minimum housing and health codes on all interior one- and
Enforcement two-family homes and on all extetior properties
Programs • monitor vacant buildings
• participate in special programs as requested by district councils and
31 employees other neighborhood groups
• administer the Tnrth-in-Sale of Housing prograin
• administer Rental Registration
2000 Saint Paul Ciry Council Research
6I-(�y
Perfortnance Audit of Ihe City of Stint Paul's Citizen Service Office
POLICY ALIGNMENT
This chapter presents the policies under which the Citizen Service Office is expected to operate
and the degree to which the current practices are consistent with those policies. Council
Research gathered policies from a number of sources including ordinances, resolutions, the
City's Comprehensive Plan and the City's Budget. They are organized according to which
division maintains the most responsibility for compliance. We have highlighted in boxes either
those policies that deserve special mention or those policies with which the Office is not in
compliance. The policies we examined are listed in total in Appendix A.
INFORMATION & COMPLAINT DIVISION
The Information and Complaint Division of the Citizen Service Office is responsible for
providing information concerning City matters to the public. It also serves as an advocate and
liaison by helping citizens resolve issues relating to City services. The complaint or request
process begins with a phone call, walk-in, or e-mail complaint or information request directed to
Information and Complaint staff. Walk-in customers speak with an analyst and fill out a
complaint form, and the information is then entered into the computer and the appropriate City
department is contacted by the analyst. Those phoning in complaints give their information to
the Citizen Service analyst who then follows the same process described above. E-mails aze
reviewed and responded to by a Citizen Service Analyst and logged into the computer in the
same manner as other complaints. If the department does not respond to the complaint within a
specified amount of time, usually five days, the analyst contacts the agency and asks them when
to expect a response.
A wide azray of complaints come into the Information and Complaint Division. On a given day
a Citizen Service analyst may deal with complaints about snow and ice removal, abandoned
vehicles, fallen trees, house parties, animals, excessive gazbage, pot holes, or water main breaks.
Information is sought on neighborhood and City-wide events, City department responsibility,
snow plowing, pazking and elections.
This Division works closely with the Pazks and Recreation Division, the Police Department, the
Public Works Depactment, the Office of License, Inspections and Environmental Protection, the
City Council and the Mayor's Office. Within the CSO, the Information and Complaint Division
has a regular working relationship with the Code Enforcement Division. Many ofthe complaints
received by the public have to do with property code viotations. Once a complaint has been
taken, a letter is sent to the subject of the complaint and the complaint is forwazded to Code
Enforcement inspectors, whereupon they schedule a site visit. Analysts sometimes follow-up
with a call-back to the complainant to ascertain their level of satisfaction.
Information and Complaint Policies
The foliowing box highlights the City Code and City Budget policies that relate directly to the
Information and Complaint Division.
2000 Saint Pau! Ciry Council Research
° �7
6 Pe Audit of the City o f Saint Pa Cipzen Service Office
Objectives of the Citizen Service Program
AdministraNve Code Chapter 2. Office of the Mayor. Sec. 2.20. Objectives of Ci6zen Service
Program.
The following objectives aze hereby established for the Citizen Service Progam:
(1) To act as av advocate for citizens in responding to requests and complaints that pertain to City
services.
(2) To work closely with all City depamnents to constantly improve the City's response to requests
and complainu.
(3) To report regulazly to the mayor and the City council on the performance of City deparunents
in response to requests and complainu and the relative sarisfaction of the citizens with the
City's response.
(4) To work closely with City-wide information services to operate a fully computerized complaint
referrat and fo[low-up system.
(5) To pmvide public infotmation on City services, events, and who to contact for response to
requests and complaints.
2000 City Budget: Information and Comptaiut Divisiou Activiry Performance Plao
• Work closely with Information Services to develop a fully computerized compiaint refeaat and
follow-up system to be used Citywide. (i.e. postcards to complaints with complaims info,
survey, follow-up, etc.)
• Serve as an advocate for residential and corporate citizens in responding to requests and
complaints that pertain to City services.
� Work closely with all City offices/departments to consistent[y improve the City's response to
requests for service.
• Report regulazly to the Mayor and City Council on the performance of City departrnents/offices
in responding to requests for service and the retative satisfaction of citizens and businesses with
the City's responses.
• Work closely with Information Services to develop a fully computerized complaint referral and
follow-up system to be used Citywide.
• Provide public informarion to callers regarding City services and evenu.
• Build citizen-business loyaity by providing high quality customer service.
• Be proactive in gaining awareness regazding upcoming problems related to Ciry
depaztments/offices and make policy recommendations.
• Upon receiving a response Yo a complaint from a City office/depamnent, provide a callback to
citizen(s) within three working days.
• Make the Citizen Service phone number and www address readily available for citizens and
visitors.
• Administer employee progracu to enhance wmmunity involvement.
Findings
1) The Division compiles a five-day-late report for all unresolved complaints. This report is
distributed to the Mayor, City Council and department and office directors.
2) The Information and Complaint Division has not compiled customer satisfaction information
or distribute it to the Mayor and Council as stated in the 2000 Budget Objectives and in City
Code. They state they are unable to because the current computer system (EXL) is not able to
Z000 Saint Paul Ciry Council Research
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Perfom�ance Audit of the Ciry of Saint Paul's Cf4zen Service Office
retrieve reliabie data (see the following finding for further discussion). Ttiey aze also not
working closely with other departments to unprove the City's response, nor are they actively
build citizen-business loyalty by providing high quality customer service since they have no
gauge of their level of service.
3) The Information and Complaint Division is working with the Office of Technology and
Management Services to deploy the AMANDA system throughout the Division. This system
wi11 replace the currern EXI, system which is old and incapable of ineeting the Division's needs.
AMANDA is currently being used in LIEP and is expected to be used by Code Enforcement and
Fire Prevenrion as well. According to the Director, funding for the new system has been sought
for several years. This year funding was finally included in the CSO's 2000 budget.
4) The Division provides very limited call-backs to citizens. It is unclear if they are done within
three days. No data aze kept to corrobonte this objective.
5) T'he Division does not administer employee programs to enhance community involvement.
Rather they encourage certain employees to attend community meetings and put out broad calis
for volunteers to staff City events and activities, such as Habitat for Humanity.
Recommendations
Recommendation #1. The Information and Complaint Division should resume providing
customer satisfaction data to the Mayor, City Council and department and offzce directors, as
well as to other staff in t&e Citizen Service O�ce. Other computer systems could be used to
prepare the reports until the AMANDA system is fully operationaL 77xey must also set a high
standard for doing call-backs, such as a setting a goal of calling back 90 percent of adl
complainants within three days.
Recommendation #2. The Citizen Service Office should prepare an annual report for the Mayor
and City Council clearly showing each deparhnenYs response times to complaints and inquiries,
as well as customer satisfaction data. The data should be delineated by departmenz They
should create an objective to provide this information af least annually, if not more often.
Recommendation #3. The City Council should direct Council Research, the Citizen Service
Of�ce, and the Planning and Economic Development Department to conduct a Ciry-wide survey
to ascertain tke Ieve1 of citizen sarisfaction with Cdry services and citizen service needs.
Common Complaints
The Information and Complaint Division is responsible for taking complainu and responding to
inquiries about all City ordinances. We have two common areas of complaints: snow shoveling
and abandoned vehicles. These examples provide a brief ilh�stration of how the CSO processes
complaints and inquiries.
Z000 Salnt Pmd City Council Ruearch
°j �7
Performance Audit ofthe Gry of Saint Paul's Citizen Service Office
Snow and Ice Removal
Saint Paut Legislative Cade Chapter 113: Snow and Ice on Sidewalks
Se�. 113.02. Snow and ice removal from sidewalks.
The owner or occupant of any building or lot abutting a public sidewalk is responsible for and shall
remove any accumulation of snow and /or ice from said public sidewalk within tw�nty four (24)
hours after the sr�ow and !or ice has ceased W fatl, gather or acc�unulate.
Sec. 113.04 Notice.
Before the departmeni shall abate such nuisance, ii shall serve or caase to be served upon the owner
or occupant of the abutting property a written norice informing the property owner or occupant that
a complaint has been received by the City indicating the ice and / or snow has not been retnoved
from Yhe sidewalk wiYhin twenty fo�s hours {24)... . If upon inspection by the department the
sidewalk is found to be in violation of Sec[ion 113A2, the department may immediately schedu]e
abatement.. .
Finding
When asked how they implement Section 113.04 of the Saint Paul Legislative Code, we found
all snow and ice removal complaints are entered into the computer and a letter is generated and
sent to the offending pariy. Staff claim the letter is helpful in getting compliance. Code
Enforcement verifies the compIaint and issues an order to make correcrions. If the snow or ice is
not removed witrun two to three days, a summary abatement is conducted and the City chazges
the property owner for the cost of the removal.
Abandoned VehicIes
Saint Paul Leg. Code Chapter 163. Abandoned Velucles
Sec.163.04 Custody of abandoned vehicles.
The city hea&fi officer or enforcement officiais oftfie division offiousing and bui[ding code enfomement for
the city aze hereby auzhorized to remove or have cemoved any motor velucle left at any place within the city
which seasonably aopeacs to be in violation of Hvs chapter or lost, s[olea or unclaimed. The impoundiag and
takiag iaio custody of a motor velucle pucsuart to this c}�apter shalI be done with the assisiance of a Qo&ce
of&oev A police officer, heaiffi officer or enforcement official of ihe division of housing and buiiding code
enforcemeat for the city may euter upon pdvate propecty at all reasonabie hours for the purpose of
iospecting such vehicle and impoimding such velticie, and it sfiall be uqlawful for any peison to prevent a
policeman, health officer or enforeement official of the division of housing and building code enforcement
for the city from eatering oa pdvate property for the pmposes of carryiag out Lis duries hereunder or to
interfere with Irim in the lawful perfocmance of his d�es.
Finding
We found the CSO informs the Police Department if an abandoned vehicle is on public property,
and Code Enforcement if it is on private property. I-Iowever, staff fek it was better to direct ihe
complainant to calt Pazking Enforcement directly for faster service. Complaints made througii
the CSO and then passed on to the Police Department and then to Pazking Enforcement can take
2000 Saint Pau7 Ciry Council Resecvrh
PerFoxmance Audit of ihe Ciry of Saint Pwl's Citizen Service Office
DL-{p`1
9
longer to be resolved because of the Police Department's internal complaint process. If Parking
Enforcement is called direcUy, Parking Enforcement officers mark the car with chalk and have it
towed or tagged if it is not removed within 48 hours. It is appazent from this example that
different deparunents, and perhaps even different staff, handle complaints differentiy. It was
reported thaz some staff in other depar[ments take complainu without notifying the CSO, others
take the complaint and forwazd the information to the CSO, and finally others simply tell the
complainant to contact the CSO direcfly themselves. The City has no set procedure for handling
complaints beyond the CSO's own intemal policies. This convoluted system can only contribute
to a compiainants dissatisfaction and frustration with the City.
Recommendation #4. The CSO should work with other departments, such as the Police
Deparhnent, LIEP, Fire Prevention, and Public Works to create a plan or system to follow so
that complaints are addressed quickty and uniformly. Spec�c data should be compiled on when
a complaint is received arrd forwarded to the department, to whom it is forwarded, when a
"service " was rendered, and when a response u received. Information on complaint resolution
should be made part of the five-day Zate report.
2000 Saint Pau! Ciry Council Research
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1 � Per Audit of the Clty of Saint PauPs Ctizen Service Office
CITY CLERK/RECORDS DIVISlON
The City Clerk/Records Division is responsible for maintaining the City of Saint Paul's official
(govemment) recorded history. Three employees maintain and preserve all records of the City
including: minutes, resolutions, ordinances, official books, papers and notices of public hearings
as required by the Charter and other applicable law. The Division accepts petirions and
determines their sufficiency. It is also keeper of the City Seal which, by law, must be affixed to
certain documents. Because of its close physical proximity within the office to the Information
and Complaint Division, the Records Division interacts with the public by providing informarion
and assistance to walk-in and phone-in requests as well. The Division accepts summons, claims,
petitions and other legal documents on behalf of the City. The Assistant City Clerk works with
Ramsey County by overseeing the County contzact for City election services. The City Clerk
administers the oath of office to elected and appointed officials. Finally, the Division accepts the
paperwork and fees associated with appeals to the Legislative Hearing Officer, schedules the
hearings and sends the appeal notice to the appellants. The Division is govemed by State
legislation, City Ordinances and the Budget policies highlighted in the boxes throughout ttus
section.
Records Retention
Miunesota Statutes 138.17 Goveroment records; administration.
Subdivision 1. Destruction, preservatioo, reproduction of records; prima facie evideoce. (a) The
attomey generat, legislative auditor in the case of state zecozds, state auditor in the case of local iecords, and
d"uector of The Minnesora lvstorical society, hemina8er dizectoz shall constitute the records dispositioa
panel.lLe membeis of the panel shall Lave power by majority vote W direct the desRUCtion or sale for
salwage of gov�;mment cecords determined to be no longer of any value, or to direct the disposition by gift to
the I�Twnesota historical society or otherwise of govemmem records determined to be valvable for
preservat(on... .
Subd. 7. Records management program. A records m��a progam for the application of efficient
and economical managemeat methods to the cieation, utili7ation, maintenance, xetention, preservatioq and
disposal of official records shall be administered by ffie commissioner of adminisua4nn wifh assistance
&om the d'uector of the Iristorical society.... . It sball be the duty of the head of each state agency avd the
govemiag body of each oounty, mmicipatity, aad other subdivisioa of govemmeat to 000pera[a with ihe
commissioner i¢ conducting surveys and to establish and maintain an active, comimrng progam for the
economical and efficient managemeat of the cecoids of each agency, coimty, municipality, or other
subdivision of govemmeut. When iequested by the commissioner, public officials sY3231 assist ia the
piepazatiott of an inclusive inventory of records in their custody, w which shall be attached a schedule,
2Pp;6Vtu uy wc ncaci vi [¢c gUVemnlcviai iuui Cu nSca.Cj' �3P..^.b �.�+YL•C.i� n.fthg rrrn�c ?IId th0
commissioner, establishiug a time period for the reteution or disposal of each series of records. Whea the
schedvte is imanimously approved by the reoords disposition panel, the head of the governmeatal unit or
agency having custody of the records may dispose of the type of records listed in the schedule az a time and
in a mavner prescribed in the schedu[e for particular records wEucfi were creaked after tfie approval. A list of
records disposed of p�usuant to this subdivision shall be forwazded to the commissioner and the arcluvist by
the head of the govemmental mit or agency. The archivist shall maintain a list of all records desanyed
Z000 Saint Paul Ciry Covncil Resetvch
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Performance Audit ofthe City of Saint Pau]'s CiNxn Service Office
Records Retention, Cont�
11
Minnesota Statutes Chapter 13. Data Practices Act
13.03 Access to government data.
Subd. 2. Psocedures. (a) "S'he responsible authority in every state agency, political subdivisioq and
statewide system shall establish procedures, consistem with this chapter, to insure that requests for
govemment daza are received and complied with ia an appropriate and prompt manner... .
A responsible authority may desigvaze one or more designees.
Minnesota Rules 1205 Department of Administration - Data Practices
Minn. Rules 1205.1000 Appointment of the Respunsible Authority.
Pursuant to Minnesota Statutes, section 13.02, subdivision 16, the goveming body of each political
subdivision and the goveming body of each state agency whose activities are subject to the direction of a
governing body sLatl, by September 30, 1981, if it hu not done so, appoint a responsible authority. 'Ihis part
shall not affece the appointments of responsible authorifles made previous to the adoption of these rules. The
goveming body shali confer on the responsible authority ful] administrarive authority to cazry out the duties
assigned by the act and by ttds chapter. Goveming bodies may use the forms set forth in part 1205.2000 to
appointthe responsible authority.
1205.0200 Definitions.
Subp. 14. Responsible suthority in political subdivisions. In political subdivisions, the responsible
authority shall be as follows, unless otherwise provided by state Iaw
B. For cities, the city council shall appoint an individuai who is an employee of the city.
Saint Paul City Council Resolution 99-881
RESOLVED, pursuant to the requiremenu of Mirmesota Statutes Section 13.02, Subd 16, of the Minnesota
Crovemment Data Practices Act, and Minnesota Rules Section 1205.1000, Fred Owusv, City Clerk, is hereby
desi�ated as the Responsible Authority for the City of Saint Paul; and be it
FIJRTE�R RESOLVED, that the Responsibie Authocity is authocized to establish guidelines and procedutes
for the purpose of ineeting ali requirements of the Mirmesota Govemment Data Practices Act and the
Lelated, validty adopted rules.
Findings
Chapter 138.17 of Minnesota Statutes provides a plan for managing governmental records by
giving authority to cities to dispose of records with certain limitations. No municipal records
may be destroy or removed wiffiout authorization of the Records Disposition Panel, which is
essentially authorization from the Minnesota Historical Society. Cities may adopt the General
Records Retention Schedule and any revisions by filing a Not�cation ofAdoption of City
General Retention Schedule form with the State Archives DepaRment of the Pvlinnesota
His[orical Society. The Historical Society will sigri and retum the form as a signal the City may
dispose of govenunental records as indicated on the schedule.
The CSO maintains a copy of the City General Records Retention Schedule, but responsibility
for documents being disposed of deposited at the Historical Society falls to individual City
departments, as Minnesota Statutes allows the responsible authority to designate designees to
fialfill these responsibilities, and department heads aze the designees. Currently, no formal
2000 SaintPavlCiryCour+cilRuearch
a!-G �
1Z PerFonnance Audit offie City of Saint Paul's Citiun Service Office
process exists for City departments to inform the CSO thaz they are disposing of or sending
documents to the Historical SocieYy. Though it does not occur frequently, according to staff,
some departments inform the CSO when they are disposing of documents or sending them to the
Historicai Society. Also, ifthe CSO discovers a departrnent is "c[eaning house," a note is sent to
the director offering the assistance of the Assistant City Clerk to review the soon to be discarded
documents to assess their azchival value in complying with the Schedule. Under Resolution 99-
881, the City Clerk is authozized to establish guidelines to ensure the requiremeats of the
Govemment Data Practices Act aze met.
Recommendation
Recommendation #5. The CSO should establish specific guidelines requiring departments to
submit to the CSO, on a biannual basis, a Records Retention Schedule. They should also devise
guidelines to ensure departments noh; fy the City Clerk when documents are permanently removed
from Ciry fzles or disposed of, and these natifzcations should be maintained by the City Clerlc
Documents Maintained by the CSO
Saint Paol Administrative Code Chapter 4. Of6ce of the City Clerk
b) The city clerk shall keep all minutes, records, proceeding,s, official books, papers and documents charged
to 1vs care in such anangement and coadition u to make them easily accessible for convenie� use. He shall
be responsibte for the prescrvation and caze of such records and shall take necessary steps to carefiilly
protect and preserve them from deterioration, mutilation, loss or desiruction. Records or record books may
be repaired, renovated or rebound when necessary for peoper preservatioa Photogiaphic, photostatic or
mecrofi7med mcords shall be considered accessiWe for snch purposes. F�cept as oiharNise expressly
provided by taw, he shatl permit all such public records ia his custody to be inspected, e�mined, abstracted
or copied during norma! Misiaess ho7as subject to tds svpervision aad regalation. He shall, upon demand of
any petsoa, fianish certified copies thereof upon paymem in advance of reuonable fees ffierefor.
Saint Paul City C6arter Sec.17.02. Cnrrent 51es.
The city clerk shall keep a properly indexed current 51e of all city ordinaaces and resolutions, and this file
shall be available for public inspection duriag the cus[omary working hoi¢s observed by city employees.
Copies of ordinances, resolutions aod Charter amendmenis shall be distributed b or sold to the pubiic az
reasonable prices w be fixed by the co�mcil.
2000 Saint Paul Ciry Counci[ Ruearch
Perfo`mance Audit of the City of Saint Paut's CiUZen Se[vice Office
Documents Maintained by the CSO, Cont
e 1-L�'1
13
2000 City Budget� �ty Clerk Records Activity Performaoce Ptan
With additional fimding the Office of the City Clerk could more ciosely follow Chapter 4 of the Administrative
Code in `Yaking necessary steps to cuefvily protect and preserve° these fi-agile records. Furthermore, the current
micro-film reader is becoming ubsatete and requaes regulaz xepaics.
• Maintain and preserve the minares and records of the proceedings of the City Coimcil in accordance with
the Charter.
• Be the legal custodian of & maintain official copies of all ordinances and:esolutions of the City Cotimcil.
• Notices of City Coimcil meetings be served in accordance with state siatutes, CBarter provisions, city
ordinances and Coimcil niles.
• Cause ffie publicazion of all City Coimcil minutes, ordinances and notices of public heazing as required by
the Charter or other applicable law.
• Have custody of the seal of the city and affix it to such documents as may be required ad authorized
� piusuaat to law.
• Give information and direction to private citizens having busiaess with the city... .
• Keep all minutes, records officiat books, papers and documents in such azrangement and condition as to
make ffiem easily accessible for convenient use.
• Accept claims, summoas and complaints, petitions and other lega] documents on behalf of the City.
• Process and record vacations of pubiic right of ways.
� Claim and appeai forms are now availabte on ihe City Cletk web page.
� Index City Comcil proceedings and disffibute proceedings book
• Adminis[er appeals to Legislative Hearing Officer.
Findings
1) We found the Division maintains the documents for which it is responsible. Historical
documents are kept at the Minnesota Historical Society and more recent documents are housed in
the CSO's file room and on microfiche. The Office is in the process of buying new file cabinets
to upgrade the protection of City documents. LJltimately, the Office would like all documents to
be preserved on a document imaging system. It has been an ongoing goal of the CSO to obtain
funding for a document imaging system, and a system is on order.
2) Officiai City documents aze available for public viewing. Trnerested parties call or waik-in
when in search of City documents. If an individual is doing a lengrhy research project, they may
be given open unsupervised access to the documents during business hours.
3) According to staff, the binding of the Council proceedings books are two years behind
schedule. They aze currenfly published in bound form through 1997. T'he CSO must ind� the
proceedings before they can be sent out for binding. The Office is indexing the proceedings for
1999 and has completed inde�cing for 1998 but they have not been sent to the Legal Ledger for
binding because the $11,000 it cost to bind the books was allocated for other uses witrun the
Office. The Office plans to send the 1998 Council Proceedings to the Legal Ledger for binding
in 2001. The Legal Ledger is the only organization that bids on the binding contract.
4) According to staff, new or amended ordinances available on the City's Intemet site aze six to
seven weeks behind Counci] enachnent. This time is required to print, codify and have the CAO
review the e]ectronic version produced by the Legal Ledger before the Cterk's Office fonvazds it
to Technology and Management Services (TMS) personnel to post the web page. It was reported
that TMS personnel take one to two days to get the changes and additions made.
2000 Somt P¢ul Ciry Council Research
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14 Perfo�m�ce Audit ofihe Ciry of Saint Paul's Citizen Service 06cz
5) The Division provides appeal and claims information and fonns on their website.
Recommendations
Recommendation #6. The City CZerk/Records Division should prepare a plan to transition paper
documents to the new document imaging system.
Recommendation #7. The City CZerk/Records Division should prepare a spec�c plan to ensure
that Council Proceedings cne prepared annually mrd indexed in a timeZy fashion. Funds should
not be re-allocated for other uses if they m�e specified for binding.
Documents to the Public Library
Saiut Paul Administrative Code Chapter 87. Depository for pocuments
Sec. 87.01, Deposit required.
All muvicipai cocpomtions, departments, agencies and officials of tfie City of Saint Paut aze required to
submit a m�inimum of three (3) copies of each official published documern to the Saint Paul Public Library.
Sec. 87.02. Official documents defined.
Such official published dce�ents shouid iaciude ihe following.
(a) Any book, document, joumal, map, pamphiet or report issued for public distriburion. �
(b) Any book, document, joumal, map, pamphlec or officiai public report which is not issued for public
distribation bui contains aay lustoricai sigvificance or raFerence value.
(c) Suc6 official pubiished documenu, for e�mple, should include, but na be limited to, the following
(1) The annual compilatioa of the city ordinances and council proceedings.
(2) The aanual reports of tlte various depatmteats aad bnreavs.
(3) Ihe City Codes and amendmems.
(4) The City Chazter and amendmenTS.
Finding
CSO staff stated that City documents are not being submitted to the Saint Paul Public Library
and no one is responsible for ensuring t3us is done. We also inquired as to whether ttus
ordinance is reasonabie given today's technologies. Staff were not sure it was reasonable since
computers could generate elecuonic versions that do not require as much space.
Recommendation
Recommendprion #8. The Citizen Service Office should take responsibility for educating
departments on what documents need to be provided to the Public Library. Council Research,
the City Council, the Public Library and the Citizen Service Offzce should work together to
review the requirements of the ardinance to determine whether three paper copies need to be
submitter� or ifthe number ofpaper copies required coudd be reduced ifan electronic copy is
provided. Following this review, an ordinance change should be made zf necessary.
2000 Sairet Paul City Council Researck
Perfoxmance Audit of the CiTy of Saint PauPS Guzen Se�vice Office
Elections
oI-1�7
IS
Saint Paul AdministraSve Code Chapter 4. Office of t6e City Clerk
Sec. 4.04. Elections.
(a) Commissione� vf �egisiration The city clerk shail serve as the commissioner of regisuation for the city
and provide such printed forms, blanks and other supplies and equiQmen[ as are necessary and proper to
cazry out the regimation of quatified voters as prescribed by law. The office shail establish and keep,
p�usuant to siatute, a plan of registrarioq iacludiag an originat record of votecs, propedy indexed and
safeguarded, and a dupiicate registration file open to reasonable public inspection.
(b) Conduct of elections. The city clerk shail give public notice of the time and piace of the holding of alt
municipal elections, including the hours during which polls wiil be open, by posting in every election
distriM appropriate etection aotices containing a list of offices to be filled az such election. He sLall take ail
other cecessary steps to ensute that ffie conduM and procedure of all elections aze govemed in accordance
with applicable state laws and such supplementary ordinances as are adopted by the counciL
Saiot Paul City Charter Chapter 7. Elections
Sec. 7.04. Name on primary ballot.
Not later than six (6) weeks aor more than eight (8) weeks before the primary election, any person eligible
may, by filing an affidavit and paymeat of fifiy doliars ($50.00) to the city clerk, have Iris or her name
placed on the primary election ballot. Each person desiring to have his or her name placed on the primary
batlot foi councilmember shall state in the affidavit of candidacy the distria for w}ric6 he or sbe is a
candidate.
Sec. 7.10. Caovass of returns.
Within seven (7) days after the electioq the city couucil shatl canvass the retums and dectam the results of
the elecaon.
2000 G1ty Budget: City Clerk Records Activiry Pedormaece Plan
Oversee Ramsey Covnty contract for City election services, including evaluation of ffie level and quality of
service, and maintain duplicate records of elections.
Finding
The Office has a ten-year contract with Ramsey County that expires at the end of 2004 to provide
the elections process. According to staff, the CSO approves polling places, election judges and
conducts canvassing for primary and general elections. The Office also prepazes election-related
resolutions for council approval. Ramsey County is responsible for voter registration, absentee
ballots, candidate filings and the preparation and maintenance of voring machines. ARer an
election, Ramsey County submits the unofficial canvass report, which examines wtes for
authenticity, to the CSO which then submits the report to the City Council.
Z The County's duties u agreed to in ffie contraa between Saint Paul and Ramsey County for Eiectlon Office
Management aze outlined in Appendix C.
2000 Soini Pau1 City Councif Researth
° i - �7
i6 Pafocmance Audit of tfie Ciry of Saint Paul's Citizen Service Office
Initiative, Referendum and Recail
Saiut Paul City Charter Chapter 8. IDIITIATIVE, REFERENDUM, AND RECAI,L
Sec. 5.02.4.
Aay person whose eame appears on a peaaon may withdraw his or her name by a statecaent in writing filed
with ihe city clerk before the clerk advises the council as to the sufficiency of the petition. Any name
appearing on any petition wluch dces not rnmply with the foregoing requirements, except as to wazd or
legislative district and precinct desi�atioq shall be stricken, and no names shall be counted wluch have not
beea verified
Sec. &03. Determinatioo of suffcieocy.
Any petition seeking initiazive, referendum and recall hereunder shail be deemed received by the cowcil when
it is filed wiih the city clerk, for which filing there shall be no fee. Immediazely upon receipt of the petition
the city clerk sha11 e�mioe the petitioa as to iis s�ciendy and report ro the council within twenty (20)
calendaz days, except that in the case of a recali petitioa it sha(1 be thirty (30) calendaz days. Upon receiving
the report, the council shall detecmine by resolution the sufficiency of the petirion
Sec. &08. DisposiKon of insufficieot petitions.
