HomeMy WebLinkAboutFCS-11-111 - Transportation Planning Resource Review1
Staff Report
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REPORT T0: Community & Infrastructure Services Committee
DATE OF MEETING: May 30, 2011
SUBMITTED BY: Corina Tacker, Internal Auditor, x2361
PREPARED BY: Corina Tacker, Internal Auditor, x2361
WARD(S~ INVOLVED: ALL
DATE OF REPORT: April 27, 2011
REPORT NO.: FCS-11-111
SUBJECT: TRANSPORTATION PLANNING RESOURCE REVIEW
RECOMMENDATIONS:
For information only.
EXECUTIVE SUMMARY:
The transportation planning division had requested three new positions through the 2011 budget process in
order to effectively manage the new parking enterprise and implement the transportation demand
management (TDM) program and cycling master plan. Council did not approve the request for the
additional staff at that time.
Internal audit has been requested to provide an unbiased, independent analysis of the resource
requirements in the transportation planning division in order to assist the division in determining the best
way to accomplish their goals.
In summary, the research shows that the drivers of workload in the division have increased significantly
over the last 10 years with no corresponding increase in staff levels. In fact, staffing levels have actually
decreased and staff consistently works overtime to accomplish their day to day tasks. In the future
population growth across the city will drive more development and workload in the division. In addition, if
the TDM program, cycling master plan, additional traffic calming studies and other strategic initiatives are
implemented the demand on resources will only increase. It is clear that the current staff complement and
processes will not support this increase in workload. The division will need to either add more staff,
reengineer their processes (if even possible}, and l or decrease the scope of their work if they wish to
accomplish their goals and objectives.
This report is meant for background information only and is not intended to be a recommendation to
Council. The division has then used the research provided in this report in their analysis which is outlined in
report INS-11-039.
Report FCS-11-011 Page 1
14a - 1
BACKGROUND:
On Sept 7, 2010, Council approved report DTS-10-144 Cycling Master Plan which identified not only an on
road and off road cycling network, but also a series of policies and programs to allow the City to develop a
cycling network that will provide a viable alternative to the single occupant vehicle. Funding for the
implementation was referred to the 2011 budget.
On January 24, 2011, Council approved report INS-11-005 the Parking Enterprise Business Case which
established a business unit to manage and operate the City's parking portfolio. It defined a number of
business practices that would be followed including the recommendation of an annual dividend, the hiring of
a Parking Manager, a Transportation Demand Management Coordinator and a Transportation Planning
Project Manager all to be funded from the Parking Enterprise. In addition, the Cycling Master Plan
implementation and the Transportation Demand Management initiatives were both to be funded annually
from the Parking Enterprise in the amount of $200,000 each. Funding for the Parking Enterprise and the
associated staff positions to implement these programs (Parking Manager, TDM Coordinator and
Transportation Planning Project Manager} were all referred to the 2011 budget.
On Feb 14, 2011, Council approved report INS-11-016 Transportation Demand Management Plan which
identified a series of initiatives and programs that will encourage people to choose what, when, and how
they travel in an effort to reduce single occupant vehicle use. Funding for the implementation of the TDM
Plan as well as the TDM Coordinator position was referred to the 2011 budget.
During the 2011 Budget Review, Council chose to use the funding that had been allocated for the Cycling
Master Plan implementation, the TDM initiatives and the corresponding staff positions to reduce the levy
impact. Without these funds and the resources necessary to develop and implement the plans, staff have
indicated they are unable to proceed at this time with any of these programs.
In addition, Council did approve an additional $100,000 to implement two or more traffic calming reviews.
At the time, Council was informed that this was not possible given current workload and that a report would
be brought back with options to increase the number of traffic calming reviews that are undertaken annually.
The purpose of this report is to provide background analysis of workload in the Transportation Planning
division.
REPORT:
Ob "ective
The objective of this review is to provide an unbiased assessment of the current and future workload and
associated resource requirements in the Transportation Planning division.
Scope
The review looked at the following areas:
• Existing job descriptions and actual work performed
• Capacity and utilization of each position including overtime worked
• Analysis of drivers of workload
• Future changes to the environment which will affect workload
• Review of new proposed job descriptions
This review does not include a detailed process review. While this report analyzes the drivers of workload
now and in the future, it does not look at whether current processes could be done differently or more
14a - 2
efficiently. It will be up to the division to recommend to Council what level of resources is required based on
the data contained in this report and other analysis they may conduct.
