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CIVIL SERVICE SOARI OFFICE
331E PAN AMERICAN DRIVE
P. O SOX 7'08
MIAMI_ FLA 33132
The Honorable Maurice Ferre, Mayor
City of Miami, Florida
City Hall, 3500 Pan American Drive
Miami, Florida 33133
Dear Mr. Mayor:
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101.1111.101111111110111111.1.1111111111
ROBERT L. i'A,JLK, .,P.
EXECUTIVE SEC at rAtR
January 24, 1974
The Civil Service Board, at a special meeting on January 22, 1974, called
for the purpose of discussing the second report on Human Resource Manage-
ment System by Booz, Allen and Hamilton, Inc., dated January 18, 1974,
unanimously voted to advise you that it is in opposition to the imple•
mentation of the report, as provided.
In its consideration, the Board wishes to acknowledge that in the research
for the report, members of the Board and the Civil Service Staff were in-
volved in many interviews conducted to elicit information by the team of
Booz . Allen consultants, along 'with numerous other officials and employees
of the City of Miami, and welcomed the opportunity for assistance. Although
the Board is opposed to the remedy offered in the recommendation by Booz,
Allen and Hamilton, Inc., it must acknowledge that there are and have been
areas revealed in the report which nzed to be rectified and which, in many
instances, have already been or are being faced under the current organi-
zational structure of the City, with projected solutions. It would be pre-
sumptuous for the Board to conclude that the firm of Booz, Alien and Hamilton,
Inc. could not assist the City of Miami to resolve some of its problems with-
out demolishing existing structures. In every operation there are flaws which
constantly need attention and the solution to one oftentimes produces another,
no matter how good the intent.
The Booz . Allen report was developed over a period of approximately six (6)
months and in a rather hasty review of the report, the Board finds numerous
inadequacies which will be presented to the Commission in a later report which
is being prepared. One of the most glaring examples, however, is made in
Vice President Stuart M. Matlins' statement contained in the introductory
letter for the report which states, "We believe that the changes recommended
in this report do not require changes in the City Charter."
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The Honorable Maurice Terre
Page 2 January 24, 1974
It is the conviction of the Civil Service Board that not only will Section 63
of the City Charter have to be amended to implement the recommendations of
this report; there will also have to be amendments to the Civil Service Rules,
and it is the further conviction of the Civil Service Board that to.implea
went this report would be the key to total destruction of the City's Civil
Service System which, with its existence, provides a healthy check and balance
in the management processes between Management and ita employees.
In behalf of the Civil Service Board, I remain
Respectfully yours,
Robert L. Paulk, Jr.,
Executive Secretary
Civil Service Board
RLP:bds
"SUPPORTIVE
D C CU M ENTS
FOLLOW„
CIrt o? MtAMI, ,=LO IDA
1NTcR-Cr =1Cr „'._gy 7. r.ANDUM
Honorable Members of
the City Commission
i ie.)
/P. VT. Andrews
City Manager
S U31'c�..
J.AN 13 i
L-'ooz • Allen & Hamilton Public
Administration Services Report
RSFSP'ENC29:
S NCl03UA=3:
•
February 6, 1974, the City Manager will provide resolutions and
ordinances needed to implement those areas of the ttvo reports that
Omeet the approval of the City Commission.
"SUPPORTIVE DOCUMENT
The City of Miami. contracted the firm of Booz • Allen & Hamilton to
conduct a 3-year Management L-nprovement Program which was
financed in part by a Federal Grant from the Department of Housing
and Urban Development under Section 701 of the Cornprehensive
Planning and Management Assistance Program.
Enclosed you will find the second report on the subject matter of a
Human Resources Management System. Additionally, the firm of
Booz • Allen & Hamilton will make a presentation at the City Com-
mission Meeting of January 24, 1974, at which time they will provide
the City Commission with additional information and the highlights of
the report.
In an effort to provide the City Commission with sufficient time to
study and analyze the report and the recommendations contained
the -rein, I am recommending the following procedures.