If the counci2 determines that the petition is insufriciear or irregulaz, the ciry clerk shail de&ver a copy of the
petition to the pecson or persons therein named to receive it, together with a written statement of iu defects.
The persons circulating the petition shatl be given thirty (30) days in wluch to 51e additional signature papers
and m correct the petition in all other particulars. If at the end of Uiat period the council finds that the petition
is still insafficieat or erregulaz, the cify clerk shatl fite the peauon in flre clerk•s office artd notify ffie persons
previously notified of the defecis. The final finding of insufficiency or uregulazity shall not prejudice the
filing of a new petition for the same purpose noy in tho case of an initiazed or refeaed ordinance or resolution,
shaiI it preveat t6e council from referring the ordinance or resolu[ion to the voteis at the neaa regulaz or
special election at its optioa.
Finding
The CSO works with the CounTy to comply with the requirements for initiative, referendum and
recall. The oniy petitions found to be insufficient in recent yeazs by the Office were the baseball
stadium and billboazd petitions. Insufficiency is communicated to the person responsible for the
petition by a letter or phone catl &om the County.
Abandoned Property
Saint Paul Leg. Code CSapter i4. imp,wadmeat sa� L°'s�.osa' ¢fA3z=coaed Persoust Progeriy
�ec. i4.us. auandoned pnrsaan� p a—�.:�. --- - ----_.
It s6a[I be ilIegal to abandon pesonal property on property owaed by tfie city. Disposirion of this property is
in the public interesi and the method to be used is to empoand The property and dispose of ii accordiag to this
chapter.
Sec. 14.04. Pracess.
(a} Whenever the head of any department may deem it in t6e best Snterests oftfie city, he or she may order the
impounding of any abandoned personal property located on city property. The departmenk head or 1ils or her
designee shall take reasonable steps to atTempt to identify the owner of the pmperty and, where the owaer has
been identified, issue a writtrn notice to the owner that the city inteuds to impoimd ihe property. If no
response is received with twenty (20} days of such notice, or ao owaer can be identified, the depaztment head
or designee shall post a notice describing the pmperty in the office of ffie city clerk.. .
2000 Saint Paul Ciry Council Rese�ch
--- ol-to7
Perfom,ance Audit of the CiTy of Saint Paul's Citizen Service Office 17
Finding
Currently notices of abandoned personal property, along with other public announcemenu, aze
posted on the bulletin boazd across from the Citizen Service Office on the southwest corner ofthe
fust floor of the City Hall.
Oath of Office and Bonds for City Officials
Saiot Paul City Charter Chapter 17. GENERAL PROVIS[O1�S
Sec. 17.03. Oat6 of office.
Every elected or appoimed of£icial of ihe city shall, before enteriag upon the duties of his office, take and
subscribe an oath in subsrantialty the following form: "I do solemvly swear (or affirm) io support the
constitutions of the United States and of the State of Minnesota and to discharge faithfully the duties devoiving
upon me as (... tiUe of office ...) of t6e City of Saint Paui to the best of my judgnent and ability."
Sec. 17.05. O�cisl boods.
The mayor and such other officecs or emptoyees of the city as may be required by administrative ordinance
shall each, before entering upon the duties of lus or Her respective office or employmevt, give a bond to the city
as securiTy for the faiUtful perfoxmance of his or her official duties and the safekeeping of public funds. The
bonds shall be in such form and amount as may be fixed by ffie council and may be either individuai or blanket
bonds at the discretion of the council. They shall be appraved by the council, approved as to form by the city
attomey, and filed with the city clerk. The pcemiumt on such bonds shal( be paid by the city.
2000 City Budget: Ctity C7erk Records Activity Performance Plao
Administer oath of office to ali elected and appointed officiais.
Findings
I) Staff reported the Director tries to stay awaze of newly appointed and elected City officials
and depattments inform the CSO of relevant staff changes. However, there aze instances when
the City Clerk was not notified and therefore some appointed City officials have not taken the
oath in a tnnely manner.
2) According to staff, they have never requested nor received a bond &om any City Official, nor
were they awaze of Charter Section 17.05. However, staff &om the Risk Management Division
stated that all City staff, not just elected officials, are currently covered under a fidelity bond.
This fidelity bond is required by the State for public treasurers, and the City has chosen to cover
all staff under it as the additional cost is minimal.
Recommendarion
Recommendarion #9. The City Clerk shauld devise a moreformal system for departments and
other relevant City o, f,�icials to notify rhe Clerk of newly elected and appointed o, f,�cials who need
to receive the oath of office. The Clerk's budget objeciive should be mod�ed to indicate it the
oath of of,�'zce will be administered within a speci, fied amount of time, such as thiriy days.
2000 Saint Pau! Ciry Counci! Research
v�-�
�8
Peritions Regardiag Pablic Nuisances
Perfo�mance Audit of the C'rty of Saint Paul's Citizeu Setvice Office
Saint Paul Admin. Code Chapter 91. Procedure for Public Hearings Regarding Public Nuisauces
Sec. 91.03. Peti6on procedure.
(a) Upon the filiag of a periaon in writing sigped by sixty (60) percen[ of the owners and tenan[s of atl private
residences, dwellings and apartrnent houses located in an area one block in any dirutioa from ihe alleged
public nuisance, and upon verification of those signatures by the office of the city clerk, the council sLall
schedule a public hearing conceming the allegations set forth. All petirions, including those containing an
iasufficient number of signann�es, shait be refeaed to the council by the city clerk With respeM to petitions
coataiaiag tess thaa the si�y (60) pe�ent required signa[ures, the council may, in iis discretion, accept the
petition and schedule a public hearing or rennn the petirioa io The petiiioners for add'erional signanues.
Finding
We asked staff about the process for placing a public nuisance hearing on the Council agenda.
T'he Assistant City Clerk sends a resolution to the Cotmcil staring the number of legirimate
signatures on the petition for a hearing. The Council then decides whether to schedule a public
hearing if it is signed by less than the required 60 percent of homeowners and tenants within a
one block radios of the atleged public nuisance. The Office reports it has a good working
reIationsfiip with Councit staff and has no problem scheduling public hearings. It was also
reported the organizer of the petition is notified as to when the public hearing wiIl be held.
Trade Secret Information
Saini Paut Admiuistrative Code Chapter 94. Protecaou of Trede Secret Intormadon
Sec. 94.01. De5n;6ons.
Unless specifically deSned in tivs section, ffie terms contained in this cLapter shall be given the definitions
as set forth in Minnesota Statutes, Section 13.02.
Desigrrees: Individuals desigvated by the mayor W work on, process, examine or sNdy the economic
developmeat or regulatory matter in which tnde secret informatioa may be filed
Responsible mrthority: 7Le city clerk, who shall be respnnsible for the eaforcemeni of Uee provisioas of this
chapter.
Trade secret iaformation: Govemment data, including a formula, pattem, compilatioa, progam, device,
method, tec[mique or process that:
(1) Was suQptied by the aflecbed iadividual, person or organiaarion;
(2) Is the subject of efforts by the individual or organi�ation wat are reasonaSle w We cix::r.^sizees to
maintain its seccecY; and
(3) Derives independent ecoaomic vaiue, ac[uai or poceut�ny �W aa. �:,.� �r.�a'.; !��w�?o,-andnot_ _
6eing readily ascertainable by proper means by, other individuals, pexsons or oxganirerions who can oMain
ecorromic value from its diselosure or use.
Sec. 94.02. C7assi5cation of data.
All doc�ents, data, sNdies and offier iaformazion supplied to the city wluch the penon or 5rm regazds as
"�ade secret" ieformazion within the definition in Section 94.01 should be stamped by the person or fixm
see}dng pmoaetion "Trade Seccet Information—Not fnr Public Disclosure." The maztcing must appeaz on each
page sought to be protected.. .
2000 Saint Paul City Council Ruemch
D l - (c'T
Perfortnance Audit of the Ciry of Saint Paul's Cilizen Se�vice Office
Trade Secret Information, Cont.
19
Sec. 9a.03. Notice.
All designees who have access to trade secret informarion will be given a copy of the ordinance from which
flus chapter derives by the mspons3ble airthority.
Sec. 94.04. Access.
Access to "trade secret" infoimation s6a11 be limited to designees. Access shall be for the purpose of
reviewing a economic development project, permit application or other filing, or for other administrative work
pertaining to a economic developmeat project or regulazory matter.l'he hade secret information may be made
available to a representarive of a coasuitaat hired by the city and desig�ated by the responsible authority as a
desigtee, but only if the consulianYs repxesentative has signed a nondiscloswe agreemem and a copy of the
sigped ageement is provided to the person or fixm who filed the document prior to the consultanYs access to
trade secret iaforaiation. If the consultanYs reptesentazive Las signed the nondisclosure agreement, the city
will not be heid responsible for the actions of such consultant and/or its representative witb regazd to the
aondisclosure agreement
Sec. 94.05. Sturage.
tlll "trade secret" informafioa filed in accordance with Section 94.02, and copies thereof, shalt be stored when
not in actual use in locked file cabinets under the exclusive coutrol of the designee of the city. A control sheet
identifying the designees who are authorized to access the infoTmation will be attached.
Finding
Staff admit the Office has not been adhering to its responsibilities in relation to trade secret data.
Senior leaders do consider this an important issue and cited the Peanuts on Parade eachibits as an
example given that the memorabilia and the format were closely controlled by the Schulu family
and was protected for commercial reasons. Staff stated the CSO will be working with the City
Attorney's Office to enhance the role the Office plays with respect to trade secret storage.
Recommendation
Recommendation #10. The Citizen Service ()ff:ce should immediately develop a strategy to
inform a11 City departments of the requirements and process for trade secret storage.
Z000 Saint Paul C�y Counci! Ruearch
oi -6 �
ZO Perfo*mance Audi ofthe City of Saint P Citizen Service Office
Public Information Meerings
Saiot Paul Administrative Code Appendices Chapter A- 3. All Public Meetiogs - Notice Requirements
WF[EREAS, The councii deems it necessary and in the public interest thu advance notice be forwarded w
elected officials prior to ihe holding of public informatioaat meetings by sny departrnent bureau, agency or
committee of the City of Saint Paul, now, therefore, be it
RESOLVED, By the council of the City of Saim Paul:
1. That any city personnel a**anTng or causing to be held any pubiic informazion mcering by or on behaif of
aay city depaztmeat, bureau, ageacy, board, commission or advisory committee shall provide a minim�un of
five (5) days advance written notice of such meeting io all membecs of the city council, the mayor, the city
clerk and the city atxorney. Five-day notice may be waived in the event of an emergency. The city clerk shatl
first be notified if any such public infocmational meeting is to be held in the council chambers located within
the City Hall and Court House.
2. For purposes of such notice, pvblic informationat meetings shatl mean any meeting for wtich members of
the general pubiic receive notice or invitation to appeaz for the p�npose of presentation, testimony,
consukation or otherwise.
3. Such notice shatl contain tfie date, time and place ofthe meeting to be fie(d and a brief statemeM oftfie
svbject matter to be discussed.
4. The city clerk is hereby d'uected to foxward copies of ttis resolution to the mayor, all departrnent heads, the
chairmen of every boazd, commission or advisory committee to the city.
Finding
The Planning and Economic Development Department maintains the Eazly Notification List, a
list containing everyone and every organization that is to receive notification of public meetings.
Departments are directed to contact PED for tfie labels when ihey need to send notice of a pubiic
meeting. PED aiso maintains a Neighborhood Nofifiption List which contains contact names
and addresses for a11 of the dislrict councils. The CSO receives notices from agencies and
commissions if tfie meeting is to be held in City Hati, compiles the meeting list, and places
notices on the pubiic bulletin board, the City's web page and in the Saint Paul Legal Ledger.
Camoaign Contributions
Saint Paul Legislative Code Chapter Z1S. �:ampaigu Courri:,u.:a�s
Sec. 28.02. Adm:nistrarion.
(a) Ciry clerk to administer. The city clerk sfiall be in ckiarge of administering and cazrying out the vazious provisions
ofthis chapter.
@) Cirycler.�' powers mrd duties. 1Le ciry clerk shall have Uie following duties a�ni poweis:
(1) Pmscribe, adopt and disaibute ffie foim for cegis4-ation foims, stazeme�[s and repom required w be
filed wLich shall, whenever possible, be ideMical to or consistent with state forms.
(2) Receive and accept for filing m the ciry clerks office the xegistration forms, stateme�vs and �eports
rzQuimd by ttvs chaPter-
(3) Make the sptemems and reports filed with the city clerk available for public iaspection and copying. A
reasonable ck�arge for the cost of cop}�ng may be chazged.
(4) Preserve all stazemems and reports for a period of four (4) yeazs from rhe daze of Sling, or, in the event
ihaz ffie committee represenu a candidate or party wlilch permanrn8y fecminates activity within two (2)
yeazs, Uun said records and accounts shall be kept for two (2) yeazs.
(5) Repor[ Sndings of noncompliance to the elecfions board.
2000 Saira Paul City CounciT Resemch
PerFomiance Audit of ihe Ciry of Saint Paul's Citizen Service O�ce
Finding
21
It was reported that campaign contribution forms aze huned over to the County, though the CSO
retains a copy for five years after an individual leaves office. This is in keeping with State
reqwremenu for document storage.
Condominium Cooversion Notices
Saint Paul I,eg. Code CL. 48. Condominium and Conversion Condominium Notice Filing Requirements
Sec. 48.04. Notice of condominium creation or conversion.
(a) A deciarant of a conversion condominium shall �ve the city aotice of the conversion or intent to convert a
building to a condominium no later than one hnadred twenty (120) days before the declarant requires any tenant or
subtenant ia possession in such buiiding to vacate.
(b) A"notice of condominium conversion" in the form required by Minnesota Statutes, Secrion S ISA.41 ] 0(a),
together with a"supplemental notice of condominium conversion" in the form provided for in paregraph (c) of this
section, filed in the office of the city cierk shal] covstitute the notice required by pazagraph (a).
Sec. 48.05. Certificarioa uf compliauce. �
Upon the filing of the notice, supplemental norice of condominium convexsioa or stazement in lieu thereof as
required in section 48.04, the city clerk shall provide the declarant with a signed, written statemeot certifying
compliance with the filing requiremeats of this chapter. The clerk shaU vansmit copies of each certificate given
and each notice, supplement notice and statement filed to the housing infocmation office, the division of planning
and division of housing of the departmeat of planning aud economic deveiopment, and the division of housing and
building code enforcement of the department of community services of the city.
Finding
Staff reported the condominium conversion form is being filed in the CSO on a regulaz basis.
The Office also provides information by copying the relevant sections of the code and giving it to
interested parties. According to staff, supplemental notice of condominium conversion is sent to
ihose departments identified in the Code, though technically those deQartments do not exist as
outlined in the ordinance.
Recommendation
Recommendation #11. The Ciry Council should update the language in Legislative Code Chapter
48.05 to reflect the current City depcmtments.
2000 Saint Pou] Ciry Council Research
oi-� 7
zz
Pecformance Audit of the Crty of Samt Pwi's Cirizen Service Office
MARKETING AND PROMOTIONS DIVISION
The Marketing and Promotions Division is invoived in promoting City events to residents and
visitors. They also work with other organizations such as the Capital City Parinership to mazket
To businesses considering locating in Saint Paul, and with the Saint Paul Convention and Visito�s
Bureau to market evenu to visiYOrs. In addition, they have the task of promoring Saint Paul as a
place to produce films. While many of the results of their work are visible, efforts such as
Peanuts on Parade take an enormous amount of staff time, sometimes more than anticipated
because some programs have achieved an overwhelming, unanticipated level of success.
Marketing and Promotions Policies
The Mazketing and Promotions Division has very few policies which pertain to its functions.
The onty policies we discovered were those found in the 2000 Budget, listed in the box below
and our findings and recocamendations follow. It is problemaric that there are no references in
City Code to the responsibilities of this Divisioa They are a pazt of the administrative branch of
the City's govemmenT and therefore must have enabling legislation outlining their
tesponsibilities_
2000 Proposed Budget: CSO Strategic Plans related to Marketiog aud Promotions
Mazketfng and Promotion of City evenu both downtown and in the neighbofioods.
2000 (.tity Budget: Marketing and Promodons Activity Performance Plau
• Continue to work collaborarively with the City Councit and neighborhood assceiations for
coatinued gowth of their respective events and mazketing/promotional goals.
• Coaiiaue to improve web aciivity with departments and neighborfiood organi7ations.
• Implement payment systems and expand City deparlmenis' use of forms and processing
software.
• Continue semi-moathly publication "City Update° but decrease printed quantity by whatever percentage
ofCity employees t5a[ have Inhanet Access. Tazget distribution to City employees without City Intanet
Access.
• The "Residem's Guide" will be published annually (not semi-anauatly), all cost savings will be directed
towazd a larger production nm aed broader dis�ibution.
• Keep film liaison staff and associa[ed budget in Mazketing and Promorions Division.
- n'o:e 3a co'.a°;.,^:a��� -:s<_ •�e Y��*a Fi!� 3oa*d *o secrue nroducaon conVacts in the Saint Paul
Market.
Findings
1) The Marketing and Promotions Division has been working with neighborhoods to assist them
in promoting their events. In the past, the City has simply provided monetary assistance to
neighborhoods, but they have recently begun to work more closely with the neighborhoods to
provide markering services and help the neighborhoods mazket evenu more successfully.
2) The webmasters aze part of Mazketing and Promofions, and are working with various
departments to improve their websites. They are aiso helping departments expand their services
to be able to accepi payments on-line and conduct other transactions over the Intemet.
2000 Saini Paul City Council Research
Perfoimance Audit of the City of Saint Pau]'s Cidzen Service OfEce
3) The CSO is now publishing the "City Update" on the City's Intranet site.
ot -�'7
23
4) The CSO is no longer producing hard copies of the "Resident's Guide," as all of the
information is available on the City's website. This is contrary to their objective to produce a
larger number of guides once a year, rather than fewer twice a year. They state they are no longe�
producing hard copies because the information is available on the Intemet T'hey have also stated
that numemus copies were left over &om the previous prinring when the Guide was dish�ibuted to
libraries, convenience stores, and other such locations.
5) The film liaison staffwere transferred from the Planning and Economic Development to the
Citizen Service Office in 1999. There is no talk, at this time, of moving them elsewhere. This
does not seem appropriate as a budget objective.
6) Mazkering and Promotions staff aze active in seeking film production contracts in the Saint
Paul market
7) As mentioned in the introduction to this section, there is no specific language in the City Code
establishing the responsibilities of the Marketing and Promotions Division. This is a glaring
oversight.
Recommendations
Recommendation #12 . The Marketing and Promotions Division shoudd resume production of
hard copies of the Resident's Guide and ensure that all residents have access to the informarion.
Recommendation #13. The Administration should prepare, for City Council consideration, an
amendment to the Administrative Code outlining the duties cmd powers of the Marketing and
Fromotions Division.
2000 Saint Paul Ciry Council Research
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24
Perfo�mance Audit ofthe City of Saint Paul's Citizeo Service Office
CODE ENFORCEMENT DIVISION
The Code Enforcement Programs Division (Code Enforcement) of the Citizen Service Office is
responsible for ensuring that residents and property owners of Saint Paul observe the property
maintenaace laws of the Ciry. Code Enforcement is responsible for investigating interior and
earterior code violations aT single-family and duplex properties in Saint Paul, an@ exterior
violations on all other properties in the City. The chapters of the City Code that Code
Enfarcement is responsible for enforoing aze listed in Appendix A.
Code Enforcement has been a division oftfie Cirizen Service Office for about two years. in the
past, Code Enforcement was a division of the City's Public Heaith Division. When the City and
County Health departments merged in 1997, Housing Code Enforcement was administratively
moved to the Depaztment of Fire and Safety Services, though they were never actually physically
relocated to the Fire Department They remained within the Fire DepartmenYs adminisu�arion for
about a year. In 1999, they were moved, both physically and administratively, to the Citizen
Service Office. Senior leaders stated one of the reasons for this decision was over half the
complaints received by the Information and Complaint Division are related to pmperty code
violations, and therefore it made sense to have the two divisions under the same department
Lieutenant Warren Bostrom was also brought in from the Police Deparpnent to oversee Code
EnforcemenYs technoIogy upgrade activities_ About a year later, Lt Bostrom retired, and L�
Mike Morehead was brought in to manage Code Enforcement. Inspectors are cunrentiy housed
both in City Ha]i and at the Police DepartmenYs Eastem Patrol District Offices. The ciurent
organizational strucKiue of Code Enforcement is illustrated in the cl�art on page 26.
The process for checldng, recording and correcting code violations varies based on the situation,
but some common elements eacist. When a compiaint is received by Information and Complaint
staff, it is logged into the EXL, system, printed by Code Enforcement support staff and given to
the appropriate inspector. Code Enforcement support staff play a vital mle in maintaining
records for the Division The inspectors do not do their own data entry, and support stafF are
required to work with EXL., an azcane, inefficient computer system, also used by Information and
Complaint Division staff. They a[so retrieve hard copy files for the inspectors and are generally
responsible for ensuring that operations run srnoothty.
A^ i��*.ar's day oR� starts with a visit to the office to review complaints received and
prepare for ihe property visits scheduled for the day. The inspectors prioritize complaints based
Vu i4c 3cvcii y vi u W2S�'CCC1VEd. HC OT SIlE
may make phone catts to verify appointraents and may add more property visifs based on new
complaints received. The inspectors will also do the papenvork from previous visits anc3 tum it
in to supervisors and support staff for processing.
Upon visiting a property, ihe inspector will determine whether to issue a verbat ordet, a written
correction notice, a citation, a summary abatement order, substantial abatement order, or a
3 The Fire Prevention Division of Fire and Safety Services is primazily responsibte for interior code violazions of
residential properties witfi ihree or more uviu and aIl commercial pmperties.
4 The City is divided imo census tracu, and inspectocs aze assie,ped to specific �acts.
2000 Saint Pau[ City Council Research
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Perfocmance Audit of the City of SaiEit Paul's Citizen Service �ce
zs
vehicle abatement order. The method, determined by the inspector, is based on the past history
of propeRy code violations at the property, whether the property owner seems responsive and
willing to correct the violation, and the severity of the violation (whether it is a life-safety
concem). With a sumrriary abatement, if the property owner fails to eliminate the nuisance
condition, a work order is issued. The inspectors sometimes take pictures and videotape the
situation, both for use as evidence and to show the clean-up crew the problem and what needs to
be done. If the clean-up work is done by the City or by one of its contractors, the fee for the
work is billed to the property owner. If they fail to pay the fee, it is assessed to the property
owner's ta�ces.
If it is determined the work required to restore a property to meet the minimum property
maintenance code requirements equais or exceeds $3,000, the property may receive a substantial
abatement. If the owner fails to correct the problems for which the abatement was issued, the
City Council is notified that substantial abatement is necessary and appropriate, and a hearing
before the Council is scheduled. After the hearing, the Counci] will adopt a resolution describing
what abatement action, if any, the Council deems appropriate. If the resolution calls for
abatement action, the Council may either order the city to take the abatement action or set a time
within which the nuisance must be abated by the owner and provide that if corrective action is
not taken within the specified time, the City will abate the nuisance. Upon conclusion of the
hearing, the council shall, by resolution, provide for the collection of those costs in the same
manner as a special assessment. If it is possible the building will have to be demolished, the
process also involves some additional notification requirements, and the Vacant Buildings Unit
may assume responsibility for monitoring the property.
A property owner or tenant can appeal an inspector's decision by filing an appeal with the City
Clerk, who then sends it to the City's Legislative Hearing Officer (LHO). The appellant then
appears before the LHO, who makes a decision and fonvazds it to the City Council. The
appellant, if dissatisfied by the decision of the LHO, may appeal to the City Council. If
dissatisfied with the Council's decision, he or she may file for review by the District Court. If
the property owner or resident refuses to comply with the orders of the enforcement officer, the
City may prosecute them criminally. A housing court has been established especially to hear
violations of the housing codes. Code Enforcement works closely with the City Attorney's
Office to build the case to prosecute the offending property owner or tenant.
S A sununary abatemeut is generalty issued for gazbage and tall grass and weeds. A substantial abatement is issued
when the value of the work required exceeds $3,000. A vehicle abatement is an order for an vehicle owner to
remove theic inappwpriately pazked vehicle.
2000 Saint PaulCity Courtcil Research
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26
Pedormance Audit of [Ae Ciry of $ain[ Paul's Ci[izen Service Office
Code Enforcement Organizational Chart
Electorate
City Council
_ � ��.. .
...................
� Cade E�orcement �
P�^�.
Managar'
FreW Scvviees
Suppo�t
6ayton's Blulf
Initlative"
ReMal
Registration
v�
Naternent
Fidd Services,
Supervisorof
Inspee(iors
Mayor
Clerical Suppat
Unit,
0/Fce Manager
ComplaiM,
Investigafive 8
Patrol Unit (East
and West Teamsj
PP2000
Yaczct Build[�gs
Unit
Adminis6afive
Support, Budgd,
6lanagernerrt
AssistaM
Tnrth in Sale d
Housing
� Code Enforcement staff aze assigned to this azea to support the Graffiti Abatement program in Public W orks.
x' The Dayton's Bluff Initiative was scheduled to run through the end of December, 2000.
*•' The Manager is a loaned official from the Police Depaztmrnt, and is not a permanent position witliln the CSO.
1Lerefore, if the posidon is returaed to the Police Department, the other positions would report direc[ly to the CSO
D'uector.
1000 Saint Paul Ciry Council Kesearch
Pe[formance Audit of the Ciry of Saint Paul's Citizen Se�vice p�ce 27 O f— � `
Overlapping Interests of Code Enforcement and Other
Departments
The work of Code Enforcement relazes closely to the work of other departmenu throuahout the
City. For instance, Code Enforcement may receive calls regazding properties about which the
Police Department has also received complaints. If the calls are about a suspected drug house,
the two departments will coordinaze efforts through the Police Department's FORCE unitb, which
coordinates the Ciry's efforts to reduce street-level drug-related crime. Two Code Enforcement
inspectois aze on call for the FORCE unit at all times, and check in with them daily to review
cases and determine whether they need to accompany officers to execute wazrants.
Code Enforcement also works with the Office of License, Inspections and Environmental
Protection (LIEP). The two offices coordinate efforts when a property that has been cited for
code violations applies for building permits, or when a registered vacant buildings requires
permits to restore the property to the City's minimum property maintenance standards. The two
offices have a conflict over building pe�mits that remain open for long periods of time. Code
Enforcement views them as problematic, feels they create blight, and states there aze numemus
cases of this in the City, while LIEP suggests that there aze relatively few of these long-term
ogen permits and they aze not that problematic.
The Fire Prevention Division of Fire and Safety Services overlaps some responsibilities with
Code Enforcement, particulazly related to vacant buildings. Fire Prevention staff check vacant
buiidings every 90 days when a Certificate of Occupancy is revoked, and the Vacant Buildings
Unit monitors all vacant buildings every 30 days, Vacant buildings pose a substantial risk for
fires, and the Fire Prevention Division is vigilant about monitoring these buildings, as is the
Code Enforcement Division.
Code Enforcement and the Pazks and Recreation Division work together thmugh the abatement
process. Pazks and Recreation receives work orders from Code Enforcement for tall grass and
weeds and garbage violations, and Parks and Recreation performs the abatement.
Finally, Code Enforcement also interacts with the community through block clubs and district
councils. The Weed and Seed progrun, a federally funded program that provides money directly
to neighborhoods for ciean-up and other neighborhood improvement activities, allows them to
work close]y with selected communities. The community will contract with Code Enforcement
for increased services such as targeting basic code violations. Code Enforcement is also involved
with communities through other special programs, such as the Dayton's Bluff Initiative, (a short-
term progam in the Dayton's Bluff neighborhood that encourages residents to monitor the
property maintenance standards of the azea) and neighborhood surveys (code enforcement
sweeps), which are discussed on pages 444b.
Code Enforcement Policies
We found Code Enforcement in compliance with most relevant policies, but we will point out a
few instances in which they either need to change or solidify their practices, or where it seems a
6 Focusing Our Resources on Community Empowerment
2000 SaintPaul CiryCouxci7Research
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PerFormance A�dit of the Ciri of Saint Paul's Citizen Service Office
change in the Code would be the most logical solution. In most cases, we have listed only the
sections of the ordinance or policy with which we found compliarice problerres.�
2000 Proposed BudgeY Program Objectives
The City's annual budget is an official City document that contains not only the spending and
revenue projections of all City departments and offices, but also their ongoing and project
objectives. Much of the information contained in the 2000 budget activities for Code
Enforcement is simply a description of the services they provide, with a few goal-oriented
objectives included A short discussion of the objectives and whether they are currenUy being
met follows this box. Many of the priorities and objectives will be discussed in other sections of
this report. Here we will highlight only those not discussed in other subsequent sections.