Methodology
The following research and analysis was undertaken for the review:
• Interviews with all staff in the division
• Review of job descriptions for each position
• Research related to the drivers of workload comparing 2001 levels to 2011
• Review of three new job summaries
• Benchmarking with other municipalities regarding organizational structure and resource levels
Current Environment
The division is organized into three sections -Parking Enterprise, Traffic Operations, and Crossing Guards
as shown below.
Director,
Transportation Planning
Admin Assistant
Supervisor,
Traffic Operations
Transportation
Planners (2)
Traffic Project
Coordinator
Traffic Technologists (2)
Co-op Student
Summer Speed
Advisory Student
Supervisor,
Parking Enterprise
Parking Electronic
Technician
Parking Maintenance
Attendant (3)
Parking Administrator
Event Attendants (28)
Supervisor,
Crossing Guards
Crossing Guards (99)
The director provides oversight of the division, strategic direction, represents the city on various projects
and initiatives, develops and implements policies, develops business cases and manages construction of
new parking structures, and administers the city street lighting program.
14a - 3
Traffic Operations:
The traffic section operates with 6 full-time staff including the supervisor, and 2 part time / co-op traffic
counter positions which are utilized during the summer months. The positions in this section have remained
fairly constant over time with the exception of a decrease in one traffic technologist position.
This section is facing pressures related to a request from Council to perform twice as many traffic calming
studies as currently performed, and public desire forthe Transportation Demand Management program and
Cycling Master Plan to move forward, in addition to growth in the city.
Parking Operations:
The Parking section operates with 6 full-time staff including the supervisor. The section also oversees an
event attendant coordinator and 27 event attendants who operate at the Centre In The Square during
events. The section has seen a decrease of 1 full time and 4 part time cashier positions over time due to
the automation of the parking structures. All other positions have remained constant.
This section is facing pressures related to the added strategic responsibilities associated with running a
Parking Enterprise and pressures to move the Transportation Demand Management program and Cycling
Master Plan forward, in addition to growth in the city.
Crossing Guards:
The crossing guards section operates with one supervisor and 99 part-time crossing guards. This section
has seen growth in the number of crossing guards due to population and school growth across the city.
Interview Summa-y
In order to evaluate the current situation, internal audit conducted personal interviews with all full-time staff
in the division and asked them to complete a questionnaire. The following chart summarizes the data
collected. Please note that these are the opinions of staff and do not reflect the auditor's opinion.
Question Summary Responses
What are the key responsibilities in 100% of employees report that their current duties are accurately
your role? Are they different from reflected in their job descriptions with only a few minor exceptions.
your job description?
What are the key drivers of In Traffic, the key drivers are:
workload in your position and/or Development
the division as a whole? i.e. Large scale environmental assessments driven by
population growth, development, Engineering
etc. Requests for traffic calming studies
• Long-term policy direction, i.e. cycling master plan, TDM
• Population growth
• Road reconstruction
In Parking, the key drivers are:
• Number of parking structures and lots
• Number of pieces of equipment
• Special events in the Downtown core
14a - 4
• Winter maintenance of lots
• Number of customers and spaces managed
In Crossing Guards, the key drivers are:
• Number of staff supervised
• Population
How might future changes within Development applications, subdivision and site plans are
your division orwithin the City becoming more complex and require more scrutiny
affect yourworkload? Increased demand for traffic calming studies from public including
35 outstanding reviews still to be completed
• Implementation of TDM and Cycling Master Plan will require
additional resources
• Accelerated infrastructure replacement program led by
Engineering will continue to increase workload
• Redevelopment of surface lots
• Projected growth of Parking Enterprise
Are there currently any gaps in Inability to take on additional tasks and complete lower priority
service or meeting customer tasks such as policy and procedures review
expectations? Little time for strategic planning or review, very reactive day today
operations
• Public expects us to implement the Cycling Master Plan but not
currently achievable due to resource shortage
• Public expects us to implement the TDM master plan, but not
currently achievable due to resource shortage
Do you currently perform any tasks 100% of responses indicate that there are no non-essential tasks
or are there any processes that being performed and all functions are being performed as effectively
you feel are not adding value to as possible at the present time.
your service mandate, orthat may
be improved or eliminated? If so,
please provide a brief explanation
of how these might be addressed.