At the City Commission_ Meeting of January 24, 1974, the firm of
Booz • Allen & Hamilton will provide information on the report of
Human Resources to assist the City Commission in better understand-
ing the intent of the report. The City Commission received the first
report entitled "Strengthening the Department Structure of the City
of Miami" several months ago. It is proposed that additional
elements of this report and the study of the Human Resources be
implemented at the earliest possible date after the City Commission
has accepted and approved the contents of each of the reports.
It is further proposed that at the following Commission Meeting of
' ) J cc: Honorable Maurice A. .Ferro, Mayor DO��
,,� 0 Honorable Manolo Reboso, Vice Mayor j' O:
L., IL Honorable Theodore R. Gibson
7 Honorable Rose Gor!e 1/ []don difr:1Honorable J. L. Plun�rner, Jr.
(''. ies of t ii report will be deli:-_ redi (`:? Monthty, J aruar y 2,7 , 1974, to:
Civ:1 ervice Board, Department Directors, and Employee Representatives,
DEVELOPING A
HUMAN RESOURCE
MANAGEMENT SYSTEM
CITY OF MIAMI
MANAGEMENT IMPROVEMENT PROGRAM
MIAMI, FLORIDA
Developing A
Human Resource Management System
CITY OF MIA MI,
FLORIDA
January 18, 1974
This study was financed in part by the Department of Housing
and Urban Development under Section 701 of the Housing Act
of 1954, as amended.
Booz, Allen & Hamilton Inc.
TABLE OF CONTENTS
LETTER OF TRANSMITTAL
I. A SUMMARY OF RECOMMENDATIONS FOR
DEVELOPING A HUMAN RESOURCE
MANAGEMENT SYSTEM
Page
Number
1
II. AN OVERVIEW OF THE CONCEPT OF HUMAN
RESOURCE MANAGEMENT 10
III. OPPORTUNITIES FOR IMPROVING HUMAN
RESOURCE MANAGEMENT 15
IV. RECOMMENDED POLICIES AND PLANS FOR
DEVELOPING A HUMAN RESOURCE
MANAGEMENT SYSTEM
33
V. LONG-TERM IMPLEMENTATION PLAN FOR A
HUMAN RESOURCE MANAGEMENT SYSTEM 68
A. GLOSSARY OF TERMS
APPENDIX
INDEX OF EXHIBITS
Following
Pa.__ ge __.
I. HUMAN RESOURCE MANAGEMENT
SYSTEM !1
II . PROPOSED STRUCTURE OF HUMAN
RESOURCE SERVICES •
III. DEPARTMENTAL SERVICES NETWORK
WITH PROPOSED STAGE II ORGANIZA-
TION
34
37
IV. ILLUSTRATIVE QUARTERLY PERSONNEL
STATUS REPORTS FOR FY74 & FY75 49
V. TENTATIVE STAFFING REQUIREMENTS
AND INCREMENTAL COSTS FOR FULL
IMPLEMENTATION OF HRMS
62
VI. EXAMPLES OF POTENTIAL HRMS BENEFITS 65
VII. PRESENT AND PROPOSED RESPONSIBILITIES
IN HUMAN RESOURCE MANAGEMENT IN THE
CITY OF MIAMI
VIII. THREE YEAR DEVELOPMENT PLAN FOR
HRMS AND RESTRUCTURED MANAGEMENT
ORGANIZATION
66
70
IX. PROPOSED ASSIGNMENT OF IMPLEMENTA-
TION RESPONSIBILITIES 71
BOOZ•ALLEN & HAM ILTONIt,e.