Code Enforcement Objectives
2000 �ty Budget: Ac[ivity Pertormance Plan for Property Code Enforeement
This progrnm enforces minimum hoosing and health code on all interior one- and two-family homes and on all
exterior properties. The p�upose of this program is to protect ffie public health and safety and maintain and
improve ihe housing in Saint Paui in order to make ffie City a safe place to live. .
The progcem priorities aze to:
1. Investigate citizen complainu and respond to calls for service.
2. Case manage chmnic probtem properties.
3. Ptovide support to police officeis, KC.H.S., RC.H.D. (Ramsey County Human Services, Ramsey Coimty
Healih Department).
4. Conduct proactive inspection patroLs.
1'hese goals are accomplished by.
i. Uniform, consistent enforcement of ifie Legisiative Code, State Statutes and federal regulations.
2. Working in collaborstioa with police to sotve neighborhood problems.
3. Working with diuriM coimcils, ore ni�ed block clubs, problem property committees, landlord and ienant
advocacy goups and individuals to eliminate iaban blight
4. Working with child and aduk protection to protec[ vulneiabte children and adults from hazm.
5. Pazticipating in problem pioperty resolution meetings.
2000 City Betlget: property Code Enforce�enh Objectives
i. Identify and target those properties wSdch generate repeat complaints, and xfiich comprise comtinual
nuisances and blight in tfie residentiai neigflborhoods. E,;w.;,t �as°, �.y o aud oaea�a[s
tLrough use of all existing enforcement options, including enforceme¢t of excessive use of service
2. Redvice the number of comptaint calls ta the City by proactive surveiltance patrols.
3. Conduct scheduled s�m�eys of neighborhoods ia ihe City where coadidons wanant closer monitoring by
enforcement officeis.
Findings
1) Code Enforcement has developed a program called PP2000 to handle some chronic problem
properties. This program will be discussed in more detail later in this section.
� The list of alt the codes relevant to Code Enforcemecit are listed in Appendix A
2000 Saint Paul City Council Research
PerFotmance Audit of the Ciry of Saint Pwl's Civzen $ervice Office 29 �`—� �
2) Code Enforcement works with the Potice Department through its support of the FORCE unit,
as mentioned earlier in the introduction to this section.
3} Code Enforcement works closely with the Ramsey Courny Human Services Department when
they discover situations where children and vulnerable adults may be at risk. In some of the ride-
alongs done by Council Research, we witnessed the open dialog inspectois have with child
protection workers, and were impressed with the care the inspectors we visited with took in these
very difficult situations.
4) Code Enforcement is not meeting the objective stating they will reduce the number of
complaint calls to the City by proactive surveillance patrols. Code Enforcement is currently
unable to gather any meaningful data on complaints. Therefore, it is difficult to lmow if they are
meeting the objective to reduce the number of calls. They also have not been able to do routine
proactive surveillance patrois due to a lack of funding and limited staff. Inspectors may look for
non-reported violations when they aze checking the reported violations, but they do not have
specific time set aside to patrol their areas. Sweeps have, in recent years, been done at the
request of Councilmembers or neighborhoods, but beyond those Code Enforcement finds them
difficult to conduct. Code Enforcement recently determined they have some unexpected
financial resowces because of some open stat�'positions. As a result, they have asked
Councilmembers to determine whether they would like sweeps conducted in their respective
wazds.
Recommendation
See Recommendations 53-56 in the Informatfon and Analysis Chapter, on pages 68-69, which
address data collection and analysis.
2000 S¢in[ Paul Ciry Couttcil Ruearch
Ol —b 7
30
Per£ormance Audit ofthe City of Saint Paul's Citizen Service Office
Minimum Property Maintenance Standards and Egcessive Consumption Fees
I.eg. Code Chapter 3d: Mivimum Property
StruMUres
Sec. 34.25. Conflict wit6 other ordivauces.
Ia any case where a provision of ttis chapier is found to be in conflict with a provision of avy mning,
building, fue, safety or health ordinance, chapter or code of ttds city, the provision which establishes the
lugher standazd for the promotion and protection of the health and safety of the perople sha(1 prevail.
See. 34.08.5 Ezcessive Consumpaon of esterior inspectiou services, fee and liabiliry.
(a) The city shall be entitled to collect its costs of enforcement from a property owner wLo consumes
excessive ea2erior inspection services. An excessive consumprion of e#erior inspection services occurs at
each element of an exterior inspection cycIe beginniag after:
(1) Written notice of a violation is served imder seclion 34.OS.3 following an iniriai inspection; and
(2) Three (3) additional exterior inspection cycles are performed at the same locarion witivn a
consecutive twelve-month period after the iniriai inspection; and
(3) Diuing each of the three (3) additional e#erior inspection cycles under subpazagcaph (2), the
enforcement officer 6nds violations of section 34.08.3 w6icfi aze eiiher new vidations or violazions
based upoa failure to conect previous viola�ons.
(b) The fee for ihe fourth iaspection cycle shall be two h�mdred dollars ($200.00). The fee for each inspection
cycle thereafter shall be fiRy dollacs ($50.00).
(c) Owners who fiave received a aotice of waming shall be joim[y and severalty 1ia61e for the erzcessive
consumpROn of eaterior inspectioa services fee.
(d) The amouat of the eaccessive consumption of e�aerior inspection services fee shall be a debt owed to the
city by the responsible person or pecsons.
(e) Action under this sectioa does not preclude any ot6er civil or criminal eaforcement pcceedure.
(fl A aew owner wlw has duly recorded ihe iastrument of conveyance for the subject pmperty avith the
Ramsey County Depaztment of Records and Reveaue witl�in the time provided in Minn. Stat. §§ 507.235 shall
not be liable for any excessive consumption fees azising from inspection services provided to the previous
owaer of the subject pxoperty.
Sec. 34.OS3. Initiat eaterior inspecrion by enforcement officer.
When an enfomement officer conducts an initial inspection of an eueiior property area and determines that
violations of section 34.08 exist, the enforoement officer shall, in addition to any other action the enforcement
officer may imdertaka, serve written notice of ffie violaAion in confrnmance widt the requiremeats set forth in
section 34.21 of dus chapter.
The initial norice must contain a notice of wazning infoiming the owner tLat subsequent e#erior property area
inspections at that same locarion wiUdn the ne� consecutive twelve (12) months may be deemed an e�ccessive
consumption of e#erior inspection services and that the owner may be liable for an e�erior inspection
services fee.
-- ��gS -------------
1) When asked how they handte situations where Chapter 34 confIicts with other relevant
sections of the code, we received varying answets. Some staff stated they use the most stringent
code, othets stated they use whatever reqairements make the most sense given the situation.
Staff stated that perhaps the most problematic of these situations retates to property code
violations ia historic districts. The inspectors may order repairs to shuctures govemed by the
lristoric preservation code. The Historic Preservation Commission may put strict requirements
on the materials that can be used, and the properry owner may not be able to afford those
required changes. Thus, the repairs may go undone and the inspector may let violations go that
in a non-historical azea he or she would have ordered. This appeazs to be a case where Code
Enforcement is not consistent in their enforcement of the Code.
Z000 Saira Aaul Ciry Council Resemch
Perf'ormance Audit ofthe City of Saiat Paul's GRZen Se�vice O&ce
si � � `(� `�
2) Code Enforcement is no longer enforcing the excessive consumption portion of the Property
Maintenance Code. They have found it impossible to collect the fees in most cases. According
to current City Code, these fees cannot be assessed to the property taxes of the violator, therefore
there is no mechanism to ensure the fees aze col]ected. -Code Enforcement has stated that
enforcement of the provisian costs more than they woutd recover from the fee, especially if
violators do not pay after repeated attempts by the City to collect the fees_ It is unclear to some
inspectors as to whether the poiicy is intended to penalize or just to recover costs_ No matter the
intent, the fact remains that the fee is not recovering costs because violators are not compelled to
pay, and the limited revenues generated aze not covering the inspections costs incurred.
3) Code Enforcemen2 inspectors sometimes give oral notices of a violation. This happens in two
situations. Tn the first type of situation, an inspector wili simply tell a property owner to cut the
grass or weeds or clean up the garbage, and may not foitow up with a written order if it seems the
property owner is willing to comply. In the other situation, an inspector may come across an
emergency situation where clean up needs to happen immediately, such as a dwelling which is
filled with garbage and cluldren aze living in it An inspector will tell the occupant to clean-up
and then will send a written order as soon as possible. Clearly the second situation is not of
concem as a written record is made of the incident. Our concem with the first situation described
is the lack of record of the violation, particulazly if the ptoblem persists or if other problems
occur. The information is also important for data collection and analysis purposes. We are also
concemed the property owner may not receive the information on the appeals process if they are
not given a written notice, as the appeals information is contained on the notice.
Recommendations
Recommerrdation #14. Code Enforcement managers should clarify for inspectors which
ordinances provide the highest standard for enforcement.
Recommendation #I5: Code Enforcement, the Ciry Attorney's Office and Council Research
should revise the e.zcessive consumption portion of Chapter 34 to allow the City to, collect fees to
cover costs from repeated inspections at the same properry. 7Tie City should assess the fees to
the property tazes.
Recommendation #16: Inspectors should issue written orders along with any oral orders to
provide wrinen evidence if the problem persists, and to ensure the property owner or tenant
receives the appeals process information.
2000 Saint Pau! City Counci! Research
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PerFormance Audit ofrhe Ctty of Saint Pa¢!'s Ci6zen Service Office
Certain Nuisance Dwellings
Chapter 42. Certaia Nuisance Dwellings � �
Sec. 42.01. Definidons.
Ualess othezwise expiessly stated, Uee following terms shall, for t6e purQoses of 8zis Chapier 42, have tbe
meanings indicated in this section
(1) Dwelling. Any one- or two-family renta( dwelling which is not occupied by the owner thereof. Dwelling
iacludes both the buelding or struchae and ffie land upon wtrich it is located
(2) Nuis�mce dwelling. Any dwelling which has beett found, upon inspection by the fire chie� to be in
violarion of any provision of any applicable safety code on fois (4) separate dates in any twelve-month period.
(3) Fire chief. Fire chief ieclvdes ffie said chie� as well as the official appointed as frre mazshai, aad also any
inxpector imder his or her supervision and conROl, and also inoludes any city officer or employee charged with
iesponsibility for the enforcement of a safety code... .
Sec. 42.02. Registration of a auisance dwel►irtg.
(a) Registratiorz Any dwelling meeting the definition of a nuisance dweRing shall be deemed on the date of
ihe fourth inspection in such twelve-month period to be registered as a nuisance dweliing, and subject w the
additional provisions of Uvs chapier, induding the paymeat of a regimation fee.
Such regishation shall remain in effect for a rivelve-month period beginning on the date of registration az a
nuisance building.
(b) Additioiml requiremems. Aay dwelling daemed resstered as provided in subsection (a) above shatt also be
subject to the requireme¢u of section 33.05 of the I,egislaave Code relating to occupancy so long as it is
registered avd for a period of rivelve (12) months after registcation tecwinates. Such registered nuisance
dwelliag sLall be required to have a certi8cate of oocupancy issued by ihe 6re cldef withia twelve (12) months
after the dake on which it is deemed registered. Failure to have such certificaie issued witLin such twelve (12)
months shall subject such dwelling and its owner to all enforcement and remedial measures which may be
applicabte mmder law or ordinavce.
Finding
According to the City Attomey's Office and Code Enforcement sraff, Chapter 42 was ffie first
attempt to institute a rental registration program in Saint Paut. Since Chapter 42 was last
updated in 1997, a new rental zegishation progam has gone into effect In 1999, Chapter 51 of
the Legislative Code was enacted req»iring all non owner-occupied one and two unit dwellings to
register with the City and obtain a rentai dwelling uait registration certificate. If the dwelling is
deemed a nuisance arcording to Minn. Stat § 617.18, the certificate may be revoked, and the
properry may no longer be occupied. Since this chapter regulates all one and two-unit dweilings,
inciuding fhose dze��c.' ;.:::saur„°s, :i �*s C�+�ster 42 could be reoealed. However, since
there aze some problems with the current registration program, described later in this section, it
would be best to wazt until me ro is fuii o erau:e ;e,`�.,, ���rt-r� q�, __[,7, �e_r ___
P �n Y � '°�..�a....s ----�--�- � ----- --
42, as it is cucrently written, is the responsibility of the Fire Chief. However, as Code
Enfomement is no longer tmder the administraiion of the Fire Ctrief, the language in the
ordinance is incorrect
Recommendation
Recommerrdation #17. The City Council should update the language in Chapter 42 and make it
the resporrsibility of the Director of the Citizen Service Office, or his or her designee. I,f Chapter
51 u successfully implemented, the Citizen Service Off ce should request that Chapter 42 be
repealed, from City Code
2000 Saint Paul Ciry Council Research
Perfosmance Audit ofthe City of Saint Paul's Gtizen Service Office
Nuisance Abatement
33 ��
Chapter 35. Nuisance Abatement
Sec. 45.08. AWhority to abate.
(a) The city is authorized to abete nuisances in accordance with the grocedinc� se[ forth in sections 4510, 45.11 �d
45.12, All abatement cos[s inciured shall be chazged agains[ the propecty as a special assessmefrt to be collec[ed in the
mazmer provided for in the City C6arter, Chapter 14. Faccept when a request is &led for a review of an emergency
abatement, the assessment hearing shall be replaced by the hearing provided for in secrion 45.12.
(b) Abatemeat may i�lude, birt shali not be limi[ed w, mmovai, cieaning, extermivatio4 �& m��& �n&
sewer �ePai�s. dramin& �ecurin& board�n8 unoccuPied stucaues, batricadi¢g or fencing, temoviag dangerous poctions
of s�ucna�es and danolition of dangerous soructiues or abaz�doned buiidings.
(c) Abatemrnt cos� shail include specifically, birt nar exciusively, the cost of the abazement; the cost of investigazion,
inciuding titte searches, inspecROns and tes[it�g; the cos[ of nofificazion including secvice costs; filing cosLS; attomey
fees, witness fces and appraiseis' fces; and adminisaarive costs.
Finding
Gturenfly, the structure of the abatement fees does not, in practice, include costs associated with
Code Enforcement; rather it includes only the costs incurred by Pazks and Recreation, Public Works
or the private contractor. Some discussion has occwred recently about whether the fee should
include costs incurred by Code Enforcement as well, such as an inspector's time and mileage.
Recommendation
Recommendation #I8: The City Council should revise Chapter 45 to include tfie cost of Code
Enforcement inspections in the abatement fee. This would then be campatible with the concept
behirrd excess consumption and recovering costs associated with enforcement.
Truth in Sale of Housing
Chapter 189. Trat6-in-Sale of Housiog
Suwmaty: This ordinance requires that all dwellings for sale in the City of Saiat Paul have an evaluation
cumpleted to deteimine the conditioa of the stcuctutal, el�trical, and mec6anicat systems of the dwelling,
and that the evaluatioo be displayed at the dwelling for potentiai buyers to review. The evaluation must be
done by a certified huth-in-sale of housing evaluator who is certified by the City.
2000 City Budget: Actirity Performance Plan for Truth-in-Sale of Housing
17ris activity:
1. Records, processes, and files evatuarion repocts and fees submitted by the evaluatois.
2. Investigates complaints and initiates disciplinary aMion against the independent evalvators when
appropriate.
3. Performs ongoing ceviews of materials, insruance, forms and continuing education credits.
4. Serves as secretaryhreasiuer to the Tnrth-In-Housing Boazd and administers certificarion e�cams az
directed by ffie Boazd.
5. Nofifies the Division of Fi:e Prevention when a single-family homes dces noi have hazd-wired smoke
detectors.
�2000 CYty Budget: Trnth-In-Sale of Housing: 2000 Objeetives
1. Conduct compliaace investigarions to assure compliance by home seilers.
2. Conduct compliaace investigations of the independent evaluatoxs wtdch asswes conformity to ihe
certification :equirements.
IOQO S¢int P¢u! City Cauncil Ruearch
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� Pe rfiovnan c e Aud it of the City o fS a mt Faui's Citizen Service OSce
Finding
The Truth in Sale of Housing function of Code Enforcement is generally in compliance both with
the Code and the Budget documents. They have an administrative staff person assigned to the
program who coitects the disctosure and insurance forms and tracks the educarional requirements
for the evaluators. However, Co@e Enforcement does not curreatly have azc inspector assigned to
Truth in Sale of Housing inspections and aze, therefore, not able to conduct the compliance
investigations, though they aze investigating complaints. During the interview ptocess, staff
stated that an inspector will be assigned half-rime to the program. Staff stated they did not have
the financial resources to assign an inspector. However, an ordinance allowing tfie Truth-in-Sate
of Housing Board to seT the fees, rather than having therre established in ordinance, was enacted
by the City Council and is set to go into effect November 2000. It is believed the fees will be set
at a level to cover the administrative costs.
Recommendation
Recommendation #19. Code Enforcement should immediately assign an inspector to the Truth-
In-SaZe of FTousing program or the Ciry should contract out the compliance inspections. The
City should main[ain its resportsibility for irrvestigating complaints.
Housing Plan Chapter of the Saint Paul Comprehensive Plan
The Aousing Plan Chapter of the City of Saint Paui's Compreherrsive Plan contains a number of
policies wlvch relate Yo the work of Code Enforcement. T'he Plan is an official City document,
and its policies are City policies to which departments have an obligaLion to comply_ The
foilowing is a brief discussion of each policy and relevant recommendations.
$ousiog Plan Cbapter of the Saint Paul Comprehensive Plao, March 24, 2999
Policy 43a Additional resources should be devoted to the epsting code enforcement imit to be used'm
pazmers[up with neigfiborhood based improvement efforts such as sweeps, Weed and Seed and residential
sheet paviag.
�IIQIAgS
1) Code Enforcement has limited resources, and'nas sCaied iYicy �z �r..y WiP. v^y2i'..�"..°: `N!*
other organizations if overtime funding is available or if the organization provides some funding
for Code EnforcemenYs participation. In the past, Code Enforcement has assisted some City
departments in their neighborhood improvement efforts, such as the Potice DepartmenYs HEAT
progrun. Code Enforcement expressed fivstration with the Police Depaztment in relation to the
HEAT prograzn, as no funding was provided for Code Enforcement to assist with the pmgrazn,
though the Police Department expected them to participate. However, we found thaY the
resolution passed by the City Council providing funding for the fiEAT program appropriates
fimds only to the Potice Department. Therefore, the Police Depaztment was not aufhorized to
B HEAT staads for Heary Enforcemeai Activity for Thirty Days. Ii tazgets areas imowa ro be hot spocs fur criminat
activity. Part of the mission is to improve the quality of life by reducing crime.
2000 Saint Paul Ciry Council Research
Perfarmance Audit of the Ciry of Sai¢t Paul's Cibzen Service OfEce
o ► -�'�
35
provide any funds to Code Enforcement. Code Enforcement can choose not to provide support
to the Police Department for this program, but the Police Department has stated the process of
condemning buildings is easier if Code Enforcement is involved with the property az the onset of
the HEAT progam's involvement with the property.
Recommendations
Recommendation #20. The City Council should allocate funds directly to Code Enforcement to
ensure their participation in the HEAT program if it wishes to continue the program in its
current form. If the City Cauncil does not want Code Enforcement irtvoZved in the HEAT
program, it should specify that Code Enforcement not participate in the program.
Housing Plan Chapter of the Saint Paul ComQrehensive Plao, March 24, 1999
Policy 4.36 The use of administrative fines, razher t6an the current staff-intensive system that involves a
series of waznings and re-inspections, to enforce the provisions of the housing code should be explored
Finding
Code Enforcement currently imposes no administrative fines, although excessive consumption,
described earlier, is an administrative fee. This Comprehensive Plan policy is a move away &om
a staff-intensive enforcement system to a system heavily reliant on fines as the enforcement
mechanism. It also reflects a philosophy different than Code Enforcement's current approach
which emphasizes direct inspector interaction with properry owners to gain compliance, rather
than the unposition of fines. Ttus conflict may also reflect a lack of communication between the
prepazers of the Comprehensive Plan and Code Enforcement.
Recommendation
Recommendation #ll. Code Enforcement should udvise the Planning Commission to change
Comprehen.rive Plan policy 4.3b iffznes are an ine, f� j'ective a less desirable way to gain
compliance fhan is interacting with properry owners through the standurd violations notice
process.
Housing Plan C6apter of the SaiOt Pau1 Comprehensive Plan, March 2A,1999
Policy 43c City staff should work with the Housing Court to determine how best to aclileve a Irigher
success rate in achieving compliance wiih the housing code.
Finding
Code Enforcement, the City Attorney's Of�'ice and the Housing Court have been working
together to achieve compliance, and Code Enforcement states they have achieved a higher
success rate, though we are not awaze of any concrete data to support this assertion.
2000 Sairrt Pau! City Council Research
o> � �
36 Perfoanance Audit of the City of Saint Paui's SStizen Service Office
Recommendation
Recommendaxion #22. Code Enforcement, the Ci1y Attomey s O�ce, Fire Prevention, LIEP and
Housing Court should do an evaluation of the services provided and the level of success of the
housing court program and determine areas for improvement or change.
Housing Plan Chapter of the Saint Paul Comprehensive Plao, Marc6 24, 1999
Po(icy 43d Addizional iesources must be identified and vsed in pamierslvp with those cade enforcement
efforts to assist property owaers to make the necessazy repairs and impmvements before there is sigtificant
deterioration.
Finding
Some inspectors aze proactive about giving oui information To property owners regarding
programs and sources of funding, such as low interest loans to assist with repairs, while other
inspectors aze not
Recommendation
Recommendation #23. Code Enforcement should standardize the irrformation given out to
ensure that everyone receives the necessary information. This information could also be given
out to entire neighborhoods that are the focus of Code Enforcement sweeps. This information
should also be made available on Code Enforcement s web site.
Housing Plan Chapter of t6e Saint Paut Comprehensive Plan, Ma'ch 24,1999
Yolicy 4.4 To the eateni possible, fimds available for residenteal rel�abelitazion should be focvsed on
specific neighborhoods and coordinated with public in&astructuce investments in order to aclueve the
maaimum possibte impact and leverege �e greatest possibie privaie investment iLrough aeighborhood-
based planniag processes, distric[ councils, CDCs, business associaaons, block clubs and other key
stalceholders should be involved in both the seleaion of focus azeas and the development of the capital
investment prog-am.
r`lII�lllg
Code Enforcement is not generally directly involved in fhe seiecrion of focus azeas t"or resideriu�
rehabilita4on, but rather works with commvnity groups and other departments once an area has
been selected for tazgeted fimding through programs Iike Weed and Seed They have not been at
all involved in the qpital investment program. Code Enforcement staff mentioned two
recommendations in response to ihis policy ihat we felt were excellent and should be pursued.
Recommendations
Recommerrdation #24. Code Enforcement should be more irrvolved tivith Public Works in the
selection of projects such as alley paving and plowing, curb and gutter installation, street
lighting upgrade, boutevard and sidewalk maintenance and street surfacing. IjCode
Enforcement w�e to assisl with 1he seleclion, they may be able to target resources to
neighborhoods where City i�zvestment would greatly impact the neighborhood arrd increase the
2000 Saint Paul City Council Research
Perfortnance Audit of the City of Saint Pau('s Citizen Service Of�ce
o t-(�'7
37
vaZue of the properties. WhiZe in many irtstances these projects deal with quality of life concerns,
rather than safety concerns, they serve to improve and beaut� neighborhoods and increase
people's sense of security.
Recommendation #25. Code Enforcement shouZd provide statistics that indicate which areas of
the City irrspectors spend most of their time and what the common probtems in the area are.
This could provide data which would help decision-makers determine where resources should be
directed. This information could be used City-wide by various departments.
Housing Plan Chapier of the Saint Paul Comprehensive Plao, March 24, 1999
PoGcy 4.5 Improve management and maiateeance of reatal property. Among the most w(nemble
residential struMures ia the city's hovsing stock aze its rental pmperties. Strategies to identify, train avd
suptwrt quality proper[y management services in order to ensise ongoing maintenance and systematic
investment shoWd include:
a Financial incentives (e.g. rental rehab fimds) or reduced inspection Fees for weil managed
properties.
a Mechanisms to place vulnernble pmperties imdet communiTy management and to build the capacity of
comm�mity based organizatioa to provide tltat management.
Finding
Staff suggested the Rental Registration progrdm is one way to incorporate financial incentives for
well-managed properties. Another staff person suggested a similar program be created for the
vacant buildings program. For instance, the vacant building registration fee could be reduced if
the building has few complaints or increased if the building has an excessive number of
complaints.
Code Eiforcement staffhave strong objections to community management ofproperties.
Through their experience, they believe the same code enforcement problems still existed under
community management� This suggests community management may not address the true
reasons for the problems.
Recommendation
Recommendation #26 The Planning Commission should remove, from the Comprehensive Plan,
policy 4. Sc which promotes the placement of vulnerable properties under the management of a
community based organization.
Housing Ptan Chapter of the Saint Paut Comprehensive Plan, March 24,1999
Policy 4.Sd Training and mentoring for new and prospective landlords.
9 Community management occurs when a community group takes over the management of a property.
?000 SainlPaulCiryCourscilResearch
o�-� 7
38
PerFormance Audit of the Ciry of Saint Paul's Citizen Se�vice OtSce
Finding
The Police Depai2menY has a pmgram called Crime Free Multi-Housing which provides
landlords and managers of rental properties with training on how to keep criminal activity out of
their properties. The full tlaree-day training session is typically held two rimes a year, but a more
informal group meets monthly to discuss issues of concem. Tlus group includes Police and Code
Enforcement staff, other relevant City staff and, most importantly, landlords.
Housing Action Plan 2000
Priority Ac6orts for 2000
321 Code enforcement
a. Strengthen interdepartrnent communication working towazd a coordinated effort to deal with problem
propecties. E�lore possibilities of foiming small information focus groups of City staff to deal with
specific problem properties.
f. Exptore resource oppommiries to go along wiffi code eaforcemeni ia order to eacouiage 'vnpmvemrnt of
uviu and reduce evicaovs and demolition of imits.
Findings
1) Pertaining to policy 3.21a, Code Enforeement currently pazticipates in the Problem Properties
Task Force (formerly the Information Exchange Group) with other departments such as Police
and Fire to address problem properties. Over the yeazs, there have been some plulosophical
differences within this group as to wfiether line staff sfiould be communicating informatly about
these properties, or if the issues had to be dealt with at a higlter management level. The feeling
of the cwrent chair of the task force is that it is more effective if line staff are encouraged to talk
informal[y as tfiey need to outside of the Task Force meetings. However, the Task Force
meetings remain very importanY for ensuring that activides aze formally coordinated.
Some issues have also been raised about sharing information in the group. Some members of the
group prefer to keep information to themselves rathet than share it with others. Tfris group is
vital to keeping communication open between organizations that often interact with the same
properties and people at vazious times.
2) Code Enforcement has sCruggled with how much infoanation is appropriate to provide
P ZO Clt OWLICLS 3ila tCRL@[5 lil OTQ�C�i6 ciiCiiui - 'cu,� "�.. °••,°••`,S:__T* _c. a nhilnc4 h].�_�EtRrilB__
P y � e . ..,.,.,... .-----� �
for them as they are an enforcement agency and are concemed about the mixed messages they
may be giving tenants and property owners if one the one hand they are citing them for property
violations and on the other they are promoting City programs to encoumge rehabilitation.
However, ifie writers of ifie Housing Action Plan 2000 cleariy feel it is important to provide
property owners with information about resoiuces thaY may be availabie to them.
Recommendation
Recommendalfan #27. Code Enforcemeni and the Planning and Economic Development
Department should reach agreement on what irformation about available resources for
rehabiliration is appropriate to provide to properry owners and tenants.
2000 Saint Paul City Cow�cil Research
Perfo[mance Audit ofthe City of Saint Paui's Civzen Service Office
Special Programs 8� Units of Code Enforcement
Rental Registration Program
39 �����
In October 1999, a new ordinance, I,egislative Code Chapter 51, went into effect requiring all
one and two-unit non-owner occupied residences to register with the City. Once the property is
registered, the owner receives a rental dwelling unit registration certificate, which is to be
renewed annually. Prior to this tune, these properties were not required to register and it was
difficult to track these properties and their compliance with housing codes. According to
Minnesota State Statutes, the City of Saint Paul could require these properties to obtain a
certificate of occupancy, which requires periodic inspections to renew the certificate. Howevet,
the City has chosen to tequire a similar yet less stringent dwelling unit registration certificate that
allows for inspections only if the situation meets the specific criteria established in the ordinance.