How many hours do you work in a Approximately 80% of employees work an average of 2-6 additional
typical week? If you work overtime, hours perweek in order to complete their work. The directorworks on
either paid or unpaid, indicate what average 7-10 additional hours per week. Very few employees are
tasks drive the need for the extra claiming any overtime but some are using the flex time option.
hours.
Does the current organizational No, current structure does not support the initiatives we have
structure support the committed to deliver. Require additional staff to manage the parking
accomplishment of your mandate enterprise, implement TDM and Cycling Master Plan, and assist with
and goals? If not, what could be transportation -traffic projects.
improved? The 3 positions requested are essential for the division to meet its
mandate and move forward with the approved strategic direction
Is there anything about Replacement and succession planning are critical as the Director is
Transportation Planning that you less than 3 years from retirement.
would like to add?
Workload Drivers
Comparative data was gathered related to the drivers of workload identified through the interviews.
Statistics from 2001 were compared to 2011 indicators to identify the percentage change in workload
14a - 5
drivers and staff complement over the 10 year period. A summary of this data is provided in Appendix A. It
can be concluded that workload has increased dramatically over the past 10 years in all areas with no
corresponding increase in staff. In fact, staff have decreased in the traffic section. Staff report that they are
consistently working overtime to perform the day today operations, with little or no time left to spend on
strategic priorities.
In the parking section, which has recently become a parking enterprise, staff levels in the 10 year period
have decreased by 1 full time and 4 part time cashier positions due to the automation of the parking
structures. For comparison purposes it can be said that the staffing level has remained constant in the 10
year period. The key drivers of workload have all increased. The number of surface lots and parking
spaces has increased by 4%. The number of parking structures has doubled from 2 to 4 and another 3 are
expected to come into operation in the next few years. The number of monthly parking customers has
increased by 21 %. All of these factors are driven by the demand for parking in the downtown which in turn
is driven by the number of residents and employees in the downtown. Downtown residents have increased
by 30% since 2001 and downtown employees have increased 19% since 2004 (2001 figures unavailable).
Projects such as the City Centre Condominiums and other economic development initiatives will
undoubtedly increase those numbers further in the coming years, putting pressure on the parking enterprise
not only operationally but strategically as well, as TDM initiatives are brought forward.
In the traffic section staff have decreased by 14% due to one traffic technologist position being removed.
Although there are several specific drivers of workload listed in appendix B which have increased, in
general population growth and development affect the work in the section. As mentioned above the city's
population has increased 20%. It has been noted that the two traffic technologists currently perform 2 traffic
calming studies per year and are working at full capacity to do so given other studies, environmental
assessments, and addressing road safety concerns which are part of their job descriptions. The addition of
2 more traffic calming studies this year effectively doubles their workload with no corresponding increase in
staff.
In the crossing guard section the workload of the supervisor is directly related to the number of crossing
guards they are responsible for. From 2001 to 2011 the number of staff has increased by 34% driven by a
20% increase in the city's population. It should be noted also that the supervisor is heavily involved in the
Cycling Master Plan. As the city's population continues to grow more schools will be built requiring more
crossing guards. Although not identified in this review as an immediate need, thought should be given to
adding a second supervisor at some point in order to reduce the staffto supervisor ratio and maintain
adequate supervision of staff.
The traffic project coordinator's work is driven by the number of road projects under way. The city's
accelerated infrastructure program indicates that 8.67 km need to be completed per year in order to stay on
track to replace all infrastructures greater than 80 years old. The program is currently only completing 4 - 5
km per year due to resource constraints in other divisions. It has been noted by staff within the
transportation division that despite the overall need for the three new strategic positions, the traffic project
coordinator is extremely busy and could use additional support. If the accelerated infrastructure program
ever gets in a position to complete the required number of kilometres per year additional support will
definitely be needed.
14a - 6
Benchmarkin_q
Several internal audit and transportation division counter parts were contacted to obtain benchmarking
information. The 6 municipalities who were able to provide information in the required time frame included:
Oakville, Hamilton, Pickering, Barrie, Thunder Bay and London. Data was gathered using a survey and
follow-up phone interviews. Information was gathered regarding the structure of their transportation
division, including roles and number of staff, operating budget and whether they operated as a Parking
Enterprise. This data can be found in Appendix B.