Code Enforcement and the Housing Informarion Office have been responsible for implementing
this program, and numerous problems have been encountered. The following box contains the
Activity Performance Plan for the Rental Registration prograni.
2000 City Budget: AcYivity PerFormance Plan for the Rental Registrarion Program
17us program enfmces Rmrat Dwelling Umt Regimation, Cdapmr 51 of ihe Legislalrve Code.
• IdrntiSes on� and two- farnily non-owna occupied subject Qroperties and requires regishation and enfomes collection of
fees.
• Lssues RegistraUOn Certificares.
• Revokes, suspends, cancek certificates on probtem pcopeties as provided for by O�dinance.
• Coordinates registrarion and certificare issuance wirh Building Inspecfion Division
• Collects revenue and re�strafion dab and shares this info�ion with other agencies, departments and divisions.
• Provides pmgam infolmafion to the public.
Findings
1) Since the program is relatively new, not all of the problems regazding Rental Registration
have been worked out Specifically, Code Enforcement was inidally condemning properties if
they failed to apply for a registration certificate. The City Attomey's Office has since
determined they cannot condemn properties for tivs reason. Code Enforcement cannot condemn
a building if they have not made the deteimination the building is "unfit for human habitation."
There is a danger under the condemnation section of the City Code that the action could be
construed as regulatory taking. This type of condetnnation is separate from a situation where
Code Enforcement has already conducted an inspection and determined that code violations exist.
However, the ordinance is still enforceable as it is a misdemeanor if a qualifying property owner
fails to register. Other legal issues are being discussed between Code Enforcement and the City
Attomey's Office regazding the circumstances under which inspections can be done. Part of
these conflicts stem from differences of opinion beriveen staff administering the prograni.
�� The City requires a Certificate of Occupancy for rentai dwellings with fluee or more units. This program is
administered by the Fire Prevention Uait of the Fire and Safety Services Departmeni.
I000 Sainr Pav! City Counci! Rzsearch
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�
PerFocmance Audi[ of the City of Saint Paul's CiGZen Service Office
2) We leamed from staff that the computer program developed in-house and being used for the
Rentai Regishation program is not effective and is very difficult to use. They aze currently
conveding to the Freelantz softwaze, but have found the systems to be incompatible. Thus, the
information inirially entered in the Rental Regisuation system has to be manually transferred to
the Freelantz softwaze.
3) The Rental Registration prograni is taking longer than anticipated to implement, partially due
to staff resources having been dedicated to the Dayton's Bluff Initiative. This Initiative was not
anricipated when they were planning for Rental Registration.
Recommendations
Recommendation #28. Code Enforce�nent should develop a plan for the administraYion of the
Rental Registratiorr program. It murt address potential infTuences on the program, such as
speeial inftiatives, and how to make the program successful even ifstafJ'resources are limited.
Code Enforcement also needs to plan for implementation of each provision of the ordinance to
ensure they are enforceable. fill staff resporrsible far Reraal Registration should be irrvolved in
the creation of the plan ns well as the City Anorney's Ojj?ce and other relevant stakeholders. As
with mry new program, other staff wuhin the CSO should be educated as to the specifics of the
progrmn in order to prevent confusion over enforcement and administration and to ensure the
information provided regarding the program is corrsistent.
Recommendation #29. Code Enforcement must implement the AMANDA system as quickly as
possible for Rental Regisiration, This would also allow other departments utilizing AMANDA
easy access to the registration data.
Vacant Buildings Unit
The function of the Vacant Buildings Unit (VBL� is to case manage vacant buildings until ihey
are rehabilitated or demolished. The VBU was created in the mid-1960s as a result of a lugh
profile case in wluch a woman was attacked by a goup of inen in an �matteaded, unlocked vacant
building. Since its establishment, the VBU has always been pazt of Code Enforcement It has
traditionatly been pecceived by the Division's staff as an elite unit T1us perception is due in part
xo the belief of some staff that management provides VBU employees with more respect and
resources than regulaz Code Enforcemeat inspectors.
The VBU policies Coancil Research examined for this audit were fovnd in the Saint Paul
Legislative Code and the 2000 City Budget. Most of the Unit's budget objectives aze reiterations
of its responsibilities fointd in the City Code. Therefore, we have listed only 2000 Budget
Objectives to avoid duplication. A list ofthe policies we reviewed are found in the folIowing
table.
2000 Saint Paul City Council Resetvch
Ferformance Audit of the City of $aint pwl'S Grizen Service Office
at ��'
2000 City Budget: Vacant Building Monitoring: Designation ot Services Provided/Ongoing
Objectives
This Program enforces the Vacant Building Legislation, Cl�apter 43 of t�he Legislative Code." This
activity:
1. Idenrifies vscant buildings and "case manages" these properties to eliminaze the public Lealth and public
safety issues associazed with vacant buildings
2. Requires registraLion plans and collec[s regishation fees.
3. Invesrigates complaints on these buildings.
4. Eliminazes nuisance law violations on these properties.
S. Works with the City Council, District Councils, Neighborhood Groups, Biock Clvbs, Police, Fne,
BIDD, and PED on these projecu.
6. Collecis and distributes the vacant building inventory lisu.
7. Identifies "Nuisance Buildings" which are subject to demolition imder activity 30251.
2000 City Budget: Vacaat Building Monitoring: 2001 Objecrives
i. Conduct regutaz inspections of vacant buildings at a minimum of every other month as required by
ordinance.
2. Continue regulaz, routine surveillance of all registered vacarn buildings so citizens do noi have to make
complaiMS abouT miisance conditions at these properties.
I�ndings
Cas�Management of Vacant Buildings
T�acant Building Identifzcation and Registrataon
1) Vacant Buildings aze identified mainly through refeaals from citizens, Code Enforcement
inspectors, and the Police and Fire Departments. Once a building has been identified, a VBU
inspector will evaluate the property in order to make a determination as to whether the property
meets the legal definition of a vacant building or is only considered to be unoccupied.'� Once a
building has been declazed vacant, the property owner is required by City Code to register the
building within 30 days of the declaration. Vacant buildings aze also categoriaed according to
their habitability."
2) The vacant building owner is informed of the registzation requirement through a notice which
states the owner may not occupy the building until it is considered habitable and meets the
standazds found in the Code. The notice also informs the property owner that he or she must
complete a vacant building registration form and submit a fee of $200. The registration form
requires the building owner to provide his or her name, address, and a phone number so s/he may
11 The policies foimd in the 2000 Budget and the Legisiative Code are virtually identical. T6erefore we have lisied
only 2000 Budget Objectives to avoid duplication.
� imoccupied buiiding is a building wtrich is not being used for legal accupancy but it is secured by aoimal
means, that dces not have outstanding housing code violations, and is maintai�d by the property owner.
13 The categories of vacant buiidings aze outiined in Appendix D.
2000 Snint Paul Ciry Councll Reseorch
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4Z Perfoimance Audi2 ofihe CTy of$ain[ Paul's Citizen Service Office
be contacted in the event of an emergency. A placazd is placed on the building staTing the
property has been declared a vacaret bailding. The placard also identiffes the name and phone
number of the inspector responsible for the property.
Irrspections and Complainrs
1) Vacant buildings aze inspected once every three to four weeks. During the inspections, VBU
staff ensure that pmperties aze secured, maintained and are not housing squatters. Atso,
inspectors perform periodic, random spot checks for squatters one night each wee[c.
2) Complaints about vacant buildings typically come in through the Information and Complaint
phone line. These complaiats are entered into the EXI, system and a notice is sent to the
appropriate inspector. CompIaints are also received directly by the inspectors &om citizens who
find their numbers on the placazds posted on the buildings. InspecTOrs prioritize complaint
inspections based on the severity of the situation and will rypicalty wnduct the investigation
within 2 days of receiving ffie complaint.
Demolitions
1) If a properry remains vacant for one year and there are no active building permits for the
property, the demolition process may begin, To begin the process, an inspector will inspect the
property for deficiencies which need to be corrected. A notice of the deficiencies will be sent to
the property owner. The owner has 30 days in which to make the corrections. If, after 30 days
the problems az+e not remedied, a resotution is placed on the City Council agenda announcing a
pubIic hearing before the Legislative Aeazing Officer to be scheduled for 30 days later and a
public hearing before the City Council. After the public heareng before the Legislative Hearing
Officer, the matter comes before the City Council in the form of a resolution requiring the owner
to repair or remove the building wfthin 15 days. If the owner does not comply, the City may
demolish the building.
Community Relationships
1) The Vacant Buildings Unit responds to City Council concems on a case-by-case basis. If
Councilmembers have questions or issues about a parciculaz property, the VBU wil] respond as
quickly as possible. The VBU also provides Councilmembers wiift a qua�terty rep�rt af a?1_
7'w'—^-* �'^—���TM!a an their �'azds• T'hese quarterly reports aze a[so sent to PED staff and other
interested parties who are on a mailing list maintained by the Unit. In acidition; riie iistcis pi,5a:
on the Code Enforcement web page.
2) VBU staff attempt to develop relationships with District Councils by checking-in on a regulaz
basis at their offices and meetings. Inspectors will attend block club and neighborhood group
meetings if they are asked to do so. The VBU atso has weekly conversations with Fire
Department inspectors to discuss issues regazding the Certificazes of Occupancy for vacant
buildings. Tn addition, they also have weekly discussions with PED staff via phone and email
regaz@ing specific properties tltat may be available for redevelopment. Finaiiy, the VBU
supervisor reports that he speaks with representatives from LIEP regazding buiiding permit issues
on a daily basis.
2000 Saira Paul Ci1y Council Resemch
Perfocmance Audit of the Gty of Saiat Pau1's Citizen Service Office
Complaint Reducrion
3) Compiainu about vacant buildings are tracked by the Unit According to VBU staff, they
appear to be going down, but'no analysis is done by the VBU to determine why complaints are
decreasing. Staffreport thaz anecdotal evidence suggesu the decrease is the result ofthe high
demand for housing in the City which has caused property owners to better maintain their
properties so they can more quickly be occupied. According to interviewees, the VBU is not
provided with the complaint reports produced by the Tnformation and Complaint Division.
43 ���°�
Recommendation #30: The CSO's Information and Complaint Division should provide
complaint reports cmd complaint resolution feedback reports to the Pacant Buildings unit. This
information should be used to assist the Yacant ButZdings Unit in determining how well the case
managemettt system is working.
Recommendation #31: The Yacant Buildings Unit shouZd develop more meaningful budget
objectives which are more than just reiterations of City Legislative Code. The unit should
review both their ongoing and an�rual budget objectives. New objectives should set goals for the
unit which go beyond what is required by Code and are pertinent to special initiatives to be
taken in the coming year. The lack of ineandn�'ul budgeY objectives is an issue for mosr of zhe
CSO's budget areas.
Special Initiatives
For the purpose of this audit, we define special initiatives to mean any new project or program
developed by Code Enforcement to address a specific problem. These initiatives are usually pIlot
projects or temporary in nahue. There aze sevetal policies pertaining the Office's special
initiatives found among its budget objectives in the 2000 Budget.
2000 C�ty Budget: Code Enforcemeot - Property Code Enforcemeut Objectives
1. Identify and target those properties which generate repeat complaints, and which comprise
continua] nuisances and biight in the residential neighborhoods. Educate those property owners
and occupants thmugh the use of all existing enforcement options, including enforcement of use
of service (zrcessive corrsumption of exterior inspection services) ordinance.
2. Reduce the number of complaint calls to the City by proactive surveillance patrols.
3. Conduct scheduled surveys of neighborhoods in the City where conditions warrant closer
monitoting by enforcement officers.
PP2000
Code Enforcement's primary initiative far dealing with chronic problem properties is PP2000
(Problem Properties 2000). The program began in January 2000 as the result of a Mayoral
direcrive to develop a prograzn to address chtonic problem properties. This program idenrifies
pmperty owners who have had repeated complaints against their properties and assigns these
property owners to an inspector who case manages the owner's properties. Property owners were
originally selected by senior leaders based on the zecommendations of Code Enforcement
2000 Saint Pau1 City Courscil Research
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Perfocmance Audi[ ofrhe Ciry ofSaint Paui's GNen 5ervice Office
inspecto�. The Code Enforcement inspectors pro-activety work with the property owner to
encourage them to better manage their properties. In the words of one senior manager, the basic
philosophy of the progam is that "if you cure the probtem proper[y owner, you cure the
problem." Working with the owner is viewed by management to be more effective than
addressing the properties because by addressing the mosi ptoblematic property owners and all
their properties, the Division is able to capture a lazger number of properties than if it was
focusing on individuai properties.
Findings
1) The decision to include certain property owners in PF2000 is based primariIy on anecdotal
information provided by the inspectors. No specific, imiform ctiteria was azticulated for
inctusion in the PP2000 program.
2) Results of the prog�run have baen measured thus far targely by iuformai and anecdotat reports.
Code Enforcement officials believe that many ptoperiy owners in the PP2000 program are eithet
rehabilitating their properties or setling them. As far as we were able to discem, there are no
serious efforts to quantitatively evaluate the program's success.
3) The program dces not address owner-occupied properties nor dces it identify owners who have
a small number of rentat properCies in the City that are chronic problem properties. These
properties comprise a substantial proportion of atI properry code violations.
Recommendations
Recommendation #32. IfPPZ000 is to continue Code Enforcement should articulate criteria for
inclusion in the PP2000 program. The criteria should be based in pm7 on quantitative data such
as complaints about the address, the number of citations issued to the properry, and pvlice calls
to the property.
Recoramendation #33. Code Enforcement should immediately compile and analyle data
relating to the PP2000 program to determine its ef, j'ectiveness and worthiness.
Recommendation #34. Cade Enforcement should develop a program to address problem
properties whick are not included in tire �?2G30 pragram, sz:ch.ls awner-occupied cand other
rental nroperties not owned by the subjects of the PP2000 program.
Dayton's Bluff Initiative
This project is a coordinated effort between the Code Enforcement Division, Police Department,
the Fire Depamnent, the Housing Information Office and City residents Yo address code
enforcement violations and the associaYed problems which they may create, such as crime aad
lower property values, in the Dayton's Bluffneighborhood. The project began in February 2000
and is currently scheduled to run through December 2000. Code Enforcement has devoted the
equivalent of one full-time inspector position to the effort. They have also worked with
neighbors to develop citizen patrols and use "good neighbor notices,° which are cards that ask
property owners or tenants to clean or fix something and Yhank them for helping to make the
2000 Saint Paul Ciry Coanci[ Resemrh
Perfocmance Audit of rhe Ciry of Saint Paul's Citizen Service pffice 45 O ���
community better. The program has been viewed as a potential model for other City
neighborhoods with a significant number of problem properties. However, the initiative has been
perceived by some senior management and front-line staff as being driven by people from
ouuide the departmern (i.e. the Housing Information Office). This view has created problems
getting Code Enforcement inspectors to buy into the initiative. Also, for the first three months,
staff were supposed to collect data but did not, according to senior Code Enforcement staff.
However, in a report prepazed for a City Councilmember, data was retrieved from Code
Enforcement files and "good neighbor" code violation notices.
Finding
I) Code Enforcement has done some data collection on the Dayton's Bluff Initiative, but limited
systematic evaluation of the Initiative has occurred. Staff cite the timitations of their data
collection system as part of the reason for the limited evaluation, though an intem for a City
Councilmember was able to collect and analyze data for a report on the Initiative produced for a
Councilmember.
Recommendation
Recommendation #35. Code Enforcement should perform a systematic evaluation of the
Dayton's B1ufflnitiative. This would irrvolve collecting more comprehensive data on the
Dayton's Bluff Initiative to determine its e,�'ectiveness, pmticularly if it is to be e.zterrded or used
as a model in other neighborhoods.
Sweeps/Surveys
Finding
The budget states Code Enforcement will conduct periodic surveys (sweeps) in neighborhoods
which require closer monitoring for Code Enforcement violations. Typically, sweeps involve a
majority of the Code Enforcement inspector, who spend several days in a predetermined
geographic azea pro-actively seeking code enforcement violations. Sweeps focus on primarily
three types of violations: tall grass and weeds, junk cars and garbage. Until a couple of years
ago, the Division conducted 50-60 sweeps a year. In 1999, six sweeps were conducted and so far
in 2000, only one has taken place. With the change in senior management, the division changed
its philosophy regarding the value of these activities. C�rrently, sweeps are not done unless
requested from neighborhood groups or elected officials and they have an outside funding source,
such as Weed and Seed (a federally-funded prograui conducted joinUy with the Police
Department). Current management views sweeps as a superficial response to more systematic
problems. Sweeps require a great deal of time and effort on the part of inspectors. Tnspectors
must not only conduct the sweeps but must also spend rime writing tags and doing papenvork. If
a choice has to be made beriveen allocating resources for sweeps or for routine inspections, this
time and money, senior managers azgue, would be better spent on traditional inspections.
However, when coupled with routine enforcement activities, managers suggest sweeps aze
worthwhile and effecrive. At the time of writing this report, Code Enforcement determined they
have some unanricipated resources as a result of staff changes in the Division, and decided to use
2000 SaiM Peul Cily Councrl Research
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�' Performance Audit of the Ciry of Saint PauPs CiSun Service Office
the money to conduct sw�ps. City Councilmembers were asked to identify any azeas wittrin
tlteir wards where they woutd iike sweeps conducted.
Recommendation
Recommendation #36: Code Enforcement should collecr data to determine the efJ'ectiveness of
sweeps. If they are found effective, the City Council should provide special funding to conduct
them in addition to routine Code Enforcement activities.
2000 Saint Paul Ciry Council Research
Perfortnance Audit of the Ciry of $aint Paul's Citizen Service O1Tice
CJR�ANIZAT'IONAL QUALITY
ASSESSMENT
The efficiency and effectiveness of the Citizen Service Office aze evaluated using an
Organizationa] Quality Assessment. While there aze several methods to evaluate effectiveness
and efficiency, our approach is based on work done by the organizers of the Malcolm Baidrige
National Quality Awazd who identified the characteristics of a high-pecforming organization.
47 � t —� r
The study of high-performing organizations has typically identified seven characteristics believed
to be essential for an organization to achieve excellence. These criteria have been identified from
studies over many years and aze widely accepted as indicators of organizational excellence. Our
criteria, based on that used by the Malcolm Baldrige National Quality Awazd and the Minnesota
Quality Award to assess organizational development and to identify quality organizations, aze
summarized in the table on the following page . None of the quality categories stand alone.
Each impacts the other, and all are essential to achieving a high level of performance. Quite
often improvement in one quality category will positively impact another. For example,
improvement in the category of Information and Analysis often significantly impacts both
Results and Improvement Processes.
Each of these quality categories is a chapter in the report, and each chapter contains the ratings, a
discussion of the quality of the organization, and our findings and recommendations. In addition
to the Results chapter, which focuses on organizational outcomes, an overview of performance
measures and their potential applicarion in the CSO is provided in the Performance Measures
chapter. Performance measurement in this performance audit means ffie regular collection of
specific information about the effectiveness, quality and efficiency of services and pro�rams.'"
The suggested measures will enable the CSO to evaluate on its own whether the resources
expended (labor or financial resources) on an activity aze used efficiently, have the intended
effect and result in a quality outcome. Measures can be based on information obtained from
written records, observations by specially trained staff or through surveys of customers. This
performance audit will examine existing performance measures and suggest other performance
measures. However, the audit will not perform the actual measurements.
The table on the following page outlines each quality assessment category, the key concepts that
comprise that category, and the pages on which the operations of the Citizen Service Office aze
described in relation to the quality category.
14 i'he Urban Institute (1980). Perjormance Measurement: A Guide for Local Elected Officials. Washington D.C.:
The Urban Institute, p. I.
1000 Spint Pau! Ciry Council Aeseorch
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48 Per foimance Audit o f t he City of Saint Paul's Citizen Service Office
Assessment Categories
Quality Category Key Concepts Discussed on Pages:
Planning
Internal Plans
Plan Development
Plan D'assemination & Implementation
50-53
Leadership
Mission, Vision, Values
Stakeholder Relationships
Staff Recognition
TPaining & Training & Education Resources
Development Employer Commitment
Employee Conhibution
Work Environment
Labor-Management Relationship
Employee Evaluation
Information and
Analysis
Collection of Data
Analysis of Data
Effective Use of Automation Systems
Processes for
54-58
59-64
65-69
Idenrification of Potential
Improvement �provements
Implementation of Improvemenu
Evaluarion of Improvement Practices
Customer Focus
Resalts
Customer ldentification & Knowledge
Measuring Customer Satisfaction &
Needs
Customet Service Practices
Customer Service Standards
Otganizational Outcomes
Financial Outcomes
Customer Satisfaction
Use of Performance Indicators
Criteria Ratings
70-73
74-78
79-83
We have gathered a wealth of informarion about the various activities of the CSO while
conducting this performance audit. Although capturing all of tivs information in any rating
system is impossible, we believe ratings will help decision-makers grasp the essence of the
2000 Saint Pau1 Ciry Council Resemch
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Performance Audit of the City of Saint Paut's Citizen Service �ce
49
information. We have developed a simple summary rating system we believe conveys the
essence of our findings. We intend ihese ratings to reflect what interview subjects have told us
about the CSO. While organizations and processes consist of individuals, we intend the ratings
to reflect current organizational practices and they should not be interpreted as judgements about
individuals.
The summary ratings for the quality categories are intended to poRray both the level of
development and the level of integration of each quality criterion. Development, in this
performance audit, means the extent to which highly-valued organizational characteristics aze in
evidence. They should be systematic, manifest, pro-active, fact-based, and evaluated.
Integration refers to the extent criteria are practiced. It is possible, indeed likely, for criteria to be
practiced in some parts of the organization, but not in others.
The summary ratings used for the quality assessment are:
**** Criteria fitlly developed and practiced throughout the organization.
*** Criteria well developed and prac6ced throughout most of the organization.
ic �c Criteria present and practiced in some parts of the organization.
* Criteria very rarely present or practiced in the organization.
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50 Performance Audit of the C iTy o f Saint Pa C itizen Secvice Office
PLANNING
Quality Rating: �
Planning is an activity that incorporates a suong
future orieatation and a willingness to make
KEY CONCEPTS: -
❑ Internal Plans =
❑ Plan Development Participation =
❑ Pian Dissemina[ion & Implementation
long-term commitments to stakeholders. High-perfomming organizations aciively engage in
planning and recognize the impact not only of intemal changes, but also of environmenta]
factors, on the organization. Planning considers resource allocation, economic projections, futwe
needs of employees, future customer needs and expectations, technological developments and
stakehoider requirements. Plans can be long- or short-term, issue specifiq organizational-wide,
departmental-wide or unit-wide. In order to be effective, plans need to be catt out and
updated frequently.
Office-Wide Planning
The CSO performs a wide variety of functions, and should therefore have plans that incorporate a
variety of activities. However, the only office-wide "plan" we discovered is the set of "Strategic
Plans" co�tained in the annual budget. The CSO's "Strategic Plans" are really not plans at al1.
Rather, they aze a set of goals and functions. A meaningful organizational strategic plan would
provide a clear set of steps to achieving goals and making the vision a reality. Many of the
objectives in the CSO's "Strategic Plans" aze vague, such as: "Sttengthen the City's approach in
deiiveting City services." If this was a true strategic plan statement, it would include a closed-
ended statement with specific steps to take to achieve the goal, and a time line for
implementation and/or completion. To change the aforementioned statement to an actual plan
objective, the CSO could add an action statement at the end to explain what steps the Office will
be taking to strengthen the CiTy's appmach. A strategic planning process should also include
stakeholders and customers, which the CSO has not done. In addition, the "Strategic Plans"
developed by the CSO have remained essentially the same for at teast the last three years, with a
statement pertaining to the Code Enforcement Division added to the 2001Propased Budget.
T?te lack of �lanning in the CSO is exemplified through their disjointed process of implementing
a new computer system. The CSO is replacing the EXL system, but has not made any ciear
�i5i.5 iv yi:?au.�.^'�.�:�-. °:'.'— ��etgm__ i2aY}SCT__ftl3D 1tI7hLCA7ERtlllg E�E1N�l�� 2S Of}1CL CIEp3Tf[RETItS
such as the Office of License, Inspections and Environmental Protection and Fire Prevention and --- -
Inspection unit aze doing, the CSO chose to first go with cheaper softwaze from Freelantz, with
the expectation they will implement AMANDA later. The Freelantz softwaze is not operating
well; therefore, it would have been advisable to impiement AMANDA instead af wairing until
LIEP was done in the hope that the problems with the system would be worked out by LIEP. To
15 See the CSO's "Suategic Plans" in Appendix B
16 For more infortnation on creating a strategic planning see: Bryson, 7ohn. (1995). Strategic Planning for Pub[ic
aird Nore-Profrt O,gancationr. Jossey-Bass. San Francisco, CA.
2000 Saint Paul City Council Research
Pecformaace Audit ofthe Crty of Sainc Paul's Civxen Serrice O�ce
undertake such a groject without a clear plan ta guide actions makes implementation faz more
difficult and leads to unnecessary eacpenses being incurred.
Marketing & Promotions Division
51
The Marketing and Promotions Division of the CSO has made a commitment, through an
administrative order approved by the City Council on Apri126, 2000, to develop and implement
a year-long, multi-level marketing plan to celebrate Saint Paui. The Markering Director
presented their plan to the City Council and highlighted how the various activities they were
planning fit into an overal] theme of "Rediscovering Saint Pau3." Because much of the
Mazketing Division's work is project oriented, their plans aze short temt and project specific,
such as the plans for the "ilovestpaul.com" website and the Peanuts on Patade eachibit.
Marketing staff shared with Council Research written, specific objectives, tactics and events
designed to fiilfill the vision for Saint Paul's sesquicentennial celebration. Mazketing staff also
met with each Legislative Aide az the beginning of the'u current terms to discuss mazketing goals
for their wazds, and plan to make these meetings annual. They will also be developing an"afteo-
Snoopy" plan to build on the success of the Peanurs on Parade project.
The City's website developers aze atso part of the Mazketing and Promotions staff. It is not as
clear they have a particulaz plan for web development, though the City is currently involved in
developing plans for a-govemance efforts Ciry-wide. However, it does not appear the website
developers have a specific plan for their work or the assistance they provide to other departments
with their respeetive websites.
Information and Complaint and City Clerk/Records Division
Staff in the Information and Complaint and the City Clerk/Records divisions of the CSO were
lazgely unawaze of the Strategic Plans contained in the budget, though many of the objectives are
within their realm of resgonsibility. The divisions also have no plans ffiat pertain specifically to
their work. Planning would help balance workloads, share information and prepaze for futute
changes, such as those relating to the new computer systems.
Code Enforcement Programs Division
Within the CSO, there is no overail plan for Code Enforcement. Reasons staff offered for the
lack of planning in tivs area are: 1) their work is complaint-based and therefore reactionary; 2)
their work is often influenced by political decisions; and, 3) they have too much work to do to
take time to plan. We courner that these aze the reasons a department should create plans. Plans
can provide a framework for discussions about prioritization of projects and fimction as a
workload management tool.
While there ue no plans for Code Enforcement, the Vacani Buildings Unit has stated they have a
glan m address long-term vacant buildings (vacant buildings that have been on the vacant
building list for more than one year). However this is not a written plan. The Vacant Buildings
Unit stated they aze able to manage their daily work better as a result of having even these
informal plans and ihey ate able to address problems more proactively by laying out the problem
and mapping so]utions to it. However, the fact remains that without a specific written plan,
2000 Saint Pnul Ciry Cowci] Ruearch
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SZ Perfoanance Audit of the Ciry of Saiai Pwl's Citizea ServiceOff+ce
implementation and continuation of the plan will be difficult. Other specific special programs
within Code Enforcement, such as Rental Registration, could benefit &om having a plan to
address and mitigate the problems they are now facing with implementation, as discussed in the
Code Enforcemeai policy corrcpliance section.
O[her specific plans have been created by Code Enforcement together with community groups
when they have been approached by the community groups to participate in prograttis like Weed
and Seed, a federally funded progaun to which communiries can apply for fimding for special
projects. Recently, the Railroad Island community conuacted with Code Enforcement as part of
Weed and Seed funding they received, and Code Enforcement developed a plan with the
community to provide staff and rime for concentrated code enforcement sweeps.
Plan Dissemination and Implementation
Most front-line staff seem unawaze of the "Strategic Plans" contained in the budget, even though
the pIan has been included in the budget for at least the past three yeazs. CSO staff were not
involved in the development of the "Ptans" (50 pe�ent of CSO staff report they do not
participate in planning and 23 percent neither agree nor disagree that they parkicipate), nar has the
plan been discussed with them by managets and supervisors. When asked in interviews who
would be responsible for implementarion of the "Plans", the overwhelming response was the
managers. It is possible that, because the CSO has few plans, many named managers assiuning
ttus is a management responsibility.
5ummary of Findings
1) The majority of general planning that occurs in the CSO invoives upper-level management
only. Some of the project-specific planning, such as Weed and Seed programs, also involves the
affected communities. The Marketing and Promotions Division cteates detailed plans for their
projects. The Vacant Buildings Unit states they have some informal, unwritten plans.
2) The "Strategic Plans" contained in the budget are not plans. Rather, they are a set of
objectives and fiutctions that contains no time line or implementation information, The concepts,
as stated in the budget, aze not specific enough to be truly meaningful or manageable.
3) Few staff are awaze of any CSO plans, except for specific project plans in ffie Marketing and
- --- -- -
. _ . .
__rYVPIi6`uviu^'viv.SiGiati ----'-�- -' --- --- -�----
4) Reasons offered for failing to create plans, such as heavy workloads aad the effect of outside
influences on their daily activities, are actually strong azguments for the creation of plans.
5) The CSO, with a few exceptions, has not included iu stakeholders or customets in its very
limited planning activities.
Recommendations
Recommendation #37. The CSO should create a true strategic plan with outcomes, time lines
arrd action steps. It should involve all staffand representative stakeholders and customers in its
2000 Saira Paul City Counci[ Resemch
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Perfmmance Audit ofthe Ciry of Saint Paul's Citizen Se�vice Office
53
development, rmd make sure that all staff ine made aware of the plans and how they contribute
to achieving oufcomes. All divisions within the CSO should have plans relating specificalZy to
their work which help them manage worktoads artd expectations, and to anticipate potential
changes. The need for planning in Code Enforcement is particularly apparent. Plans would
allow them to better manage sta,ff work assignments_ The CSO should di.scuss the plarzr with the
Council and Mayor to garner their input.
Recommendation #38. The CSO should engage in planning prior to implementation of the
AMANDA system to errsure the system is functional for staff, and to assist them in managing the
training and workloads during this period.
Recommendation #39. The Marketing and Promotions Division should solicit Council input
annually during Marketing's planning process for the upcoming year.
Recommendation #40. The CSO should create a plan for the City s website development. This
would assist the O,�ice in guiding other departments through the development of their own web
pages and clearly state the time frame and expectations for development.
I000 Saint Paul Ciry Council Research
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PerFonnance Audi[ of the City of Saint Paul's Citiun Service Office
LEADERSHIP CONCEPTS: _
❑ Mission, Vision, Values =
Q Ua�lt Ratin : �'/2 ❑ StakehoiderRe(ationships _
Y 9 ❑ Staff RecogniNon
Senior organizationa] leaders need to set direction,
-�_—�� _ -�.--«_--�
create a customer focus, establish and articulate a
cleaz vision and communicate and make visible the values of the organization. Reinforcing
values and expectations requires personal commitment and involvement. Leaders need to take
part in the creation of strategies, systems and methods for achieving excellence. These systems
and methods need to guide all activifies and decisions of the organization. Leaders must also
recognize the role of stakeholders in these processes, and maintain positive relationships with
them. Finally, stafF need to be recognized for their contributions to the organization and its
mission, vision and values.
Many of an organization's policies and practices aze derived from strong leadership principles.
In this discussion, we look at six leadership azeas: mission, vision, values, communication,
stakeholders and staffrecognition. Good leadership works to ensure that all in the organization
understand the organization's purpose — its mission — and where the organization is going - its
vision. Good leaders also ar[iculate values cleazly and exempiify them on a daily basis. Strong
leadership involves good communication between managers and line staffand is aware ofthe
need to recognize staff for outstanding work.
�1SS10�
The mission and vision must be cleazly articulated from the top of the organization down. This
is a vitally important characteris6c of a high-performing organizarion. The following is CSO's
mission statement:
The Citizen Service Of,�ce consists offour divisions — City ClerkRecords, Marketing &
Promotions, Code Enforcement Programs and Information and Complaint. Together, the
employees of the Cirizen Service Office maintain Saint Paul's official recorded history,
promote its viiaii'ry arsd divErsi�y, :u'e :.��Yr�c�?i>>e s�l�raons to correct eode violations,
and help resolve citizen issues related to City services by serving as advocates and
- ---- ..
_. _
liaisons. _ _. __ _ _ __
The mission statement for the CSO was developed witti the heip of Human Resources and
involved the Director, the Deputy Ciry Clerk, Division managers and some staff prior to the
incorporation of Code Enforcement into the Office. Shortly thereafter, the statement was
enhanced to reflect the current composiYion of the Office, which now includes Code
Enforcement. If the divisions that make up the CSO were to be sepazate departmenYS, each
would have their own mission statements that may not be much alike. This is evidenced by the
fact Code Enforcement has been working under the informal direc6ve to "enforce the City code
and improve the quality of life in Saint Paul." Some in Code EnForcement view this mission as
being contrary to the mission of ttte CSO. The CSO Director has a]eadership style that
emphasizes customer service more than enforcement.
2000 Sain� Paul Cily Council $esemch
Performance Audit of the City of Saint Paul's Citizen Service Office
55 01' ��
Forty-eight percent of survey respondenu believe the Director and managers effectively convey
the mission to staff, 27 percent say they do not, and 24 percent neither agree nor disagree. This
may be the result of many staff from the Office reportedly having not seen the mission statement.
It was appazent from interviews that although a majority of staffhave not seen the mission
statement, they do adhere to its ideals and believe their mission is to serve the citizens of Saint
Paul.
�1S10I1
Given that the vision should be clearly articulated from the top of the organization, we identify
the Mayor as having the ultimate responsibility for communicating a vision to staff, whether this
is communicated directly from him or through department and office directors. According to
survey responses, only 24 percent of employees believe the Mayor effectively conveys a cleaz
direction for the future of CSO. However, those interviewed responded that they have a sense of
the Mayor's vision for the Office and feel he supports the work they do.
Only 31 percent of survey respondents believe the CSO director conveys a clear vision for the
future of the Office. When we asked staff about the vision they receive from the CSO director,
several stated he conveys a similaz vision to that of the Mayor. However, some employees,
especially those in Code Enforcement, felt he lacked an understanding of their duties and
therefore it was difficult for him to azticulate a cleaz, meaningful vision. The Office admits to
being in a reactive rather than proactive mode which enhances the effect outside pressures can
have on the Office. Some staff believe the Director is too sensitive to these outside interests.
This point will be discussed further under the Training and Development section.
Values
When asked about organizational values, CSO employees demonstrated a cleaz understanding of
the values. Although the divisions within the Citizen Service Office are different, managers and
senior leaders are very cleaz about the level of politeness, faimess, common sense and decency
they expect from the employees. These values aze not written down, but staffhave a thoughtfiil
grasp of the professiona]ism required and demonstrate these values. According to the survey,
about half the staff aze aware of the values they aze expected to demonstrate; 51 percent reported
the Directar and managers convey the core values of the organization while only 20 percent of
respondents stated they do not. Also, interviewees cited several examples where core
organizational values were, in fact, demonstrated by the I?irector and managers. These values aze
disglayed through such things as their willingness to pitch-in and help line staf� their flexibility,
their professionalism and their willingness to listen to staff concerns.
Communication
Within the CSO, communication at all levels could be improved. Survey results demonstrated a
split between those who agree that communication wiUvn the CSO is effective and those who do
not. Some interviewees expressed frustration about not being kept up-to-date or included in
management decisions. All-staff meetings aze not held frequently, though staff report
information is disseminated thtough e-mail and word of mouth. Interviewees also stated there is
a strong "us versus them" mentality throughout the organization. Despite these significant
2000 Saint Paul Ciry Council Research
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Perfom�ance Audit of the City of SaiM Paul's Cilizen SeN�ce Office
issues, 75 percent of respondents surveyed felt that mar�agers aze visible and in interviews staff
stated managers aze accessible and have an open-door policy.
Communication between the divisions is poor. It was reported that communication between the
Mazketing and Promotions Division and the Informarion and Complaint Division suffers because
Mazketing does not receive weekly updaYes from the Information and Complaint Division They
would like information and compiaint data identifying the questions and complaints received that
are related to Marketing events. Likewise, it was reported that Marketing occasionally fails to
update lnforatation and Complaint Division staff about marketing projects ihaz require
Tnformation and Complaint staff to give out rimes, locarions and other information about events
Lo the public.
It was also revealed that the InformaYion and Complaint Division has communication problems
with Code Enforcement inspectors. These problems concem such issues as if and when an
inspection occurred. Inspectors also believe that Information and Complaint personnel do not
understand what Code Enforcement does, and they are concemed about whether Information and
Complaint staff aze providing accurate informarion to the public.
Communication within Code Enforcement is still rather poor in soine respects, despite the
changing work environment. Some staff in Code Enforcement are not included in discussions
because of the past lustory of their role in the organirarion and their relationship with others in
the Division. In some cases, management and staff have conflicted over various aspects of a
program, such as Rental Registration and the conflict over whether to condemn a property if the
owner fails to apply for a registration certificate. Communication between Code Enforcement
clerical staff and Code Enforcement managers could be impmved. Certain staff feel they are not
heazd by management. Some Code Enforcement clerical staff also feel it is difficult to connect
with inspectors. They feel they aze not told thiugs unril the last minute wluch makes them feel
excluded and undervalued. Part of this problem may stem from the fact that the Vacant
Buildings Unit and all cletical stafF, with the exception of one person, aze koused in the City
HaIU Cour[house building, while other Code Enforcement staff are aY the Police DepaztmenYs
Eastem Patrol District building. Code Enforcement views the hiring of an office manager as a
posirive step in aiding communication between clerical staff and inspectors. The fact remains
that communication in Code Enforcement is vital particulazly given the changes and upheaval the
Division has experienced in the past few years. We also recognize tUat some of these
communication probiems ��ort, fram pe:s�r.a: .^^�fl:e*s ��n eanployees - conflicts wluch
have created an atmosphere that has hindered clerical staff's ability to communicate with one
another and other emnlovees �e Csu. — -
Stakehoiders
Positive stakeholder relationslrips aze essenriai to maintaining strong leadership. Leadership
must be able to identify its stakeholders and understand their needs, and incorporate those needs
into the departmenYs planning processes. Stakeholders are "auy person, group, or organization
that can place a claim on an organization's attention, resources, or output or is affected by that
output "" The quality of stakeholder relationships should be based on communication, fulfilled
�� Bryson, Joha Strategic Planning for Public and Non-Profit Organizations. Jossey-Bass, 1995, Page 27.
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Perfo�mmce Audit of the Cay oFSaint Paul's Citizen Se�vice Office
expectations, and information sharing. CSO's stakeholders include the Police Department, the
Fire Department, LIEP, Ramsey County, community organi�ations and elected officiais_ Many
of these stakeholders aze discussed in the Policy Compliance section. Overall, the CSO
maintains funcrional stakeholder relationships, though certainly communication could be
improved between some of them, such as the City Council and the CSO regarding complaints
and satisfaction razes. They also have not incorporated their stakeholders' nceds into their
planning processes.
Staff Recognition
57
Forty-svc percent of staff surveyed agree the Director and managers effectively recognize staff
contributions, while the remaining 54 percent either feel their managers do not recognize stafF
contributions or they neither agree nor disagree that contributions aze recognized Interviews
revealed staff recognirion is informal and takes the form of "thank you, good job" and "atta-
girls." Management has also held pizza parties and other informal gatherings to thank staff for
their work. However, interviewees were not awaze of any plans by senior leaders to create a
formal recognition system to recognize ouutanding contributions to the organization. Without a
formal, organized recognition system, recognition can seem azbitrary, and many staff may not be
awaze of any recognirion shown to employees, as the survey results indicate. T1us problem
extends faz beyond any one department; ihe City no longer has an employee recognition
program, which has left employees wondering to what e�ctent City leaders value their work.
Summary of Findings
1) Although a majority of CSO staff have not seen the mission statement, they do adhere to its
ideals and believe their mission is to serve the citizens of Saint Paul. There is some
disagreement in Code Enforcement as to whether the mission is enforcement or customer service.
2) CSO staff demonstrated a clear imderstanding of the values that are expected of them despite
the fact that the Office has no fornial values statement. Staff stated the managers exemplify the
values.
3) Communication between the divisions, between the clerical staff and the Director, and
between clerical staff, inspectors and managers is generally poor. There is a strong "us vs. them"
mentality within and between some divisions.
4) The Office does not have a formal employee recognition program, though they do recognize
staff through other informal means. The City also discontinued the City-wide recognition
program.
Recommendations
Recommendation #41. The CSO should revise its mission statement and involve all CSO staff in
its development. This could be done in conjunction with the development of an Offzce-wide
sbategic plan. See also recommendation #37 in the Planning section.
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Perfoituance Audit of the Ciq of Saint Paul's Citizen Service 06ce
Recommendation #42. The CSO Director shouZd schedule monthly a11-staff ineetings for
dissemination of information between divisions and staffrecognition. Unit-wide meetings should
also be held on a regular basis.
Recommendation #43. The CSO should establish an employee recognition program and make
recognition an important part of daily worlc Employees should be included in the formation of
the program to determine what types ofrecognition are most meaningful to staff.
Recommendation #44. Senior leaders should formalize the values of the Ofj'zce and integrate
them into formal customer service standards. Staffshould be directly imolved in this process.
Recommendation #45. CSO leadership should work with employees to develop a strategy to
mitigate the "us vs. them" mentality that occurs beiween staff. The OfJice should work to create
a sense of employee ownership of the CSO.
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Performance Audi[ of the City of Saint Paui's Citizen Service Office
TRAINING &
DEVELOPMENT
Quality Rating: ��
�Y]
KEY COP3CEPTS:
D Work Environment
a Employee Involvement
❑ Employee Evaluation
o Labor/Management Relationship
n Education & Training Resowces
Employees in successfui organizations aze provided the tools they need to deliver quality
services. T4iese same employees are given encouragement and the resources to develop a set of
ski]ls that allows them to contribute effectively to the organization. For example, if an
organization values continuing education for its employees, it will provide workers the
opportunity and resoucces needed for them to attend classes, seminazs and in-house trainings. A
successful organization also creates an environment which increases the growth and well-being
of its employees. Finally, organizations should link the training of their employees to the
organization's goals and priorities. This connection should occur through the development and
implementation of a long-term strategic plan tied to basic organizational values.
CSO Work Environment
Code Enforcement Merger
The merger of Code Enforcement with the Citizen Service Office has resulted in a number of
perceived and reported improvements in the Division's work environment. Almost all the
employees interviewed reported the motale and leadership of the Division have improved. Staff
credit much of this improvement to a change in Code Enforcement management and that the
CSO has provided a much more supportive environment than the one that existed under the Fire
Department. Also cited as a major improvement was the creation of the Supervisor of
Inspections position, which is a level of management between the Manager of Code Enforcement
Programs, who oversees the entire Code Enforcement Program, and the program supervisors,
who are assigned to individual areas in Code Enforcement. Staff expressed they appreciate
having someone with the technical knowledge about Code Enforcement inspections in upper
management and can act as an intermediary between front-line staff and CSO senior leaders who
do not have Code Enforcement backgrounds. They also reported the Supervisor of Inspections is
very accessible and that it is beneficial to have the Supervisor present at the Police DepartmenYs
Eastern Patrol District O�ces and available in the field. The facility at the Eastem Patrol
District is reported to be a significant improvement over the previous offices where the Division
was housed. In the new facility, there is more space and an open floor plan which allows
inspectors to easily talk to one another.
Despite these achievements, there have been a number of problems created by the merger. Staff
reported the three mergers it has experienced in ffie last five years have created a tremendous
amount of instability and distraction for staff. Few Code Enforcement staff members identify
themselves as employees of the CSO and aze hesitant to get too comfortable with this label.
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Performaace Audit of the City of Saint Pw2's Civzen Service OAice
More importantly, many Code Enforcement employees feel their mission is incompatible with
rest of the CSO, as discussed previously in the Leadecship section. Code Enforcement
employees claim the customer service mission of CSO contradicts their mission of enforcement.
While we do not believe these concepts aze necessarily mutually exclusive, we did find enough
evidence to conclude that this difference in philosophy creates significant tension and a very real
discortciect between Code Enforcement and the rest of the organization.
Another difficu1Ty created since the merger is that Vacant Buildings Unit and clerical staff aze
located downtown in City Hall and are separated from tUe inspectors who aze at the Eastem
District Patrol Offices. This situation has created communicarion and morale problems for the
Division. Traditionally, there has been a high degree of collegiality among inspectors and the
rest of the staff. FIowever, it was reported that since the staffhas been split apazt, camaraderie
has sufFered and the Code Enforcement clerical stafF feel especially alienated &om the rest of Yhe
Division. Regulaz communication between different units of the Division has beere made more
difficult. Perhaps the best indicarion of this fact is the Division has not conducted an all-staff
cneeting in sis months. Inspectors did report, however, that they aze pleased with their new
location, despite the communication problems.
Political Influence
It was frequently mentioned by senior leaders and &ont-line staff that the CSO is wlnerable to
polirical pressures. Several respondents reported that Councilmembers, the Mayor's Office and
the media have a tremendous influence over the practices and plans of CSO. Although it is
entirely appropriate for these parties to take a keen interest the operarions of government
agencies, many front-line employees clauned this involvement was overly meddlesome and was
often motivated by something other than the public good. The work of CSO, by its very nature,
is reacrive in that most of the acrivities they undertake aze either customer service driven or in
response to complaints. Therefore, it is not surprising that crises, stories in the newspaper and
Council initiatives aze perceived by staff as the primary drivers of work in the Office. However,
the CSO lacks the ability to sufficiently navigate this political environtnent because it does not
undertake planning, results measurement or stakeholder analysis that would allow it to be more
pro-active. If the Office were to have a clear vision of what the organization was Yo be, they
would be able Yo better manage the various demands on their services and operations.
Diversity
Weli over half the employees in the CSO (61 percent) feel senior leaders create an environment
which is respectful of employees regardless of their race, ettmicity, class, gender, age, narional
origin, seacual orientation or physical ability. However, 21 percent of employees surveyed did
not believe this was the case, and 18 percent neither agreed nor disagreed that the environment is
respectful of all employees. In our interviews, some staff reported that racial or class intolerance
affected their work environment. They believed they were not respected by others in the
organization because they held low ranldng posirions.
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Employee Involvement
61
Most employees in the CSO feel they have an opportunity to contribute to decisions made abouL
their work, although no formal mechanism exists for this to be done. Almost all staff who were
interviewed reported that CSO senior leaders were very accessible. Most of the Office's
managers have an open door policy and informally check in with staff daily_ Less is done,
however, to active]y solicit the suggesrions and opinions of employees. The Code Enforcement
Division did seek out volunteecs to assist in writing a procedures manual. i3nfortunately, only
one person volunteered for this projec[ and the manual was never completed_ Finally, it should
be noted that CSO clericai staff and Information and Complaint employees fcel, much more so
than CSO staff in general, disconnected from decisions which impact their work.
While the CSO appears to have an informal system for employee input, it should be noted that
there are certain benefits to having a more formal system. An informal system may seem
arbitcary, and may miss input from some staff who aze not as comfortable approaching a
supervisor or manager in an informal setting. A more shuetured setting can also create an
environment in which employees feel more vatued as they know management has made it a
priority to gather feedback from staff, and have ach�ally solicited it, rather than just waited unril
stafF approached them with concems or ideas.
Performance Expectations and Annual Evaluations
Formal, written performance expectations do not eacist in the C50. I-Iowevet, staff feel they
understand the expectations of their supetvisors and they have leamed these ea�pectarions through
experience on the job_ For instance, the reports issued by Code Enforcement inspectors are
reviewed on a daily basis by their immediate suparvisors. Serious concem was eapressed by
staff, especially those in Code Enforcement, that formal, written performance expectations would
]ead to performance quotas. A procedures manual was created by a previous Director of Code
Enforcement and was being updated by an employee; however, this project was lazer dropped.
At the moment, it appears the manual is no longer being actively used by staff.
Annual performance evaluations of employees have not taken place in the CSO for three years.
Before the practice was discontinued, the Office used the standard evaluarion process and forms
provided by the City's Human Resources Department. The Code Enforcement Programs
Manager stated he would like to commence performance evaluations for the Division's clerical
employees, but has been waiting until an office manager was hired. This lack of evaluation is
pmblemaiic because employees are not getting feedback on their performance nor do they know
what is expected of them.
Labor-Management Relationship
For the most part, the labor management situation in the CSO appears to be similar to the rest of
the City. In the past year, only two significant labor relations issues stand out. When the Code
Enforcement IJivision introduced the Freelantz data base system, inspectors were required to
perform all data enhy for their reports. This issue caused great distress among inspectors who
aze not trained in keyboattling. As a result, the inspectors filed a labor contract grievance to stop
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Perfomiance Avdii ofthe Ciry ofSaint Pau!'s Ci6zen Service Office
trus practice, arguing that data enhy is not part of the duties for the Code Enforcement inspector
classification.
The other significant labor relations issue that has faced the Office in the last year was a
grievance filed by Code Enforcement inspectors that a political appointee was worlang out of
title as an inspector. T'his appointee was charged with overseeing the Dayton's Bluff Initiative
but was involved in some day-to-day inspection duties related to the project. This issue was
complicated because the individual was reportedly very �mpopulaz with &ont-line staff. The
grievance became irrelevant when the political appointee was fired from lus position due to
reasons unrelated to this issue.
Training
Senior leadership has made haining a high priority and provides many training opporlunities far
staff. The Office's training opportunities are perhaps best developed in the Code Enforcement
Division. The Division's employees are encouraged and provided resources to take job-related
training in the comm�utity college system_ Many also attend art annual conference at the
University of Minnesota and a regional conference in Madison, Wisvonsin. It was reported the
Division had provided in-house haining in the past but this practice has been discontinued in
recent years. Most Code Enforcement inspectors take advantage oftraining; however,
interviewees reported junior employees do not utilize ihe opportunities as much as they should.
Other CSO staff have simelar chances to participate iu training, but they appeaz not to take
advaniage of them to sazne eartent as their Code Enforcement counterparts. This may be paztly
explained by the fact that c[ericai employees and other CSO employees have less-developed
professional necworks when compazed to Code Enforcement inspectors.
New staff in the CSO aze trained through mentoring done by senior emptoyees. In the Code
Eaforcament Division new inspectors "ride-along" with experienced stai�'for their first six to
eight weeks. New inspectors aze also required to study the I.egislative Code. Other CSO stafF
are also irained through paztnering with senior staff.
Summary of Findings
1) The mission of Code Enforcement appears to conflict at rimes with iize overait �issi� a£;; �
..U� ?�.�s�?E?*:e�� ;�,onka9butingLo s_ome tension between the divisions within the CSO.
2) The Citizen Service Office, particu[az[y its Code Enforcement Division, encourages training
and provides resources to staff to attend various training sessions and conferences. Some staff,
such as clerical support staff, are less inclined to attend haining, although they are �couraged to
do so.
3} Severat staff commented the work environment of the Code Enforcement Division has
improved since it was administratively moved to the Citizen Service Office. Since the merger,
some problems have been created as a result of ihe Division's staff being separated from each
other.
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Performance Audit of ffie Cty of Saint Paul's Ctizen Se�vice Office 63
4) Code Enforcement seems particulaziy susceptible to outside influences from sources such as
the City Council, Mayor and the media They have not yet found a way to balance the demands
of the various interests_
5) Code Enforcement used to have an employee manuai that contained valuable information on
standard procedures and requirements. It appears this manual has it been updated recently nor is
it being used.
6) Opporiunities for staff to contribute to decisions made about the operations and procedures of
the CSO are inadequate and informal at best
7) The CSO has not done employee performance evaluations in over three years. Employees are
not getting regulaz feedback on their performance.
Recommendations
Recommendation #46: Consistent with recommendatinn #41, the Citizen Service Offzce shouZd
undertake an e, fj'ort to redefine their mission, particularly because the missiorrs of Code
Enforcemenf arui the rest of the CSO appem incorxsistent and possibly incompatible. The Off ce
needs to do a better job of integrating these two functions. If the missions cannot be aligned,
serious consideration should be given to whether Code Enforcement should be located elsewhere
in the City s governmental strucnrre.
Recommendation #47: As described in recommendarion #37, the CSO must pursue strategic and
long-term planning in order to be less vutnerable to political influence and tess apt to have its
work driven by crises.
Recommendation #48: Senior leaders of the CSO should create a process by which employees
can be more directly ittvolved in decisions made about their worlc
Recommerrdation #49: The CSO should develop a plan to house the entire Code Enforcement
sta$in one tocation. Communication cmd the morale of clerical staff woutd improve. The fzles
downtown should be moved fo where inspectors are located because of the inefficiencies caused
by the current arrangement.
Recommendation #S0: Code Enforcement should review and revue its employee manuat. A
work group representing senior leaders, inspectors, and clerical staff should be resporuible for
this effort. A revised mcmual would help the division ensure consistent enforcement arrd cod�
existing performance expectations for Code Enforcement emptoyees.
Recommendation #Sl: The CSO should reintroduce performance evaluations. To this end, the
CSO should undertake an effort which irrvolves all stafJ`'to develop an appropriate evaluation
process and forms for each of the functions in the Office. While the CSO may wish to continue to
use the Human Resources format, it may be in their interest [o customize the form to reflect the
work done by the d�erent functions within the Offzce. After the new process is developed, CSO
leaders should beg'm conductingperformance evaluations immediately.
2000 Saint Paul Ciry Couixil Ruemch
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Perfotmance Audit oflthe City of Saint Paul's Citizen Se�vice Office
Recommendation #52: CSO senior leaders should determine why some stafJ'are less inclined to
attend training. Pmticular uttention should be paid to members of the clerical staff and less
senior code enforcement inspectors who reportedly are less Iikely to take advantage of these
opportunities. Senior Ieaders should consider providing an fncentive for slaff to take advantage
of training by making this an important factor in evaluating an emp[oyee's performance. Staff
should also be encouraged to pursue training that would advance them professionally and be
rewm�ded for their successful pursuit of career-track training.
2000 Saint Paul City Council Ruetvch
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Perfortnance Audit of the City of $ain[ PauPs Citizen Service Office
INF�RMATION
& ANALYSIS
65
KEY CONCEPTS:
� Data Collection
❑ Analysis of Data
❑ Effective Use of Automation Systems '
_.� "`�' ---."---��t.�:__._._�_.._.._.__:...�a._
Quality Rating: �
Information gathering and analysis aze vita] fimctions for any arganization. Quality organizations
should collect data on customers, services, employees and costs. Organizations should also
concentrate on collecting and using data that relate to their goals and plans.
Collecting data serves little purpose if it is not analyzed and used to make improvements. It is
very important to extract the lazger meaning from data to support evaluation and decision-
making at various levels throughout the organization. Analysis should employ the examination
of trends, projections, comparisons and cause-effect correlations. Using data and analysis
systematically is impodant in properly setting goals, deve]oping plans and allocating resources.
The information collected and analyzed should be used throughout the organization and used to
evaluate the organization and its progress. Information is essential in monitoring goals and it
should play a key role in the decision-making process. Finally, organizations must have
information systems which are useful to staff and provide them with the tools they need to
collect, retrieve and analyze data.
Data Collection
The work azeas in the CSO, in particular the Code Enforcement and the Information and
Complaint Divisions, have the potential to collect a substantial amount of data about their
operations. The Office cunently collects some data but these efforts have been limited by poor
information systems and inconsistent information gathering. We exaznine below the data
collection efforts of the divisions within CSO.
Information and Complaint Division
The Information and Complaint Division collects data on complaints which the Office receives.
The Division tracks the number of complaints, the type of complaint, the date the complaint was
received, and the City department responsible for resolving this complaint. Based on these
complaints, the Division also generates reports for complaints that have taken more than five
days to resolve. These five day late reports aze distributed to department and office directors
responsible for seeing that their departments address the complaints. Very limited customer
satisfaction data is collected, and it is not compiled or analyzed.