The data shows that Kitchener's Parking Enterprise is a unique business model and that very few
comparisons can be made with other municipalities. The auditors were unable to draw any conclusions
from the data as the scope of work and mandate in the other municipalities are not comparable to the City
of Kitchener.
Proposed New Positions
Report # INS-11-005 recommended the creation of three new positions in order to effectively manage the
new Parking Enterprise and implement the Cycling Master Plan, Transportation Demand Management
program (TDM), and develop other strategies and initiatives to support the policies to be developed under
TDM. These positions include a manager of parking, a transportation demand management coordinator
and a transportation planning project manager. Their proposed responsibilities and organizational structure
are shown in Appendix C.
In the original report the manager of parking and the TDM coordinator positions were to be fully funded from
within the parking enterprise. The transportation planning project manager would be equally funded from
the parking enterprise, the development charge fund and street lighting capital project accounts.
Cnnrlusi~ns
Staff in the transportation planning division are high-functioning, cohesive, knowledgeable and committed to
high levels of service. It was clear to the auditors that staff supported each other and worked together to
achieve the mandate of the division.
The data gathered for this resource review is consistent in concluding that the division is operating at full
capacity, and at times, beyond capacity based on staff responses regarding overtime worked. There is no
question that existing staff are unable to assume additional workload in order to move several key initiatives
forward or manage future growth in the city without something changing -whether that be the scope of
work they perform, the processes or the amount of staff allocated to perform the work. There are currently
no opportunities to reassign staff responsibilities orshift workload in order to take on the new tasks outlined
in the three new position descriptions. Note that these conclusions are based on the analysis of overtime
worked and the assumption that these new initiatives will take additional staff time to complete. Since a
detailed process review was not conducted as part of this review no opinion is being given regarding the
efficiency of current processes or staff.
Further, the director plans to retire in less than three years. Given the number of diverse roles and
responsibilities and accumulated knowledge of the current director, his succession is noted here as a high
risk requiring immediate mitigation in the form of succession or replacement planning, training and
documentation of key knowledge. It has been noted that the director currently performs many of the day-to-
dayoperations of the division in addition to strategicwork and works on average 42 -45 hours per week.
This is cause for concern because his replacement may not have the ability to work that many hours nor
14a - 7
should they be expected to. Not to mention that work may take longer to complete until the new director
accumulates as much background knowledge as the current director possesses. Thought should be given
to transitioning some of the director's workload to other staff as part of the replacement planning process.
Parking Enterprise
It is the auditors' opinion that the parking enterprise will not realize its potential as a business unit without a
manager dedicated to achieving the expected results and moving the unit forward strategically. When
reviewing the position descriptions the auditor questioned why both a manager and a supervisor position
were required as it seemed more intuitive to elevate the supervisor position to the more strategic manager
level in order to accomplish the mandate of the enterprise and add another staff person in the operational
area to support growth rather than having two management level staff.
However, it was explained that the supervisor position should be maintained in order to manage the day-to-
dayoperations including the tasks listed below while the manager position would take on the more strategic
aspects such as capital projects, policy and program development, and development of a capital repair
program. These tasks are currently being done by the director. Moving them to the manager position within
the enterprise makes sense and also helps address the issue of the workload in the director position.
Parking Supervisor responsibilities:
• Direct supervision of 5 full time staff and 28 part time event attendants
• Oversight of the collection and storage of parking revenue
• Working with the public, customers, business owners, BIA and city staff to understand and
respond to complaints, requests and issues related to parking services
• Supervise performance standards, policy development and service levels related to parking
meter operations, lotlgarage operations, section administration, lot maintenance and security
levels
• Supervise all repairs /improvements to parking facilities and equipment
• Budget preparation and monitoring
If funding sources are not available in the current year for this position serious consideration should be
given to adding this position in the 2012 budget process. Without it there is a high risk that the parking
enterprise will not meet its financial and strategic objectives, particularly once the director retires since they
are currently performing much of the strategic work for the parking enterprise.
Transportation Demand Management
The proposed TDM position is essential for the implementation of the TDM program and the Cycling Master
Plan. This is a new body of work currently not encompassed in existing roles. Given that all other roles are
operating at capacity there is no opportunity to assign this work to the existing complement. Therefore, if
Council decides that these initiatives are a priority then a commitment for this new position will need to be
made. The specific work assigned to this position has not been scoped out by the auditor and therefore an
opinion around whether this needs to be a permanent full time position is not being put forward at this time.
Transportation Planning Project Manager and Traffic Calming
The third new position, the transportation planning project manager, was envisioned to provide analytical
support, traffic and transportation studies, and support the street lighting program which is currently being
handled by the director.
14a - 8
However, this was prior to Council's request for 2 more traffic calming studies per year. If Council decides
that traffic calming is a priority then a commitment for more resources will need to be made. Traffic calming
studies could be added into the responsibilities of this new position for up to 50% of the role. Without this
resource additional traffic calming studies will be impossible to complete in the existing complement.
This role would also have the added benefit of removing workload from the director position.
Crossing Guards
Although not an immediate resourcing need, the staff to supervisor ratio in the crossing guard section
should be monitored over the coming years and it should be recognized that an additional supervisor may
be needed within the next 5 years.
Traffic Project Coordinator
Currently this position is stretched beyond capacity with the number of road projects under way across the
city. If Council commits to supporting an increased level of construction under the accelerated infrastructure
program incoming years, funding will also need to be provided for at least another part time traffic project
coordinator.
In summary, there is a risk to the achievement of the city's strategic priorities in the areas of TDM, the
Cycling Master Plan, community safety, and fiscal responsibility (as it relates to the parking enterprise)
should Council not support additional staff in this division. The proposed positions make logical sense and
are supported by strong evidence of a growth in workload and additional initiatives.
ALIGNMENT WITH CITY OF KITCHENER STRATEGIC PLAN:
Analyzing resource requirements falls within the Efficient and Effective Government plan foundation area of
the Strategic Plan.
FINANCIAL IMPLICATIONS:
NIA
COMMUNITY ENGAGEMENT:
N/A
ACKNOWLEDGED BY: Dan Chapman, DCAO, Finance and Corporate Services
14a - 9
1
Staff Report
Krr~.~-~~,~R Finance and Corporate Services Department www.kitthener to
Appendix A -Workload Drivers
Cummulative
Workload Driver 2001 2011 Change
Parkina Enterprise
0
Total staff 7 FT, 5 PT 6 FT,1 PT see note
# of parking lots 25 26 4%
# of parking
structures 2 4 100%
# of spaces 2797 2915 4%
# of monthly
parking
customers 1534 1850 21
downtown
population 1610 2085 30%
# employees
downtown 10354 12316 19%
Tra ffic
Total staff 7 6 -14%
population 191,500 229,400 20%
# of work orders
service requests 386 400 4%
# of subdivision
site plans/zone
change l plans of
condominiums
pre-applications 148 260 76%
# of committee of
adjustments 66 127 92%
# of oversize load
permits 89 398 347%
# of road projects 50 46 -8%
# municipal
consents
reviewed 0 192 192%
Crossing Guards
Crossing Crossing
# of staff Guards - 82 Guards - 99 34%
Population 191,500 229,400 20%
**Note: the decrease in 1 F/T and 4 P/T staff is due to the automation of parking payment; all other
positions remain constant and therefore the effective change is 0 % .
Report FCS-11-011 Page 1014a ~ 10
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14a - 11
Appendix C -Proposed New Position Descriptions
1. Manager of Parking Enterprise
• Development of supporting policies and business practices
• Reporting to Council as needed
• Development of capital repair programs, i.e. garage structural monitoring
and repair
• Capital expansion -managing the construction of two existing parking
structure projects and two additional garages expected within the next
two years
• Development of customer based programs and initiatives
• Dedicated management of the parking enterprise as a business unit
2. Transportation Demand Management Coordinator
• Implement the cycling master plan and transportation demand management
program
• Both programs require a public paradigm shift to move this city towards a less
auto oriented society and will include the development of policy, programs,
infrastructure and education
• Both city and private initiatives will be implemented through these programs
3. Transportation Planning Project Manager
• Major transportation studies, both city and regional
• Municipal street light program
• Major parking studies
• Research and analytical support for transportation, parking, engineering and
planning for transportation initiatives
14a - 12
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Krr~:~~,i~~R Finance and Corporate Servxes Department www.kirchener ca
Report FCS-11-011 Page 13
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