Code Enforcement Division
There are numerous activities and actions the Code Enforcement Division undertakes which have
the potential to a robust sources of data. Code Enforcement has a history of collecting data about
2000 Saint Pau] Ciry Council Ruearch
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PerFormance Audit ofihe City ofSaint PaW's Citizen Service Office
its activities, often collecting and tabulating it by hand. Recently, data collection efforts have
decreased for two primary reasons: I) the Division has inadequate computer systems which are
unable to reliably collect, store and retrieve data; and 2) there has been a change in leadership
within the Division which has resulted in a de-einphasis on data cotlection. Despite the
dec:reased data collection in the last fiew years, the Division does collect the number of
inspections conducted, the type of inspection, the address of the property and the miteage driven
by inspectors. This information is taken from the inspectors' work sheets and entered into the
EXL system by the clericai staff.
Senior leaders report that the EXL complaint data base system is so poor at managing and
extracting data that the Division cunently pays little attention to the data collected. In their
opinion, doing so would be a wasted effort as long as the CSO uses the data bases currently in
place. However, this change in practice was not communicated to their stakeholders, thus many
stakeholders, such as the City Council, were under the impression they were continuing to report
data and provide meaningful information.
Two sub-units of Code Enforcement, the Vacant Buildings Unit and the Rental Registration
Pmgram, collect their own data. Arguabty, the Vacant Buildings Unit collects the best data
within the CSO. The Unit trecks the nwnber of vacant buildings registered, their location, the
number of inspections performed at the unit, and the numbet and types of citations written. In
addition, the VBU tracks the status of vacant buildings based on the type and condition of the
property. The Rental Registration Program, which is now a year old, reportedly collects data on
the number of properties registered and the amount of fees collected, though at the time this audit
was being prepazed, their computer systems were not functioning as hoped and the Rental
Registration Program was not running at its optimum level.
Marketing and Promotions Division
The Mazketing and Promotions Division collects customer data and basic information on the
economic impact of its projects. The Division's film staff collect data on the amount of money
spent as the result of films produced in the City. This data is disaggregated based on the type of
film, whether it is an independent, motion picture or a commercial project. The Division also
collects customer information through business surveys, web hits on City web site, and visitor
and events survey data.
ti`'aia v�Q,'
Similaz to the Office's data collection efforts, the analysis and use of the data in the CSO is
generally not well-developed and it varies across divisions. It is our belief that if better data was
collected and analysis were done, it would inform planning activities and decision-making. With
better data collection and analysis, CSO leaders couid be more proactive and less dependent on
crises management. 1n addition, with improved data analysis, elected officials would have better
information for introducing initiarives and making decisions.
The Information and Complaint bivision provides, based on calls received, feedback to other
Departments about particulaz problem azeas which need to be addressad. For instance, the
2000 Saint Panl Ciry Council Resemch
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PerFormance Au&t of die Ciry of Saint Paul's Cifizen Service O&ce 67
Division will inform the Public Works Department that they aze getting a lazge number of
complainu about potholes on University Avenue.
The Code Enforcement Division has performed almost no analysis of the data it collects on its
regulaz functions. The Division did have a research analyst position which was removed from
the City's Budget in 2000 and replaced with an office manager posirion. Currently, there is no
one in the Office with primary responsibility for atl of the Office's data collecrion and analysis
activiries.
Little data analysis takes place far planning, unplemerning and evaluating special projects and
initiatives, such as the Dayton's Bluff Initiative and PP2000. For example, when the CSO
worked with the City's Housing Information Office to establish the boundaries of the Dayton's
$luff Iniriative, data stored in the Office's EXI, system was not used to determine the scope of
the project. Rather, the CSO relied on suggesrions from inspectors to determine the boundaries.
Similazly, the properties selected for PP2000 were chosen based on anecdotal evidence. Little
effort has been made to systematically track the results of special initiatives. The reason given
by senior leaders for this lack of analysis has been that the data bases currendy used by CSO,
EXL and Freelantz, are inadequate_ Interestingly, however, there has been no effort to track
results of special initiatives using other daYa base software that would be capable of analyzing
data of this natiue, such as SPSS or Lotus.
Information Systems
The CSO's information systems, by which we mean the computer and communication hardwaze
and software, were consistently rated as poor by both senior leaders and stafF. The Office
appears to have adequate computer hazdware and has made efforts to improve communication for
Code Enforcement inspectors in the field with acquisition of NEXTEL phones. However, as we
have already noted in this section above, the EXL complaint system, which serves as the Office's
data base, and the Freelantz system, which was developed to temporarily replace the EXI,
system, are believed to be inadequate by everyone we interviewed.
The EXI, system was created in 1979. The view that the system is unreliable and no longer
usefiil for data collection and analysis has fostered an attitude that data analysis cannot take place
given the state of EXI.. Furthermore, Technology and Management Services has stated it will
not support the EXL system after 2001. As a resuit, all data analysis in Code Enforcement has
appeared to have completely ceased. As mentioned earlier, some data collection and reporting
does take place in the Code Enforcement Division, but most data are not analyzed for use in
dccision-making or the development ofthe divisional plans or strategies.
To address the deficiencies of the EXL, system, Code Enforcement has been worldng on
developing softwaze created by a company called Freelantz, to be a temporary reQlacement for
EXL until the new data base was established (possibly the AMANDA system). However, the
development and convetsion of EXL to the Freelantz software was poorly planned and has not
been completely implemented. Tlie software's development under the direction of a former
Director of Code Enforcement did not involve staff: Severai front-line employees reported that
if Code Enforcement inspectors were involved in the creation of Freelantz's, many of the
pro�ams flaws would have been avoided. Many interview subjects with laowledge of the
program reported that Freelantz performs fewer functions and takes more time to operate than the
2000 Soint PouT Ciry CouncJ Resewch
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68 Performance Audit offfie Ciry of Saint Paui's Citizen Se�vice Of£ce
azchaic EXL system. Currently, the new system is being used on a trial basis by the Vacant
Buitdings Unit. The Rentai Registration Program is utilizing another system that requires
outside support, and therefore due to a desire to keep expenses ]ow, this system is not fully
functional either. The resulting problems with implementation mirror those resulting from the
Freetantz software. The Director of Code Enforcement states that the failure of the Freelantz
software to function adequately will result in the conveision to the AMANDA system sooner
than expected.
Both the Freelantz sofrware and the AMANDA system require Code Enforcement inspectors to
perform data entry. In the past, data entry on the EXL system has been done by Code
Enforcement clerical staff. This has resulted in a discontent among some inspectors who do not
have keyboarding skills. As mentioned in the Training and Development section, the inspectors
have filed a grievance claiming that data entry is outside their regulaz duties and therefore
violazes their labor conhact.
Summary of Findings
I) The CSO in general collects very little meaningful data about its operarion, and performs even
less data analysis. Tixe Vacanf Buildings Unit and Marketing and Promotions are the two anas
that perform some data collection and analysis, and the Informaiion and Complaint Division
creazes a five-day late report based on complaint resolurion time. The CSO has been waiting to
convert to the AMANDA systeac until the other offices implementing the system have worked
out any problems in the ptogram.
2) The new computer systems the Office fias been trying to develop aze proving to be wcefiilIy
inadequate and inoperable. The cutrent computer system is outdated and can no longer pmvida
accurate information.
3) Code Enforcement no longer has a staff person dedicated to data analysis. They decided
dedicate the FTE (full-time equivalent) to the newly created position of office manager instead.
Recommendateons
Recommendation #53: The CSO should convert to AMANDA ar quickly as possible. The O�ce
iws piannecl to adapPlui�Y.:fi afE L�F r,�; h:.r.'r�ra �sri2r.�2 x::h :he s�s!e• a�, rh.e hope
the O�ce could learn from LIEP's experience. However•, we believe this would be a misla&e. As
our fzndings demonstrate, this O�ce co�tt[e meanzng/ui mforman`on a'aauriF�wori�i
and performs almost no data analysu. eLs an explanation for this fact, almost everyone has
bZamed the EXL system for this problem. tLloreover, lhere is every indication that LIEP hos been
successful in implementing AMANDA. Therefore the CSO should co�zvert it's databases to the
�IMfINDE1 system as soon as possible.
Recommendution #54: The CSO should hire an employee whose primary duty it is to perform
research and analysis. There are a number of ways to implement this recommendation. An
employee eould be hired to serve all four divisians of the CSO. Alternatively, the Code
Enforcewnnent or Information and Complaint Division could hire someone who splits their duties
between ruearch, analysis and other work activities in the Office. Another consideration might
be that, eonsistent with the O�ce's 2000 strategie plans, this staffperson could poteRtially do
2000 Saira Pau1 Ciiy Couneil Rese�ch
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Perfortnance Audit of the City of Saint Paul's Cirizen Service Office
data analysis for other City Departments and O�ces in an eff'ort to improve services and
programs City-wide.
69
Recommendation #55: The CSO should immediately begin data collection and analysis for
special initiatives which it is currently undertaking, such ns PP2000 and the Dayton's Blufj
initiative. Even ifEXL or Freelantz systems are inadeguate to collect data and perform analysis,
the Office could do meaningful anaZysis on simple spreadsheets and statisricalprograms, such as
Lotus 1-2-3 and Statistical Program for the Social Sciences (SPSS).
Recommendation #56: The CSO should spec� data coltection, analysis and evatuation
strategies in the plan for any new initiatives. This aspect of the plan should specify the goals of
the program, how they will measure whether these goals have been achieved and who will do the
measurement.
2000 Saint Pau! Ciry Cormcrl Research
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70 P Audit of t he City of Saint PaW's Citizen Service Oftice
IMPROVEMENT �YCONCEPTS: °
❑ Identification of Potential Improvements =
❑ Implementation oflmprovements =
PRO CE S SE S � Evaluation of Improvement Efforts _
Quality Rating: �
T'he improvement process occurs when an organization considers the design, management and
improvement of inYernal organizational processes. Similazly, the improvement process should be
part of the daily work within the organization, and should seek to eliminate problems at the
source and be driven by opportunities to improve. Tmprovement practices are the methods
identified in the improvement process to enhance operations - the implementation stage. Many
organizarions engage only in the implementation (improvement practice) stage, and fail to go
through the planning and evaluation (improvement process) stages. The improvement process
must contain planning, implementation and evaluation, all of which require information and
methods for assessing progress. All practices of an organization should be continually evaivated
to identify problems and successes. The improvement process is charted in the following
diagram.
Identtfy
Deficiencies
in Yhe
Current Process
Idenhfy Methods to
Address Deficiencies;
Select the Most
Appropriate
Plan Implementation
of New/Revised
Method(s)
�
Evaluate the
Effectiveness and Implement the New/
Efficiency of the Revised Method(s)
New/Revised Method
2000 Saint Paul City Counci[ Research
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Improvements in the Citizen Service Office
71
While the CSO is attempting to incorporate a number of improvement practices, these
improvements did not come out of an overall improvement plan. Rather, they are a reaction to a
given situation, and little consideiation is given to the loag-term effects of the changes. A key
component of the improvement process is evaluation of the improvement effort Did it
accomplish what was intended? Why or why not? What should be modified? The CSO does
not do this type of evaluation of their improvemern efforts. Most review is lazgely anecdotal and
based on whether compiaints aze down and the reaction of elected officials. They also receive
some feedback &om the Intemet site. Marketing may do more evatuation by looking at
attendance at events, methods by which people found out about the event, money generated by an
event, and so on. Overall, however, the CSO could do a better job of tracking their improvement
efforts.
The CSO evaluates their vendors only through the bidding process. The Office tracks complainu
and discussed them with their vendors, as well as does spot-checks on the contractors who board
vacant buildings for them and those who cut tall grass and weeds when an abatement is ordered.
The following paragraphs discuss the improvement practices the CSO has attempted. Again,
these improvements were not part of a planning proczss, nor have they been evaluated as to their
effectiveness.
Code Enforcement Division
Code Enforcement has made a change to the structure of the Division. An Office Manager has
been hired to coordinate activities, staff have begun some job-sharing, and the Division has
placed a clerical srtaff inembet at the Eastem Patrol District OtT'ices where most of the inspectors
are located. Unfortunately, the Office Manager position comes at the expense of a data analyst, a
posirion that could be very valuable to Code Enforcement in deteimining the effectiveness of
various progrems, as mentioned previously in the Information and Analysis section. Code
Enforcement has also been involved in creating the Dayton's Bluff Iniriative and assisting with
Weed and Seed programs, such as the one in the Raikoad Island commimity. Again, these
programs were not necessarily of Code Enforcement's own initiative, but Code Enforcement
worked with those interested in creating the programs to cany them out. They continue to look
ai ways to reduce the number of chronic problem pmperties, whether through case management
or woridng with owners of these properties more closely to remedy the problems.
Code Enforcement and the Police Department have also devised an initiative calied the Red Cazd
program to assist with identifying abandoned velucles. The Police Deparnnent places a red card
on vehicles that appear to be abandoned requesting the owner to move the vehicle, and notifying
them that it may be towed. The Police Department and Code Enforcement have found this to be
an effective way to gain owner's cooperation and avoid having to tow numerous vehicles.
The Vacant Buildings Unit is also actively looking for ways to eliminate long-term vacant
buildings through such activities as incentives to tear down or rehabilitate these properties. Other
improvements include placing the vacant building list on the Internet.
Z000 S¢intPavl Ciry CounciT Research
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Perfo�mnance Audit of the Ciry of Saini Pau!'s Ciuzen Service Office
Marketing and Promotions Division
The Mazketing and Promotions Division is continually trying to find new, inexpensive ways to
promote events and increase participation. They have created an e-mait infrastructure to mazket
City events directly to employees of downtown businesses. They aze also working with existing
attractions and encouraging them to not only market theu attractions, but to mazket Saint Paul as
well. They have partnered with radio stations to encourage their presence at events, which resulu
in on-air, in-kind advertising. Marketing and Promotions is also placing a greater emphasis on
mazketing events through the Intemet, such as the ilovestpaul.com website, which is a
paztnership with other Saint Paul organizarions and businesses. They are also trying to work
morz directly and lend their expertise to fhe neighborhoods to mazket their evenu, rather than
simply pmviding them the funding and ]eaving the organizations to figure oui what to do to
promote their events. For e�mple, a neighborhood organization can call Marketing and
Promotions staff, and the staff will provide them with contacts aY businesses and organizations
that might be interested in worldng with the neighborhood group to market their neighborhood
events. They will also try to help the neighborhood groups find oYher sotaces of revenue beyond
the City, as well as encourage media sponsorship of local events.
Mazketing staff have also provided training session for production houses that come to frlm in
Saint Paul that helps them better prepare for filming here. Staff took the initiative to make an
unscheduled presentation at a seminar for production companies and went over common
qaestions and situations production companies face when they come to Saint Paul. Staff also
produced an easy-to-use reference guide that covers oommon sitvations an@ problems such as the
process for getting parking meters hooded, azranging for traffic detours, the fees chazged for
special services, and other pertinent concems and situations. After presenting and preparing the
reference guide, staff aoticed a decreased levei of shess and time spent amanging for filming and
a smoother filming process.
Information and Complaint, City Clerk/Records
The Informarion and Complaint Division now has a form far walk-ins to fill out when they come
in to report a complaint, rather than having a staff person take the complaint directly from the
individual. It appeazs this new practice benefits the employees, but it is not as clear as to whether
this benefits the customers. However, it does create a written record of the complaint, whicfi
III1Y g1VC SOIII@ 35SUL3DCC TO Y[1C CUShOIl'ICP t`'[58i f� w7u'�5c ia'v uuu ifinw, Sr::�'.:3;`j. Tti� �S?�'
Clerk/Kecords Division does not have any appazent impmvement processes in place. Other
Summary of Findings
1) Overall, most evaluation of improvements in the CSO is based on anecdotal evidence and is
very informal. The evaivations are not used to ruake ptaos for the OflSce.
2) Code Enforcement has engaged in some improvement efforts such as prograznmatic and
staffing changes. However, many of these improvements are reactive rather prevenrive measures.
The CSO has not prepared any concrete plans to fully itnplement the changes and artricipate any
potential problems resulting from the changes.
2000 Saiu Pau1 Ciry Council Resemch
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Perfo�mance Audit of the City of Saint Paul's Ci6zen Service Office
73
3) The Mazketing and Promotions Division is perhaps the only division in the CSO that engages
in any planning and evaluation of their improvement efforts.
Recommendations
Recommendation #57. The CSO should engage in a more formal improvement process that
includes planning, implementation and evaluation of the improvement ejforts. By engaging in an
internal process to idenrify improvements, pianning the implementation of the improvements, and
evaluating their impact, they will move away from the reactive mode to a more proactive
errvironment. The new hire to perform data analysis, suggested in the Information and Analysis
recommendatioru, should be heavily invoZved zn this e,ffort.
2000 Saint ParJ City Cowci! Research
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74
CUSTOMER
FOCUS
Quality Rating: �'�`[%a
Performance Audit of the City of Saint Paul's Ci4zen Service OfSce
KEY CONCEPTS:
❑ Customer ldentification & Knowledge
❑ Measuring Customer Satisfaction & Needs
❑ Customer Service Practices
o Customer Service Standards
Attention to customer needs is critical for achieving organizational excellence. Through the
creation and management of relationships with their customers, organizations which excel in
customer satisfaction obtain informaYion on customer service requirements, expectations arrd
satisfaction. Knowing the requirements of its customers enables an organization to develop
standards which are designed to enhance customer satisfaction.' For these standards to be
effective, they must be understood and followed by everyone in the organization.
In recent years, the CSO has placed a great deal of emphasis on providing good customer service.
The vision for this effort comes from the Mayor and the Ilirector. However, since incorporating
the Code Enforcement Division into the Office, the philosophy of providing good customer
service has been strained by the fact that Code Enforcement is an enforcement agency.
Inspectors and managers have for years wrestled with the notion of customer service being the
parainount objective. Other divisions within the Office do not struggle with this notion to the
same degree. However, there are srill some azeas in which the Citizen Service Office could
improve. Organizarional improvement requires that staff understand the impoRance of customer
service training and that good customer service skills can be leamed and enhanced.
CSO's Customers
Most CSO staff agreed that anyone requesting services or information, whether intemal or
eacternal, is a potenrial customer. However, with the aforementioned exception, Citizen Service
Office employees indicated through the survey a general lack of agreement as to who aze their
customers. A list of customers Yhat were identified include: the general public, citizens of Saint
Pa�z?, r*o�P*?y oevneas, businesses, neighborhood groups, City workers and elected officials.
While this list is very broad it does shed some light on the difficulty employees face when trying
ozi�nn�i�«u';z c:ga^..:�^;:�.y �^c..'�rt:�S�Zvt� rn�c;-.s��st��axers ,�h.auld�m when each
division within the Office is chazged with different responsibilities. Interviewees stated that
citizens are perceived as customers by ali the divisions because they provide the Office with
infonnal feedback as to how well the Office is doing its job. This is aa important criteria for
them when deciding who their customer is because these individuals provide the organi�ation
with information pertaining to customer sarisfaction and needs.
�$ In many cases, an organization's customers may be the same as their stakeholders. However, customers and
stakeholders each provide the organization with a unique set of infocmatioq and the relatio�ship behveen [he
organization and its customers versus the relationship between the organization and its stakeholders is different. For
more discussion of stakeholders, see the Leadership section.
2000 Saint Pau[ Ciry Council Research
Perfo�mance Audi[ ofthe Ciry of Saint Paul's Citizen Se[vice Office 75 0 ' ^� �
Code Enforcement Division
Survey respondents within Code Enforcement overwhelmingly chose the citizens of Saint Paul as
their customer. Many aiso view the general public, City of Saint Paul employees, businesses and
commimity groups as customets. There is some confusion about whether or not property owners
with code violations should be considered customers.
Information and Complaint Division
The Infomiation and Complaint Division also identified the public and citizens of Saint Paul as
its primary customers. Because they also interact with the City Council regarding neighborhood
problems, they identified the Council as a customer as well. This Division has tlte unique
responsibility of serving walk-in visitors and phone-in customers. In fact, systems have been
developed to deat with these individuals in a friendly and efficient manner. Walk-ins aze served
by counter personnel and aze given a complaint sheet to fill out and phone-ins have their
complaints entered into the computer and passed on to the appropriate City agency.
City Clerk / Records Division
This Division believes that people requesting copies of City documents aze their primary
customers. City departments and the City Council are identified as customers who aze served
less frequently, but who aze still customers. The City Clerk also pmvides information about
official City documents, local elections, petirions, and lustorical data to researchers.
Marketing and Promotions Division
Marketing and Promotions staff feel their customers aze the residents, visitors and film
production companies that come to Saint Paul to attend events or film movies. The Mayor's
Office, the City Council and City departments were reported to be customets as well. This
Division allocates a certain dollar amount for mazketing and promotions efforts in each City
wazd, which involves working with Councilmembers and their aides to detetmine how the money
should be spent. The Division must also work with other City depariments and organizations
which promote the City to coordinate City services for events occurring in Saint Paul.
Mazketing and Promotions also provides the City's website development services. The City's
website provides useful information, but is somewhat difficult to navigafe for people less familiar
with the City's governmental struchue. Each City departmenYs website has its own look, rather
ffian a standard structure that makes it easier for a viewer to recognize it as being a City of Saint
Paul web page. 'fhe CSO's own website is useful and contains various complaint forms, meetSng
information, and links to other useful sites. However, it does not have as many linlcs as might be
usefiil for citi2ens and visitors looking for infoimation. The Citizen Service Office is often the
first place people go to seek information. Therefore, their website has the potential to be one of
the most valuable of the City's pages. Just as people call the CSO when they are unsure of what
department to call, many people may constilt their web page first in the hope of finding a link to
the information they aze seeking. People aze also becoming more technologically sophisticated
and aze finding it easier to submit information requests and complaints via e-mail.
2000 Sa�t Paul Ciry Crnmcil Research
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� 6 Perfo'manc Audi of tlie Ciry of Saint P CiUZen Service OtSce
Determining Custo�ner Needs and Satesfaction
Good customer focus involves determining what specificaily the customer needs and how
satisfied the customer is with a product or service. The CSO identifies what its customers need
tluough responding to complainu and talking with property owners, businesses, visitors to the
Office and community organizations. However, only 35 percent of respondents surveyed fett that
CSO staff frequently monitor for changes in customer needs, and 41 percent neither agreed nor
disageed. Similazly, forty five percent of respondents believe the Office is responsive to
changes in customer needs, while 41 percent neither agreed nor disagreed that the Office is
responsive. Ttzese nurrtbers can be explained by the fact that although staff say they determine
customers needs by verbal communication and letters from cirizens, the Office has no formal
mechanism for gathering customer needs information or sharing customer responses with staff.
InformaLion is difficult to gazher from the cutrent computer systems and the Office does not hold
staffmeetings where it wouid be easy to share and discuss customer informarion.
Customer sarisfaction is admittedly a more difficult aspect for the Office to ascer[ain than
customer needs. Beyond limited call-backs, the Office does not have a formal survey instrument
or process to ascertain levels of customer satisfaction. In fact, only 24 percent of staff surveyed
felt the Office monitors for changes in customer sazisfaction, while 27 percent felt they do not
monitor for changes, and 59 percent neither agreed nor disagreed. Only 28 percent of
respondents felt that the Office was responsive to changes in customer satisfaction, with 14
percent reporting they are not, and 57 percent neither agreeing nor disagreeing. The Information
and Complaint Division does not pass along its very iimited customer satisfaction results from
call-backs to other CSO staff or to the Code Enforcement inspectors. Inspectors remarked that
they only receive customer satisfaction results when they are negative and the feedback is usually
in the form of an angry phone ca11 or ]etter. Marketing and Promotions conducts informal
surveys of its customets after lazge events such as the Titanic exhibit at the Union Depot building
and the Peanuts on Pazade e�ibits_
High performing organizations use customer satisfaction data for planning and implemer�ting
strategies that enable the organization to be less reactionary. 1n truth, if the organization captured
customer sarisfaction and needs information through a reguiaz process of formai surveys and
analysis of the results it could adjust its practices to deal with changes in customer sarisfaction
without disrupting daily mutines. Not only is this important for the CSO, the City could benefit
CIIOYYPIG i �fsa�aII� li. u �.�'�` S'.:I'YC� 2FS� �121"^a fli�04P_� L!� 2IId $8Y1SfSCUOIS a2T2
available for all of its operations.
Customer Service Standards
Formal customer service standards help staff understand what is expected of them by the
organization and by their customeis. The CSO does not have a set of formal customer service
standards that aze written down and circulated to all employees. Code Enforcement t�as some
standazds in a manual ttiat was created tmder a former manager. However, many Code
Enforcement staffare noY aware of its eacistence. Information and Complaint, Mazketing and
Promotions and the City Clerk all purport to have informal cvstomer service standards. Staff
aclmowledge these are not written down, as such, but are relatively widely understood and
2000 Sairu Pavl Ciry Council Resemch
Perfo[mance Auda of ffie City of Saint Paul's Citizen Service OkSce 77 �� I c �
practiced. Forty-four percent of respondents surveyed agreed that there were customer service
standards in their work azea, and 41 percent neither agreed nor disagreed.
Many of the informal customer service standards referred to by staff aze close to being values or
are values of the organization. This is evidenced by the fact that these standards are leamed and
reinforced by employees observing their co-workers in the fieid and on the phones. While it is
good that 42 percent of staff surveyed imde�stand the Offices' informal customer service
standards and attempt to follow them, over 1/5 of the staff reported they do not understand or feel
that staff follow them. This is an insufficient management practice. Unless standards aze
formalized, written down, and widely circulaYed they can not be updated, amended or added to in
any way ffiat would promote efficiency, effectiveness and consistency. This situation is
compounded by the lack of all-staff meetings where organizational information is usually
exchanged.
Summary of Findings
1) The CSO in total does not agee on who its customers aze. While deference is paid to those
seeking information or services, there is no Office-wide agreement as to whom the organization
should consider as its customers.
2) The CSO does not have a formal process for assessing customer needs and sarisfaction.
Divisions within the Office rely on complaints from citizens and informal surveys to determine
Uris information. The Information and Complaint Division occasionally utilizes a call back
method to gamer some customer satisfaction information. I-Iowever this information is not
compiled or shared with any other staff in the Office or City.
3) The Office does not have a formal set of customer service standards. Rather, the employees
adhere to an infortnal set of value-driven, common sense s[andards that are enforced by action
and word-of-mouth and emulated by staff.
4) The City's website has the potential to be an invaluable resource and method for
communicating with residents, visitors, businesses and anyone seeking informarion on Saint
Paul. However, the City's website is currently difficult to use and lacks uniformity that would
make it easier to navigate. The CSO's website provides useful information and complaint forms,
but should be developed fiuther as many visitors to the City's site may go to their page first
when they aze unsure of which department they need.
Recommendations
Recommendation #58. The CSO should ident� as pmt of it strategic plannzng e, ff'orts, who its
customers are and put processes in place to identify their needs and satisfaction with the
information and services provided by the Of, j'zce. This could be accomplished by initiating a
formal annual survey of its customers once they have been identified by staff and management.
Recommendation #59. The CSO should produce a written set of customer standards attd
circulate them to all staff. Based on the fact that emptayees curremly fotlow an irtformal set of
2000 Saint Paul Ciry Coursci! Research
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�g Pafrrmance Audit of the C'ny of Saint Paul's Cxtizen Service Ottice
standards based on organizational values this should not be di,�'icult. This will clar� czrstomer
ezpectations for all staff and aid in the training of new staf}:
Recommendation #60. Code Enforcement should provide customer service training to its
inspectors and clerical staff in order to provide a more corrsistent customer focused artitude in
the course of carrying out their jobs. This would be in line with the vision from the Mayor's
Of,�'ice and fhe Director.
Recommerrdation #61. The CSO should be a leader in developing a more useful, functional City
website. Some suggestions to reach this goal are:
• make permit and complaint forms easily accessible from the CSO's web page;
• standardize the City website so all City department pages have a unzform, recognizable look;
• develop a standard complaint form; and
• create an cruto-reply function for inquiries.
20D0 Sairrt Paul Ciry Coumil Ruemch
Performance Audit of lhe City of Saint PauPs Citizen Service Office
RESULTS
Quality Rating: �i'/2
� o��-�'1
KEY CONCEPTS:
❑ Organizational0utcomes
❑ Financial Outcomes
❑ Customer Satisfaction
❑ Use of Performance Indicators
The Results component of the Malcolm Baldrige system addresses an organization's ability to
determine if and how well it is accomplishing its mission. Successful organizations know how
well they perform. Through result measurement an organization is able to evaluate the
effectiveness and efticiency of its operations. Organizations should track results over time and
compare these results to other similar organizations. Results management should be the last
phase in an ongoing cycle involving goal setting, planning, the execution of plans and
improvement practices. Using results information in this way can help staff provide the best
service in the most efficient way possible. Decision makers can also use results information to
monitor the provision of services on the publids behalf, ensuring govemment accountability.
The work functions within CSO have a great deal of potential data available which could be used
to measure results. However, as mentioned in the Information and Analysis section of this audit,
CSO's data collection effoRs are poor and their data storage and retrieval systems are inadequate.
These factors have severely limited the Office's capacity to perform meaningful results
measurement.
Outcomes Measured
The measurement of results is not a well-developed concept in the CSO. Below we detail the
Office's efforts to develop, measure and use results.
Information and Complaint Division/City Clerks Office
The Information and Complaint Division collects response time data regarding how long it takes
City departments to resolve a complaint. After five days, the Division will send out a late report
if the complaint is unresolved. These reports aze sent to department and office directors but not
directly to staff responsible for resobing the complaint. The Infortnation and Complaint
Division also collects very limited information on how satisfied citizens are with City
Departments' ability to resolve their wmplaints. The Division's staff occasionally calls citizens
who have made complaints and asks them state whether they were satisfied with the timeliness
and quality of the City's response. However, they do not compile this data or prepare any reports
with this information; therefore, other City staff aze unaware of the limited satisfaction results.
Despite this shortcoming, we believe soliciting citizen satisfaction information is an excellent
practice and represents an important mechanism which the City can use to understand its
customers' requirements.
There was no indication the City Clerk's O�ce measured the results of its operations.
2000 Spim Paid City Cormcil Research
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Pertormance Audit ofthe City ofSain[ PauPs Citizen Service O�ce
Code Enforcement Division
The activities of the Code Enforcement Division have the potential to provide a rich source of
data which could be measured to determine organizational results. Given this potential data
source, the Division could be a very results-oriented organization. However, senior leaders state
the organization's ability to focus on results has been limited because of poor data collection
effoRs and inadequate computer systems. With the change in leadership in the division, there has
also been a de-emphasis on data collection.
The Division's data storage system, EXL, is currently is able to collect data but cannot easily
retrieve data. The Freelantz system, which was initially created to replace EXL, has not been
fitlly implemented. The new program has run into difficulty and senior leaders report it is
unlikely the Division will ever fully deploy the program. It now appears the Pivision will
conveR to the AMANDA system to serve as its complaint data base.
The Code Enforcement Division tracks the number of complaints they receive. Several interview
respondents stated the number of complaints has decreased over the last year, but none of these
employees could provide an explanation of why complaints have gone down. One senior
manager suggested tracking the number of complaints is a poor measure of the Division's
success because the Office does not track data which would explain the decreasing number of
complaints. For instance, he suggested it is possible that one could interpret a drop in initial
complaints to mean that people are calling less because they aze increasingly discouraged by the
City's ability to deal with Code Enforcement problems.
The Division also tracks the number of complaints resolved. Cases are considered closed once a
member of the clerical staff enters the inspector's final report on the EXL system. It was
reported this measure may be inaccurate because the information is sometimes entered weeks
after the inspector has completed the repart, thereby exaggerating the number of open cases.
The most results-oriented unit of the Code Enforcement Division is the Vacant Building's unit.
The Unit tracks the number of demolitions, the number of demolitions disaggregated by property
owners, the number of active vacant buildings, and the number of vacant buildings that aze
rehabilitated. A report of these results is published quarterly and distributed to the Mayor's
Office and the City Council.
Code Enforcement staff have a good understanding of the results they would like to measure.
They hope the conversion to a data base, such as AMANDA, and a new commitment by senior
leaders will lead to a greater use of results measurement. In the table below we detail the
measures that Code Enforcement would like to track.
➢ Number of summary abatement orders and number of abatements performed by the City
> First notice compliance rates
> The disposition of citations
➢ The number of condemnations
➢ Complaints broken down by U.S. Census track
> Data regazding the safety of inspectors
2000 Saint Pau! City Counci! Research
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PerFoxmance Audit of the CiTy of Samt Paul's Citizen Service Qffice gl
A senior leader suggested that many of these staristics would provide the City with a better
indication of how Code Enforcement is doing and help the Division develop future strategies and
plans. In our view, estabtishing the measures mernioned by staff would be an excellent
beginning for measuring the IJivision's performance. FIowever, we believe these measures alone
do not serve as a complete list of potemial perfrnmance indicators which could be used by the
divisions. Nor do we believe they sufficiently account for social and economic factors which aze
beyond the con�ol of the Division. For instance, as one of the Division's supervisors mentioned,
the declining number of vacant buildings is not meaningful imless one also looks at the condition
of the housing mazket in Saint Paul. To provide better information for the analysis of results and
the development organizational plans, new measures should attempt to incorporate eactemal
social and economic factors.
Result Measurement for Special Initiatives
Several senior leaders within the CSO stated the Office dces a particulazly poor job of ineasuring
the results of special iniriatives. For the purpose of this audit, we define special initiatives to
mean any new project or program that has been developed to address a specific problem. These
initiatives are usually pilot projects or temporary in nature.
The inadequacy of the Office's data collection efforts is a major impediment to its efforts to
measwe the results of its special initiatives. The D'uector of Code Enforcement stated that in
1999, this Division conducted six Weed and Seed pmgrams and there are no records of how the
program's money was spent or about the results of the programs in terms of citations, arrests and
property impmvements. Similazly, the Division is currently undertaking a pilot program, the
Dayton's Bluff Iniriarive, foz which there was supposed to be a serious data collection effort
undenvay during its fust three months. However, it was reported that the collection efforts were
so poor that the data was essentially useless for a serious evaluation of the program. Currently,
the Office's most significant special iniriative is PP2000. PP2000 is the Division's program to
address the pmblems created at some of Saint Paut's most troubled properties. To track the
success of the pmgam, staff collect data on whether complaints on PP2000 properties aze
decreasing. Howevet, they say they would also like to collect the number of properties sold by a
PP2000 property owner, the number of complaints based on ownership, and whether corrections
were made as a result of wriring a citation.
There are several reasons why tracking results of special initiatives, such as PP2000, should be of
great importance for the CSO. Fiist, PPZ000 and the Dayton's Bluff Initiative have been
mentioned as potential models for dealing with the City's problem properties. Without good data
collection and continuous tracking of results, it will be very difficult to determine whether these
programs are successful, whether they should be continued and implemented on a lazger scale.
Second, there appears to be a great deal of resistance to some of these programs among staff and
some senior leaders. Many complain that uritiatives such as these use scarce resources which
would be better used for the day-to-day activiries of the Code Enforcement Division. By
systematically tracking results of these special initiatives, senior leaders and decision-makers wili
be able to judge whether resources are being used in the most effective manner possible.
" For a more detailed discussion of these programs, see the "Special Initiatives" section of Policy Aligiment
portion of this audit.
200o Sa"vitPavl Ciry council Research
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gz Perfomiance Audit ofthe Ciry of Saint Paul's Citizen Service Office
Marketing and Promotions Division
The Marketing and Promotions Division measures the resulu of some of iu activities. The Film
Dffice determines the financial results of its efforts by exatnining the budgets of the projects it
helps bring to Saint Paul. This data is disaggregated by production type. The Division also
collects data on visitors and revenues generated by events that it promotes in the City. Staffalso
track press clippings to determine the success of their promotional efforts. Finally, the Division
seeks feedback from stakeholders about speci&c projects it has undertaken. Several staff
members stated they would like to receive regulaz reports &om the CSO's Information and
Complaint Division abouT requests and complaints related to their acTivities. They have made a
request to the CSO Director to be provided with this information; however, the Division has yet
to receive these reports.
Comparisous of Results
Divisions within the CSO do not compaze their results to the outcomes of other sunilaz
organizations. Occasionally, employees informally speak or swap stories with staff from other
cities who perform similaz functions. Many Code Enforcement staff members stated it would be
difficult to compare Saint Paul's results with other similar agencies because of the difference in
housing code and enforcement traditions.
Staff Knowledge of Goals and Goal Achievement
UlUmately, the measurement of results should be undertaken to determine whether an
organization is ackrieving its goals. Staff, however, appear to be 2utclear about the goals of the
CSO. The staffls Imowledge about organizarional goals is essentially the responsibiliTy of senior
leaders. Leadeis must make it cleaz, through the vision and planning process, whaY the goals of
the organi7ation are and how they will be achieved. Although the point is intertwined with much
of what is stated in the audiYs Leadership section, it is mentioned here because if an organization
does not have clear and defined goals, it is difficuit for an organizarion to determine whaz resutu
should be measured. Since there does not appeaz to be consensus in the CSO about the
organization's goals, it is not surprising the Office has paid scant attenrion to measuring results.
of Findings
1) The CSO does noi have a results measurement system.
2) The Information and Complaint Division does track some response times and citizea
satisfaction levels, Marketing and Promotions Division measures the success of their programs
and the Vacant Building Unit hacks case management data.
� As an exampte, articles about Peanuts on Parade have appeared in papeis as far away u Japan, Gecmany, Canada,
Belgium, and Puerto Rico, and staff were interviewed by Ausualian radio.
2000 Suira Pwl Ciry Council Resemch
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PerFormance Audit of the Ciry of Saint Paul's Citizen Service Office
3) For the most part, the Office's performance indicators aze poorly developed and do not
provide the organization and elected officials with useful information which could assist them
with decision-making.
Recommendations
83
Recommendation #62: The Information and Complaint Division should generate customer
satisfaction reports and distribute them to all staff in the CSO, as well as other depart»tents.
Over 50 percent of complainls received by the Information and Complaint Division are Code
Enforcement related. Thu type of feedback would be irrvaluable for Code Enforcement to track
how if well it is doing. Moreover, the CSO should also provide these reports to relevant
frontline stafJ'of other City departments and o�ces, such as Public Works, LIEP artd Parks and
Recreation, who also receive a large share of these complaints. The CSO should also consider
posting these reports on the City's web site so residents and City workers can track how well the
City is doing to resolve problems identified by citizens.
Recommendation #63: The CSO should include, in its planningfor the implementation of the
AMANDA computer system, a discussion of what results it wishes to track. It should determine
whether these results can be adequately tracked by the new systems. The consideration of the
results suggested by staff in the performance audit interviews are an excellent starting point for
this discussion.
Recommendation #64: The CSO should compare its results to other similar organuations.
Recommendation #65: Senior leadership in the CSO should clearly detail goals for each work
activity in CSO through organizational vision and strategic planning efforts. Stafj'should be
informed about these goals and have an understanding of how their work is connected to the
achievement of the goals.
2000 SaintPaulCiryCounci/Research
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84
Performance Audit of the Ciry of Saint PauPs Ciezen Service Office
PERFORMANCE MEASURES
Performance measures, also referred to as performance indicators, provide an organization with a
means to gauge how well it is achieving its goals. Although not everything an organization does
and seeks to accomplish can be quantified, there aze some measures that aze good indicators of
this. Fundamentally, performance indicators should measure how well an organizarion is
meeting its missioa For this reason, CSO's mission bears restating here. "The Citizen Service
Office consists of Four Divisions — City Clerk Records, Mazketing & Promotions, Code
Enforcement Programs and Information and Complaint. Together, the employees of the Citizen
Service Office maintain Saint Paul's official recorded history, promote its vitality and diversity,
identify proactive solutions to correct code violarions, and help resolve citizen issues related to
City Services by serving as advocates and liaisons." In this chapter we will explore how the
CSO may seek to inform itself, its customers and stakeholders about how well it is doing at
achieving its mission. This chapter is intended to provide a basis for discussion and assist CSO
in developing performance measures. The CSO will embazk over the next yeaz on the
implementation of AMANDA, the inFormation system which will track much of the needed data
for performance measurement. Therefore, it is a critical juncture for CSO to consider these
issues.
Council Reseazch has approached this examination of performance indicators with several
assumptions in mind. First, we believe the City Council has a vested interest in examining
performance indicators as a part of the budget review process. The use of performance indicators
gives the City Council a cleaz picture of whaz has been accomplished in past years, and the
reasonableness of expecta6ons for future years, They meaningfully connect dollars spent to
hoped-for outcomes in the services expected of City govemment. Indeed, as the Council
deliberated upon "managed competition proposals," the need to translate CiTy activities into
meaningful performance indicators became very appazent. The development of such indicators is
necessary to make cleaz with anyone-- employees or private vendors just what aze performance
requirements which will be specified in the contract. Second, we believe performance indicators
can be useful management tools for communicating with statt' about expectations. However, we
also put forwazd the notion thaY staff must be a part of the creation of performance indicators and
see their usefulness in their daily work lives. T7?e �eo�ie u�ho wi!?, iR �:ae?i:z, ��s:de
information for performance indicators aze also pmfoundly affected by what the indicators may
_ � ri�..11..�.i.t.�.rt�'"' _
--- ..,'r�w. na.�� a.uavu�� wc .ca.v�uc.c uicic aic u �a� J� I13�PCI"COiR13ilCC IRQIC3LOIS C3T1
communicate about the success of an organizarion, there is little else available to provide "a
gauge" on progress. Comprehensive evaluations of programs or activities aze timely and
expensive, and do not necessarily allow for the incremental improvement of efforts.
The CSO does have a number of so-called "performance indicators" in its budget. In our view,
however, most ofthe indicators included in the budget do not constitute meaningful, useful or
effective measures. Developing performance measures begins with identifying what pieces of
informazion indicate the organizarion's effectiveness, efficiency, and quality. Some guidelines
for the development of ineaningful performance indicators are provided below.
2000 Saint Paul Ciry Council Resemch
Perfo�mance Audit ofthe Ciry of Saint Paul's Cidzrn Service Office
Performance Indicators Should Be:
ss D/'�v 7
❑ Quaritifiable, readily available, easy to calculate, "hackable" and show the direction of progress
❑ Strongly connected to the mission of the organization
❑ Intrinsically meaningful and imderstood throughout the organization
❑ Focused on outcomes and products, rather than processes when possible
Examples of Perjormance Measures:
❑ Customer and employee satisfaction
❑ Volume of outputs as work units or products
❑ Productivity and efficiency: time and cost per unit of product
❑ Errors, mistakes, wmplaints, waste, rehun rates or.pollution
❑ Quality
❑ Timeliness
❑ Impact: changes resulting &om activity
It is important to note that performance indicators are often most meaningful and effective when
the measwes can serve as a basis for comparison. Comparisons are best when they are made
using similaz data from similaz organizations, or if they compare the same activiries within the
organization over time. Comparing the City of Saint Paul's performance in these azeas over time
is likely to yield more meaningfiil resutts because of the idiosyncratic nature of these processes.
Therefore, it is recommended that the following measures be tracked at periodic intervals for
comparisons.
We have or ni� our discussion of potential performance measures by division: City
Clerk/fnformation and Complaint, Code Enforcement, and Marketing and Promotions. What
follows is not intended to be an exhausrive list of potential measwes, but rather provides what we
believe would be good measures for some aspects of the Office's work. Some of the data needed
for these measures aze already collected.
City Clerk
1) The timeliness of record retrieval could be measured by hacldng what percent of record
requests are fiilfilled within a certain time period, for example 24 hours. This
information could also be tracked and reported by type of request.
2) Similuly, the City Clerk's Office could measure how promptly official City documents
are processed and filled by tracking the percentage of documents processed within a
certain time period.
3) To measure the accessibility of official dceuments to the general publiq the Clerk's
Office should track how up-to-date document indexes and compilation of City records,
such as Council minutes, are.
2000 SointPaulCrryCouncARuearch
B/-� 7
86
Perfom�ance Audit of the City of Saint Paul's Citizen Service Office
Information and Complaint Division
1) To measure the response time to citizen complaints, the Division should measure the
average time it takes to refer the complaint to the appropriate departrnent
2) The Information and Complaint Division should formalize the collecrion of citizen
satisfaction data regarding the Ciry's response to complaints. This information is
currently being collected on an irregulaz basis. The Division should develop a consistent
policy and methodology for collecting this data and reports should be ptoduced and
distributed city-wide.
3) Part of the development of citizen satisfaction data collection policy should include the
measurement of the Division's ability to conduct these call-backs in a rimely manner.
This should include tracldng the amount of time it takes Information and Complaint staff
to call citizens back after their complaint has been resolved.
Performance Measures for Code Enforcement
1) To measure workload, the Code Enforcement Division could measure inspections per
inspector, or inspections per year.
2) To measure timeliness, the Division could measure (a) average response time in calender
days for initia] inspection of code violations for the most recent fiscal year; and (b) the
average time in catender days for progressing from inspec.4or's report to either voluntary
wmpliance or the initiation of administrative or judicial action.
3) To measure the effectiveness of code enforcement actividies, the Division could measure,
(a) the percentage of code violations brought into voluntary compliance prior to the
initiation of administrative or judiciat action; or (b) the number of code violations
resolved per full time equivaleats (FTEs) units.
4) To measure cost, the Division could measure the cost per code enforcement case.
Marketing and Promotions Division
1) The Division sho�td attempt to measure the effecxiveness of their efforts to promote and
M21'KCL CVC'IITS Uy S�UIYByffi�a�'icZiu� awiai v::�.. �::: �.,�'�'.'�* r?'?!SJ.��3* �!�tIS- -
2) The Division sho�d survey stakehoiders, such as commturiry grovps and businesses,
which benefit from its activities. The Division should focus on measures which relate to
stakeholder needs and sarisfactioa
3) The Film Office should measure the average amount of revenue generated by film
projects in the City. This data should be disaggregated by the film type, such as
commercial, feature film, or video.
2000 Saira Paul Ciry Council Research
81-tP7
PerFormance Audi[ of ihe City of $ain[ Paul's C�UZen Service Office
CONCLUSION
87
The employees of the Citizen Service Office aze diligent and very concemed with providing
services and information to the extent possible and as dictated in law. We found some policies
where further development of CSO practices aze necessary, and others where a change in policy
would be more logical. We also found a geat deal of room for improvement in the efficiency
and effectiveness of the Office's operations. Through our interview process, we discovered that
staff and the managers and director have a willingness to improve operations. Our intent is to
provide them with recommendations that would do just that. Many of the recommendations aze
not difficult to implement and could dramatically improve the overall quality of the Office's
operations. The following is a summary of our findings.
Planning
The Citizen Service Office does very little planning for its operations. The only "plans" we
discovered were the "Strategic Plans" found in the City's Budget document, and some plans
created by the Marketing and Promotions Division directly related to various events and
activities. Staff suggested the overall lack of planning is a result of the reactionary nature of their
work and the influence of political decision-makers on their operations. Council Research offers
that creating plans to guide their work would assist the Citizen Service Office in balancing the
demands on their resources and assisting with prioritizing requests.
Leadership
Most staff within the Citizen Service OfTice have not seen the Office's mission statement.
However, most staff agree the mission is to serve the citizens of Saint Paul. Staff aze less sure of
the vision for the Oftice, though they do feel the Mayor provides a vision of the future of the
Office and supports the work they do. This was particulazly evident in the Code Enforcement
Division. The vision from the Director of the CSO seemed less clear to staff.
While the mission and vision may not be entirely clear to staff, the values of the organization aze.
The Director and managers deserve special recognition for exemplifying the values, in the eyes
of the staff, and for being open and accessible to their staff. Still, it would be helpful to new staff
to be able to view a vision, mission, and values statement to get a better understanding of the
organization.
Communication is a problem for the Citizen Service Office. We found many instances where
there was an appazent lack of communication between divisions and between management and
staff. Staff meetings and more information sharing between divisions could result in a great
improvement in the level of communication in the Office.
Training and Development
The Citizen Service Office, particularly the Code Enforcement Division, encourages training and
provides resources to attend various training sessions and conferences. Other staff, such as
2000 Saint Pauf Ciry Councit Research
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88 PerFocmance Audit of the City of Saint Paul's Cilizen Service Office
support staff, do not seem as inclined to attend training, though they aze atso encouraged to seek
training.
The work environment of the Code Enforcement Division has reportedly improved since they
were administratively moved to the Citizen Service Office, and most statFwere physically placed
in the Police Department's Eastem Patrol District offices. They have also come under new
management which, staff state, has an open-door, approachable philosophy. Some problems still
�ist with derical and vacant buildings staff being located in City Hall and the rest of the
inspectors being located at the East team offices. The files are also located downtown, which
decreases efficiency of operations and access to information. The work environment of other
divisions appeaz to be fairly healthy, though there were some problems discussed that appear to
be human resources issues that need to be handled on an individual basis.
Direct employee involvement in decision-making is an area that needs improvement in the
Office. Many employees feel decisions aze made at higher levels and they aze the last to find out
about changes.
Information and Analysis
The Cirizen Service Office is collecting very little useful data at the present rime. They have
stated tttat their current computer system dces not allow them to rehieve meaningful data;
therefore, any analysis of this data would be inaccurate. Two azeas within the Office are better
able to collect data: the Vacant Buildings Unit and Mazkering and Pmmotions. Infotmation and
Complaint is able to generate some reports as well, but not to the extent we feel they ought to be.
The Office has also began to move away from the old EXI, data base system. Some units within
the Office aze experimenring with Freelantz softwaze, which they have found to be inadequate.
They are also pursuing fhe possibitiTy of using the AMANDA system, which LIEP and Fire
Prevention have already begun to use. Council Reseazch feels they should be moving more
quickly towazd implementing AMANDA with greater input from cunent users.
Improvement Processes
As we have found in many other audits, the City overaii does noi engage in a sy� �;a,�:.,
- *±?e�i.n¢£ul_imnzovement_nrocess, and the Citizen Service Office is no e xception. Th aze very
good at finding different ways to improve their services, whether it is accepting informahon -- —
requests and complaints on-line or creating special initiatives to address specific Code
Enforcement problems. However, they aze lacking in the planning process for these initiatives,
and therefore run into unanticipated, avoidable problems in implementation, and they are less
sure of the success of the iniriatives because they have created no mechanisms to evaluate the
iniriatives or changes.
Customer Focus
We aze constantly impressed with the level af concern City employees show towazd citizens,
their customers. The Citizen Service Office is very interested in ensuring they aze providing
2000 Saira Paul City Counci! Rese�ch
Perfo�mance Audit of the City of Saint Paul's Citizen Savice Office g9 �����
citizens with the information and assistance they need. Currently, Information and Complaint
staff sometimes follow-up with complainants to assess their satisfaction with the CiTy's response
to their inquiry or complaint, though this information is not compiled or distributed. A more
ihorough assessment of residents' needs and level of sztisfaction would be beneficial to the City,
and ought to be done on a broader scale than just those residents who call the CSO. While the
responsibility for laiowing ihis information rests with every City deparknent, the CSO is best
poised for conducting a city-wide survey.
The employees of the Citizen Service Office understand a basic, informal set of customer service
standards. However, it would be helpful to have more forma] standards to assist staff in
understanding what the expectations are for their gerformance in relation to customers.
Resutts
Closely related to planning and information and analysis is results measurement. It is vitally
important that organizations gauge how well they are achieving their mission. The CSO does not
have a highly developed results measurement system. T1te Information and Complaint Division
does track some response times and satisfaction levels, Mazketing and Promotions tracks the
success of their programs, and the Vacant Buildings unit tracks information such as how many
vacant buildings aze rehabilitated. However, overall the Office does not use even the litile
information it has to analyze to assess its operations. The Office needs to re-examine its
performance indicators used in the City's Budgei. Performance measwes aze not just volume
indicators, they are used to assess progress, efficiency, and satisfaction. For example,
Information and Complaint staff currenfly track the number of call backs they do. A more
meaningful measure for them would be the number of call backs within three days, wlrich is their
objective as stated in the budget. They could set a goal for the level of satisfaction of
complainants - for eJCample 80 percent.
Performance Measures
The Citizen Service Office currently has few meaningfiil performance measures. However, they
have the potential to create measures using data they anticipate collecting with the development
of their information systems. Using performance measures in an ongoing cycle of planning,
evaluation and improvement could significantly assist the CSO in yeazs to come, and will
enhance intemal management and accountability to customers and stakeholders.
2000 Sairst pouJ Ciry Covncil Research
�1-�, 7
� Perfomiancz Avdi[ o f tLe C ity o f Sa P CiGZen Se�vice OtSce
Appendix A: Resources
General Citizen Service O�ce Policies Applicable tn All Divisioru
2000 Budget Objectives and Activity Performance Plans
2000 Budget Straiegic Plans
Administrative Code Chapter 2. Office of the Mayor
Code Enforcement Pdicies
Legistafive Code:
Chapter 34. Properry Code Maintenance
Chapter 35. Rental IJisclosure Posting
Chapter 39. Smoke Detectors
Chapter 43. Vacant Buitdings
Chapter 45. Nuisance AbaYement
Chapter 51. Dwelling Unit Registration
Chapter 113. Snow and Ice on Sidewalks
Chapter 163. Abandoned Vehicles
Chapter 189. Tnrth in Sale of Hausing
Chapter 357. Solid Waste Provisions
The Saint Paul Comprehensive Plan: Housing Plnn, Adopted by the City Council March 24, 1999.
Housing Action Plan 2000
City Clerk/Records Policies
City Charter.
Chapter. 8. Initiative, Referendum, and Recall
Chapter 14. Special Assessments
Chapter 17. Generat Provisions
Legislative Code:
C}+_zpter 9. Publishing Costs of Special Ordinances and Resolutions
Chapter 28. Campaign Contributions
� ,,,: :;;,. �_� '-�-- v=, ��_�..+:�� c±�ra ? �d nther Public Grounds
li°k' ---_=- --- _
Administrative Code:
Chapter 4. Office of the City Clerk
Chapter 76. City Electioas — Nominating Petitions and Petirions in Lieu of Filiag Fees
Chapter 77. Elections — Canvassing of Retums and Certi&cations of Resutts
Chapter 87. Depository for pocuments
Chapter 91. Procedure for Public Hearings Regarding Public Nuisances
Chapter 94. Protection of Trade Secret Information
Append'vs Chap. 3. All Public Meetings —Notice Requirements
Minnesota Statutes Chapter I3. Govemment Data Practices Act
Minnesota Rules 1205. Department of Administration - Data Practices
1000 Saint Paul Ciry Council Research
Perfomisnce Audii ofthe City of Saint Paul's Citizen Smice Office 91 a��`e �
City Council Resolution 99-881
Information and Complaint Policies
Chapter I 13. Snow and Ice on Sidewatks
Chapter 163. Abandoned Vehicles
Books / Miseellaneous Documents
Ammon, David N. (1996). Municipal Benchmarks: Assessing Local Performance and
Establishing Community Standards. Sage: Thousand Oaks, CA.
Bryson, John. (1995). Strategic Planning for Public and Non-Pro,fit Organization. Jossey-Bass.
San Francisco, CA.
Malcolm Baldrige Narional Quality Awazd Ptogram. 2000 Criteria for Performance Excellence.
The Urban Institute (1980). Performance Measures: A Guide for Local Elected �cials.
Washington D.C., The Urban Institute.
2000 Saint Pau! Ciry Coumci! Research
ol -� 7
�
Pafosmance Audik ofthe GTy of Saint Paul's C'itzen Service Office
Appendix B: CSO "200Q Strategic Ptanss
Communicate usefiil infomzarion regazding city services to elected offecials and the citizens of
Saint PauL
Strengthen the City's approach in delivering City services.
Ensuring stronger collaborative partnerslups with intemal and e�cternal customers (i.e. community
organizations).
Measuring and reporting citizen satisfaction rate related to requests for service and responses to
complaints.
Phasing in a new computerized complaint system that will be used in City Offices and
Departments.
To provide citizens and City operations with accurate credible, pro-active research and policy
development by:
Idenrifying "real" problem issues in the City.
Clarifying whether we need to re-allocate reso�ces.
Providing accurate, base information to affect poIicy development or modifications,
Pinpointing the nced for system changes, etc.
Ensuring an educational component to our work to encourage professional and personal
development.
Ensuring public information employees within the City stay current.
Increase the frequency and quality of information going to City eraployees.
Solving long tecm communication issues.
Heip with implementation of communication strategies.
_`___'-.--`:_� �^a n..,.,,,*_+fi.,.� �f C'�tv events both downtown aud in the neighborhoods.
' fmm Page 64 of the 2000 Proposed City of SainX Paul Budget
Z000 Saira Paul Ciry Covncil Resetvch
Performance Audit ofthe Ciry of Saint Pwl's Ciazen Service Office 93 Q � _ � �
Appendix C: Excerpt from the "Agreement Between Ramsey
County and the City of Saint Paul for Election Office
ManagemenY'
i. countv Duries
Tiie County will assume all electian duties required by Minnesota Statues to be performed by City
Election staff with exceprions as noted in this Agreement These duties will include:
• Continue efforts to improve customer service in part through the use of random surveys to gauge
voter satisfaction
• Locate and amange for polling piaces that are handicap accessible, wherever possible, and
obtain City Council approval for any changes
• Recruit and train election judges
• Prepaze and maintain the election calendar year
• Handle candidate filings and maintain candidate files
• Supply copies of candidate filing to the city Clerk within twenty - four (24) hours of receipt
• Order ballots, envelopes and other voting supplies
• Monitor delivery of ballots from printer, sort new baliou, prepare test decks
• Administer City absentee ballotmg
• Arrange for public accuracy tests
• Program for elections and test those progams
• Package and de(iver election supplies
• Maintain and store voting equipment
• Provide main office ghone coverage to answer questions whenever polls are open or election
judges are still at the polling locations
• Provide unofficial election resuks at the eleetion office to the media and candidates at least
every half hour after polls close on election night
• Accumu3ate election returns and provide City Council with resuits for their approval
• Store voted ballots and election retums
• Verify signatures on petitions, iniriatives, referzndums and recalls
• Provide an analysis to the City of the election costs for proposed legislation as requested
• If a new voting system is used, the County will inform voters and provide demonstrations as
required by Minnesota Statues section 206.58
2000 Saint Poul Ciry Courscil Research
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� Perfolmance Audit of the Ciry of Saint Paul's Cirizen Service Office
Appendix D: Vacant Buiiding Categories
: Must be
to take
3ing off
List
• Pull stop
order card
and retum to
Nuisance
Buildings
Code
Enforcement
Program
_ 1 2 3
• Pay • Pay outstanding fees • Pay outstanding fees
outstanding
Yees • Code Compliance or • Code Compliance or
Certificate of Cacificate of
• Occupy Occupancy Inspection Occupancy Inspection
Report Report
• Pemaits if
needed
• All necessary work
pertnits
• Code Compliance
Certificate or
Certificate of
Occupancy issued
• Pull stop order card
and return to Nuisance
Buildings Code
Enforcement Program
• $2,000 cash deposit or
Performance Bond
Posted
• All necessary work
pertnits
• Code Compiiance
Cerrificate or Certificate
of Occupancy issued
• Puil stop order card and
retum to Nuisance
Buildings Code
Enforcement Program
- -
2000 Saint Paul Ciry Council Research
Performance AudR of the C5ty oFSaint Paul's �tiun Service Office
Appendix E: Compilation of Recommendations
9i b � ^ ��
Recommendation #I. The Information and Complaint Division should resume providing customer
satisfaction data to the Mayor, City Councit and department and o�ce directors, ar well ar to
other staff in the Citizen Service Office. Other computer systems could be used to prepare the
reports until the AMANDA system is fully operationaL They must also set a high standard for
doing catl-backs, such as a setting a goal of calling back 90 percent of all complainants within
three days.
Recommerrdation #2. The Citizen Service Ofj'ice should prepare an annual repon for the Mayor
mrd City Council clearly showing each depurtment's response times to complaints and inquiries,
as well as customer satisfaction dafa. The data should be delineated by department. They should
create an objective to provide this information at teast anrruatly, if not more ofYen.
Recommendation #3. The City Council should direct Councii Research, the Citizen Service Qffice,
and the Planning and Economic Development Department to conduct a City-wide survey to
ascertain the level of citizen satisfaction with City services and citizen service needs.
Recommendation #4. The CSO should work with other departments, such as the PoZice
Department, LIEP, Fire Prevention, and Public F�orks to create a plan or system to follow so that
complaints are addressed quickly and uniformly. Specific data should be compiled on when a
complaint is received and forwarded to the department, to whom it is fonvarded, when a service is
rendered, and when a resporrse is received. Information on compiaint resolution should be made
part of the frve-day late report.
Recommerrdation #5. The CSO shauld establ "uh specifzc guidelines requzring departments to
submit to the CSO, on a biannuad basis, a Records Retention Schedute. They should also devise
guidelines to ensure departments notify the City Clerk when documents are permanently removed
from City files or disposed of, and these notifications should be maintained by the City Clerk.
Recammerrdation #6. The City Clerk/Records Division should prepare a plan to trcrosition paper
documents to the new document imaging system.
Recommendation #7. The City Clerk/Records Division should prepare a specifzc plan to ensure
fhat Council Proceedings are prepared annually and indexed in a timely fashion. Funds should
not be re-atlocated for other uses if ihey me spec�ed for binding.
Becommendation #8. The Citizen Service Office should take responsibility for educating
departments on what documents need to be provided to the Public Library. Council Research, the
City Council, the Public Library and the Citizen Service Offzce should work together to review the
reguirements of the ordinance to determine whether three paper copies need to be submitted, or if
the number ofpaper copies required could be reduced if an elecdonic copy is provided. Following
this review, an ordinance change should be made if necessary.
Recommendation #9. The City Clerk should devise a more formal system for departments and
other relevant Ciry o,�'icials to notify the Clerk of newly elected and appointed officials who need to
receive the oath of ofJ'ice. The Clerk's budget objective should be modified to indicate it the oath
of office wi11 be administered within a spec�ed amount of time, such as rhirty days.
1000 SainrPaul Ciry Council Research
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� Perfom�ance Audit ofthe Cry of Saint Paul's Citizen Service OtSce
Recommendation #10. The Citizen Service �ce shoutd immediately develop a straregy io inform
all City departments of the requirements and process for trade secret storage.
Recommendation #II. The City CouncB should update the language in Legislative Cnde Chapter 48.05
10 reflecl the current Ci1y departments.
Recommendation #12 , The Mrnketing and Promotions Division should resume production of hrnd
copies of the Resident's Guide and ensure that all residents hcrve access Co the information.
Recommendarion #13. The Administration should prepare, for City Council consideration, an
amendment to the Administraiive Code outlining the duties and powers of the Marketing and
Promotions Division.
Recommendation #14. Code Enforcement managers shouZd clar� for inspectors which
ordinances provide the highest standmd for enforcement.
Recommendation #I5: Code Enforcement, the City �tttorney s Of, j�zce and Council Research should
revise fhe excessive corrsumption portion of Chapter 34 to allow the Ciry to collect fees to cover
costs jrom repeated irrspections a11he same properiy. The Ci1y should assess the fees to the
P�'aP�'h' tctzes.
Recommendalion #16: Inspectors should issue written orders along with mry oral orders to
provide written evidence if the problem persists, cmd to ensure the properry owner or tenant
receives the appeals process ireformation.
Recommendation #17. The City Council should update the language in Chapter 42 and make it the
responsibility of the Director of the Citizen Service Offzce or his or her desigrree. If Chapter 51 is
successfully implemented, the Citizen Service Office should request that Chapter 42 be repealed
from City Code.
Recommeudation #18: The Ciry Council should revise Chapter 45 to include the cost of Code
Enforcement irupections in the abatement fee. This would then be compatible with the concept
behind excess consumption and recovering cosls associated witk enforcement.
Re...^�n!m�dation #19. Code Erforcement should immediately assign an i»spector to ihe Truth In-
Sale ofHousingprogra»z or the City shauld contract out the comp[iance inspection,. :?za !'i:y
- - -- -i-�_... r _ ,,,..;,,.,r;�.o rmm�laints.
SITGT[tu�'fiiG�i"ufi::.....;:.'r.ii::;a,:�...e .:,,__.' ___' '
Recommcrndatian #20. The Ciry Council should allacate funds directly to Code Enforcement ro
eruure their participation in the FIEAT program if it wishes to continue the program in its current
form. If the Ci1y Council does not wanl Code Enforcemenr i�svoZved in 1he HE.4T program, it
shauld specify that Code Enforcement not participate in the program.
Recommendation #21. Cade Enforcemerrt should advise the Planning Commission to change
Comprehensive Plan policy 4.3b iffines m�e an ineffective a less desirab[e way to gain compliance
than is interacting with property owners through the standard violations notice process_
Kecommendation #22_ Code Enforcement, the City Artomey s Office, Fire Prevention, LIEP and
2000 Saint Paul City Council Research
Pecfocmance Audit of the City of Saint Paarl's Citizen Service OfSce 97 �� ^��
Housing Court should do an evatuation of the services provided and the Zevel of success of the
housing coun program and determine areas for improvement or change.
Recommendarion #23. Code Enforcement should standmd'ue the information given out to ensure
that everyone receives the necessary information. Phis information couZd also be given out to
entire neighborhoods that are the focus of Code E'nforcement sweeps. Thu information should
also be made available on Code Enforcement's web site_
Recommerrdation #24. Code Enforcement should be more irrvolved with Public Works in the
selectian o}"projects such as alley paving and plowing, curb and gutter installatiorr, street lighting
upgrade, boulevard and sidewalk maintenance and street surfacing. If Code Enforcement were to
assist with the selection, fhey may be able to tcnget resaurces to neighborhoods where City
irevestment woutd greatty impact the neighborhood and increase the value of the properties. While
in many instances these projects deal with quality of life concerns, rather than safety concerns,
they serve to improve and beautify neighborhoods and increase people's serrse of security.
Recommendation #25. Code Enforcement should provide statistics that indicate which arear of the
City inspectors spend most of their time and what the common problems in the area are. This
couZd provide data which would help decuion-makers determine where resources should be
directed. This information could be used City-wide by various departments.
Recommendation #26. The Planning Commission shoudd remove, , from the Comprehensive Plan,
policy 4.Sc which promotes the placement of vulnerable properties under the management of a
community based organization.
Recommendation #27. Code Enforcement and the Planning and Economic Development
Deparhnent should reach agreement on what information about availqble resources for
rehabilitation is appropriate to provide to property owners and tenants.
Recommendation #28. Code Enforcement should develop a plan fer the administration of the
Rental Registration program. It must address potenfial influences on the program, such as special
initiatives, and how to make the program successful even if staff resources are limited. Code
Enforcement also needs to plan for implementation of each provision of the ordirrance to ensure
they are enforceable. All stafJ"responsible for Rental Regisfration skould be involved in the
creatfon of the plan as well as the City Attorney's O�ce and other relevant stakehotders. As with
arry new program, other staff within the CSO should be educated as to the specifics of the program
in order to prevent confusion over enforcement arrd administration and to ensure the information
provided regarding the program is consistenf.
Recommendation #29. Code Enforcement must implement the AMANDA system as quickly as
possible for Rental Registration. This wauld also allow other deparhnents utilizing AMANDA easy
access to the registration dafa.
Recommendation #30: The CSO's Information and Complaint Divuion should provide cnmplaint
reports and complaint resolution feedback reports to the Yacant Bufldings unit. This information
should be used to assist the Yacant Buildings Unit in determining how well the case management
system is working.
2000 Scint Paul Ciry CovrsciZ Research
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Perfom�m�ce Audit ofthe Ciry of Saint Paul's CNUn Service Of&ce
Recommendation #31: The Yacant Buildings Unit should develop more meaningJul budget
objectives which are more than just reiterations of City Legislative Code. The unil should review
bvrh their ongoing and annual budger objectives. New objectives should set goals for the unit
which go beyond what is required by Code and are pertinent to special initiatives to be taken in the
coming year. The lack of ineaningful budget objectives is an issue for most of the CSO's budget
areas.
Recommendation #32. If PP2000 is to continue, Code Enforcement should articulate criteria for
inclusion in the PP2000 program. The criteria should be based in pan on quantiJatave data such
as complaints about the address, the number of citatiorrs issued to the properry, und police calls fo
the property.
Recommendation #33. Code Enforcement should immediately compile mrd analyze data relating
to the PP2000 program to determine its effectiveness and worthiness.
Recommendation #34. Code Enforcement should develop a program to address problem
properlies which are not included in the PP2000 program, such as owner-occupied and other
rental properties not owned by the subjects of the PP2000 program.
ltecommendation #35. Code Enforcement should perform a systemaYic evaluation of the Dayton's
Bluff Initiative This would iavolve collecting more comprehensive data on the Dayton's Bluff
Initiative to determine iYS effectiveness, particularly if it is to be eztended or used as a model in
ofher neighborhoods.
Recommendation #36: Code Enforcement should collect data to determine the effectiveness of
sweeps. If they are found efJ`'ecrive, the Ciry Council shauld provide special funding to conduct
them in addition to routine Code Enforcemenl activities.
Kecommendation #37. The CSO should create a true strategic plan with outcomes, time lines and
action steps. It should irrvolve all staff and representative stakeholders and customers in izr
development, and make sure that all staff m�e made aware of the plans and how they corrtribute to
achieving outcomes. e111 divisions within the CSO should have plans relating specifically to their
work which help them manage workloads and expectatiorrs, and to anticipate potential changes.
The need for planning irr Code Enforcement is particularly apparent. Planr would allow fhem to
beirer mmrrge,t�w�rR �sseg::,�:�:�. 77se CSO should discuss the plans with the Council and
Mayor to garner their input.
— -- --
------ --- -------------
--
ecommendaiion #38. The CSO should engage in planning prior to implementation of the -—
e1M�INDtt system to ensure the system is functional for staff, and to assist them in managing the
iraining and workloads during this period.
Recommendation #39. TOze Marketing and Promotions Division should solicit Council input
annually during Marketing's planning process for the upcoming year.
Recommendation #40. The CSO should create a plcm far the City's website development. This
would arsist the Office in guiding oiher departments through the development of their own web
pages and clearly srate the time frame and expectations for development.
2000 Saint Paul Ciry Council Rese[vch
Perfoxmance Audit of t}�e Ciry of Saint Paul's Citizm Secvice Office
� o � -�'�
Recommendation #41. The CSO should revise its mission statement and irrvolve a11 CSO staff in its
devetopmenz This could be done in conjunction with the development ofan Of,J�zce-wide strategic
plan. See also recommendation #37 in the Planning section.
Recommendation #42. The CSO Director should schedule monthty all-staff ineetings for
dissemination of information between divisions and staJf recognition. Unit-wide meetings should
also be held on a regular basis.
Recommendation #43. The CSO should estabtish an employee recognition program and make
recognition an important part of daily work Employees should be included in the formation of the
program to determine what types of recognition are most meaningful to stafj.
Recommendation #44. Senior leaders should formalize the vatues of the Of,�zce and integrate them
into formal customer service standards. Staff should be directly irrvolved in this process.
Recommendution #45. CSO leadership should work with employees to devedop a strategy to
mitigate the "us vs. them" mentality that occurs between staff. The Offtce should work to create a
sense of employee ownership of the CSO.
Recommendation #46: Consistent with recommendation #41, the Citizen Service Ofjice shauld
undertake an effort to redefine their mission, particularly because the missions of Code
Enforcement artd the rest of the CSO appear inconsistent and possibly incompatible. The Office
needs to do a better job af integrating these two functioru. If the missions cannot be aligne,d,
serious consideration should be given to whether Code Errforcement shoutd be docated elsewhere
in the City s governn:ental structure.
Recommendation #47: As described in recommendation #37, the CSO musf pursue strategic and
long-term planning in order to be tess vutnera8le to political in}luence and less apt to have its
work driven by crues.
Recommendation #48: Senior leaders of the CSO should create a process by which employees can
be more directly involved in decisions made about their work
Recommendation #49: The CSO should develap a plan to house the entire Code Enforcement staff
in nne location. Communication and the morale of clerical sfaff would improve. The files
downtown shoutd be moved to where irrspectors are located because of the inefficiencies caused by
the current arrangement.
Recommendation #50: Code Enforcement should review artd revise its employee manual. A work
group representing senior deaders, inspectors, and clerical staff should be responsible for this
efforz A revised manual would help the division ensure cousistent enforcement and codify existing
performcmce ezpectatiorrs for Code Enforcement employees.
Recommendation #51: The CSD should reintroduce performance evaluations. To this end, the
CSO should undertake an effort which i�rvolves all staff'to develop an appropriate evaluation
process and forms far each of the functioru in the Office. While the CSO may wish to continue to
use the Human Resources format, it may be in their irtterest to customize the form to rejlect the
2000 Saim Paal Ciry CawrciT Reseasch
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Perfonnance Audit ofthe Ciri ofSaint Paut's Cifizen Service O$ce
work done by the dzfferent functions within the O�ce. After the new process is developed, CSO
leaders should begin conducting performance evaluations immediately.
Recommendarian #S2: CSO senior leaders should determine why some staff are less inclined to
attend training. Particular anention should be paid to members of the clerical staff and less
senior code enforcement inspectors who reportedly are less likely ro take advanlage of these
opportunities. Senior leaders should corrsider providing an incentive for staff to take advantage of
training by making this an importanr factor in evaluating an employee's performance. Staff should
also be encouraged to pursue training that would advance them professionally and be rewarded
for their successful pursuit of career-track training.
Recommendation #53: The CSO should convert to AMANDA as quickly as possible. The Ofj'ice
har planned to adopt AMANDA afler LIEP has had more experience with the system in the hope
the Office could learn from LIEP's experience. However, we believe this would be a misrake. As
our findings demonstrate, this Office collects very Zittle meaning ful informaiion about its work and
performs ulmost no dcrta analysis. As an explanation for this fact, almost everyone has blamed the
FX/, system for this problem. Moreover, there is every indication that LIEP hac been successful in
implementing EIMtIND�t. Therefore, the CSO should convert Zt's databases to the AM�fNDff
system as soon as possible.
Recommendation #54: T7re CSO sPrould hire an employee whose primary duty it is to perform
research and analysis. There rne a rrumber of ways to implement this recommendation. An
employee could be hired to serve all four divisions of the CSO. Alrernarively, Jhe Code
Enforcement or Information caad Complaint Division could hire someone who splits their duties
between research, analysis and other work actfvities in the �ce. Another consideration might be
thcrt, consistent with the G�Qice's 2000 strategic plaru, this staffperson cauld potenrially do daza
analysis for other City Dep�ntments and Offices in an effort to improve services and programs
City-wide.
Recommendution #SS: The CSO should immediarely begin dafa colleclion and analysu for special
initiatives which it is currently undertaking, such as PP2000 and the Dayton's Bluff initiative.
Even ifEXL or Freelaniz systems are fnadequate to coI[ect data and perform analysis, the OfJice
could do meaningful analysis on simple spreadsheeu and statistical programs, such as Lotus I-2-3
and Slatisiical Program for the Social Sciences (SPSS).
_ Recommendation #56: The CSO should specify data colleciion, analysrs and evaluation siraiegies
_— ' ' : �..-_ -r__ �z.,,,.�a o,.o,.;fi, thp on�rls ofthe pro
rai the p�an7ora�y ncrn�w�u�.�.s.—rr:;.;-��� :�:��� t .�:.� ----r °---- �
-- — •w - -=— -
how they will measure whether these goals have been achieved and wha will do the measuremersf. -- -
Recommendation #57. The CSO should engage in a more formal improvement process that
includes plannin� implementation mzd evaluation of the improvement effons. By engaging in arr
intemal process to identz,fy' improvements, planning the implementation of the improvements, arrd
evaluating their impact, they will move away from the reactive mode to a more proactive
e�rvironment The new hire Jo perform dafa analysis, suggested in the Informalion and Analysis
recommendations, should be heavily irrvolved in this efJ'ort.
Recommendation #58. The CSO should identify, rrs part of it slrategic planning efforts, who its
cuslomers are and put processes in place to identify their needs and satisfaction with the
2000 Saint Paul Ciry Council Research
Perfo�m�ce Audit of rhe Cry of Samt Pwl's Cid�en Se�vice Office
ioi bl�'l
information and services provided by the Of�tce. This could be accomplished by initiating a formal
annual survey of its customers once they have been identifzed by staJJ'and management.
Recommend¢tion #59. The CSO should produce a written set of customer standards and circulate
them to all stafj: Based on the fact that employees currenrly follow an infornzal set of standards
Based on organ"uational values this should not be difficult. This will clarify customer ezpectations
for a11 stafJ'and aid in the training of new sraff.
Recommendation #60. Code Enforcement should provide customer service training ro its
irupectors and clerical staff in order to provide a more cottsistent customer focused attitude in the
course of carrying out their jobs. This would be in line with the vision from #he Mayor's Office
and the Director.
Recommendation #61. The CSO should be a leuder in developing a more useful, functional City
website. Some suggestions to reach this goal are:
• make permit and complaint forms earily accessible from the CSO's web page;
• standmd'ue the City website so all City department pages have a uniform, recognizable Zook;
• develop a stnndnrd complaintform; and
• create an auto-reply function for inquiries.
Recommendation #62: The Information and Complaint Division should generate customer
satisfaction reports and distribute them to all slaff in the CSO, as well as other departments. Over
SO percerrt of complaints received by the Information arrd Complaint Division are Code
Enforcement relatetl. This type offeedback would be iizvaluable for Code Enforcement to track
how it well it is doing. Moreover, the CSO should also provide these reports to relevant frontline
staff of other City depm�hnents and offices, such as Public Worlrs, LIEP and Parks and Recreation,
who also receive a large share of these complaints. The CSO should also consider posting these
reports on the City's web site so residents and City workers can track how well the Cify is doing to
resolve problems identifzed by citizens.
Recommendation #63: The CSO should include, in its planning for the implementation of the
fiMfINDR computer system, a discussion of what resulfs it wishes to tracic It should determine
whether these results can be adequately tracked by the new systems. The consideration of the
results suggested by staff'in 1he performance audit inlerviews are an ezcellent siarting point for
this discussion.
Recommendation #64: The CSO should compare its results to other similar organizations.
Recommendation #65: Senior leadership in the CSO should elearly detail goals for eac& work
activity in CSO through organizational vision and strategic planning efjorts. Staffshould be
informed about these goals cmd have an understanding of how their work is connected to the
achievemeni of the goals.
2000 Saint Pmel Ciry Cormcil Ruearch
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t02 Petfoimance Audit of t6e Ciry of Saint Paul's Citizen Service Dffice
Appendix F: CSO Performance Audit Survey
Answer the qoesfions 6y ciroling the number of the
response category which best answers the question or describes your opinion.
AN responses are anonymous. Thank you fo� your cooperation.
1. Plaus in my work area are mada..
4 At least twice a year
3 Annually
2 Every 3 years or more
1 Never
0 Don't lmow
* If never, go to quesrion 6,
2. The duratioos of the plaus ia CSO
are... (Circle all that apply)
3 More ffian three yeais (long term
Pl�)
2'I'hree years or less (short term plans)
1 Don't lmow
3. CSO makes the followiag types of
plans... (Circle all Wat apply)
3 Issue-sp�ific plans
2 Geneiat organizationai plans
1 Other
4. I regulady participate in CSO's
planning efforts
6 S�as�Y aS'ee
4 Agree
2 Disagee
1 Strongly IJisagree
6. The Mayor effectively couveys a clear
direction for the future of CSO
5 Strongly agree
4 Agree
3 Neither Agree nor Disagree
2 Disagee
I Sirongly Disagree
7. The CSO Dirertor conveys a clear
vision for the future of CSO
5 Strongly agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongiy Disagree
8. The CSO Director and managers
effectively convey the core values of the
orgauizalion
5 Strongly agree
4 Agree
3 Neither Agree nor Disagree
2 T}isagree
1 Strongly Disagree
9.
5. CSO plans are implemented frequently
5 Strongly agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Sh�ongly Disagree
mission
convey an organizational
5 Strongly agree
4 Agree
3 ATeither Agree nor Disagree
2 Disagree
1 Strongly Disagree
1000 Saint Paul City Counci! Research
Petfoimance Audit of the Gty ofSunt Paul's Ci6zen Service Office
10. Senior management is visible aad
accessible to empIoyees
5 Suongly Agree
4 Agree
3 Neither Agee nor Disagree
2 Disagree
I Strongly Disagree
11. The communicalion withiu CSO is
effective
5 StronglyAgree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Suongly Disagree
12. The Director and maaagers effecrively
recognize staff rnntributions
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
13. The Director aad managers eucourage
participation in pmfessional
organizations
5 Strongiy Agree
4 Agree
3 Neither Agree nor I}isagree
2 Disagree
1 Strongly Disagree
14. I have a good understanding of
performance ezpectafions in my area
of work
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
2 Strongly Disagree
303 01— r
15. The current employee evaleation
process is useful to emptoyees for
itnproving t6eir performance
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Ilisagree
16. CSO senior leaders, supervisors and
employees treat each other with
respect regardless at their race,
ethnicity, class, gender, age, national
origin, sexual orientation or p6ysical
ability
5 Strongiy Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
17. In CSO, labor and management work
wetl together
5 Suongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
18. My job makes good nse of my skilts
and abilities
5 Suangly Agree
4 Agee
3 Neittier Agree nor Disagee
2 Disagree
1 Strongly Disagree
3000 Snint Paazl City Cound! Rerearch
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i� Pafom�ance Audit ofthe City of Sai¢t Pau!'s Cifiun Se�vice Office
19. My work gives me a fee{ing of personal
accomplishment
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
20. Opportunities ezist for me to
contribute to t6e decisions made about
operalloas and procedures in CSO
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
I Strongly Disagree
21. I receive the training necessary to
perform my job effeciively
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
22. 2Ky individual perFormance is
evaluated...
4 Twice a year
3 Annuaily
2 Every 3 ye�s ar �„^re
1 Never
Z3. The current employee evaluation is
nseful in 6elQing me improve my
performance
5 Strangly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
24. CSO collecffs data to effectively
support its activities
5 Strongly Agree
4 Agee
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
25. The collected data is useful and
relevant to fhe work performed in
CSO
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagee
1 Strongly Disagree
26. CSO uses data to evaluate its activities
and to improve its performance
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
27. The CSO's information systems
cnrrenUy meet my needs
5 Strongly Agree
4 Agree
3 Neither AgrPe nor Disagree
9 Te.__�—__ ._ —
1 Strongiy Disagree
28. Activi6es in CSO are formally
evaluated...
4 Twice a year
3 Annually
2 Every 3 yeazs or more
1 Never
0 Don't know
* if never, go to question 30
2000 Saira Paul City Cour`cil Resemch
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Perfomcarrce Audit af fie City of Sainc Pwl's �tizm Secvice O&ce
29. CSO practiees are regutarly chauged
based on the results of ttee evaluations
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
30. CSO frequently changes the way work
is done to improve performaace
5 Strongly Agree
4 Agree
3 Neithet Agee nor Disagree
2 Disagree
I Strongly Disagree
31. Administrative practices (such as
forms and reporting proeedures)
within CSO are reviewed frequently
for improvement
5 Strongly Agree
4 Agee
3 Neither Agree nor Disagc�
2 Disagree
1 Strongly Disagree
32. The performance of CSO's vendors
(providers of goods $nd contracted
serveces) is regularly eva]uated
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
i Strongly Disagree
33. I know wLo the customers of CSO are
5 Strongly Agree
4 Agee
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
105
34. List who you consider to be the
customers of CSO
5
4
3
2
1
35. CSO staff frequentiy monitor for
chaages in castomer NEEDS
5 Strongly Agree
4 Agee
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
36. The CSO is responsive to c6anges in
customer NEEDS
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
I Strongly I3isagree
37. CSO staff frequenNy monitor for
chaages in customerSATISFACT70N
5 Suongly Agree
4 Agrce
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
38. CSO is responsive to changes in
customer SAT7SFACTION
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
I Stroagly Disagree
2000 Saint Paul Ciry Comrcil Rcxarch
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1 � PerFotmance Audit of ihe Crty of Sa3nt Paul's Citizen Service Office
39. CSO has customer service standards
for my area of work
S Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
i Strongiy Disagree
40. CSO's customer service staadards are
written
5 Strongly Agree
4 Agree
3 Neither Agee nor Disagree
2 Disagree
1 Strongly Disagree
41. I anderstand CSO's customer service
standards
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
42. StaB'fotlow established customer
service standards
5
4
3
2
i
Strongiy Agree
��
Neither Agree nor Disagree
Di ee
44. CSQ cnmpares its results to thase of
similar organizations
5 Strongiy Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
1 Strongly Disagree
45. CSO often achieves its desired goals
5 Strongly Agree
4 Agree
3 Neither Agree nor Disagree
2 Disagree
i Strongly Disagree
41. How do you know goals have been
achieved? (Please egplain�
DEMOGRAPHIC QUESTIONS
How long have you been employed by
CSd?
5 less than one year
4 1 to 5 yeais
3 5 to 10 years
2 10 to 20 yeazs
1 20 or t*_:� y2a�
� --
Strongly Disagree �:,,. _. . _ - ---_---- - --- - _ _
___ _ ------ `�` �.`;:'�; �� emproyee are you?
-- — — --
-- " 43. CSO regularly measures the results of
its activities
5 Suongly Agree
4 Agree
3 Neither Agee nor Disagree
2 Disagree
1 Strongly Disagree
3 fuil time
2 part time
I intem
Wh�t area do yon work in? (Circle all that
apply)
4 City ClerklR�ords
3 Information & Complaints
2 Code Enforcement
i Marketing & Promotions
1000 Sain[ Paul Ciry Covncil Resemch