Management Consultants
Mr. Paul W. Andrews
City Manager, City of Miami
City Hall
Miami, Florida 33133
Dear Mr. Andrews:
NEW TOP* WASNtNO•ON CLEVELAND
CHICAGO DALLAS LOS ANGELES SAN XPANCISCO
TORONTO MEXICO CITY SAO PAULO
LONDON PARIS DUSSELDORR
245 PARK AVENUE
NEW YORK • 10017
897-1900
ANtA CODE 212
January 18, 1974
Booz, Allen & Hamilton is pleased to submit this report on Developing
a Human Resource Management System (HRMS) in the City of Miami. This
is the second report in a series of studies commissioned under the City's
three-year Management Improvement Program and financed in part by the
federal government under Section 701 of the Housing Act of 1954. It is
part of our work to assist the City of Miami to strengthen its government
and improve the quality and quantity of services delivered to residents
and visitors.
Our first report covered findings, conclusions, and recommendations
for strengthening the department -level organization structure of Miami
city government. It established a context for improvements in the area
of human resource management as discussed in this report.
Mr. Paul W. Andrews
January 18, 1974
Page Two
This report is organized into five chapters:
Chapter I --A Summary of Recommendations for
Developing a Human Resource Management
System
Chapter II --An Overview of the Concept of
Human Resource Management
Chapter III --Opportunities for Improving Human
Resource Management in the City of Miami
Chapter IV --Recommended Policies and Plans
for Developing a Human Resource Management
System in Miami
Chapter V--Long-Term Implementation Plan for
a Human Resource Management System
In addition, a glossary of terms is included as an Appendix to the
report to provide clear definitions of terms that may be unfamiliar.
The report proposes a Human Resource Management System for
the City which would comprise four major components:
Position Management
Personnel Procurement
• Manpower Development
• Employee Services
These components encompass a broad range of issues important to the
management of human resources in Miami including:
• Streamlining the hiring process so that position openings
in municipal service can be filled promptly and efficiently.
Mr. Paul W. Andrews
January 18, 1974
Page Three
Reviewing and analyzing position qualifications and
entry requirements to ensure all selection instruments
and job criteria are job -related and valid.
Structuring job content to meet all work requirements while
providing job satisfaction and encouraging minority partici-
pation in the city work force.
Improving the process of evaluating employee performance
in order to identify and reward outstanding performers.
Providing for the systematic anticipation of future manpower
needs based on improved management information on work
output and employee utilization together with planned re-
cruitment scheduling.
Increasing the opportunities for employees to develop
job -related skills and refining the promotion system to
encourage selection of those individuals most appropriately
qualified, based on merit principles, for advance level
positions in municipal service.
Providing for more regular and thorough orientation and
counseling of city employees to facilitate the flow of
information and improve communications between employees
and management.
A merit -based civil service system currently is the keystone of personnel
management in the City of Miami. Established by City Charter, its basic
principles govern the selection, retention, and advancement of all city
employees in classified service. Miami's civil service system is predicated
upon the traditional model of merit -based public employment that grew out
of reformist reaction to "spoils" government, which was prevalent in many
states and localities throughout the country earlier in this century.
Mr. Paul W. Andrews
January 18, 1974
Page Four
.Although merit principles still prevail in Miami and must be maintained
in policy and practice, certain methods and procedures used to carry out the
merit principles do not meet the existing and emerging needs of a city of
350, 000 people and some 3, 700 employees in the 1970's. This is particularly
significant in light of the fact that 80-90% of most city department budgets are
spent on employee salaries and benefits. Strengthening the management of
these human resources thus becomes a fundamental priority of Miami city
government if it is going to provide city services at appropriate levels of
quality and quantity.
This report recommends steps to modernize, expand, and reorient
current civil service and other personnel management methods and procedures
within a systematic framework covering all human resource management
functions. It does not recommend any changes in the civil service system
that would alter or diminish the basic policy of merit -based employment.
Key recommendations include:
Refocussing the role of the Civil Service Board as a
policy making, advisory and appeals body to strengthen
its fact finding and adjudicative authority and its ability
to service the Commission.
Assigning responsibility to the City Manager for day-to-day
administration of the civil service system, as well as other
day-to-day aspects of personnel management.
Mr. Paul W. Andrews
January 18, 1974
Page Five
Creating a new Department of Human Resource Services
under the administrative direction of the City Manager
to centralize all personnel administration related activities
in Miami city government.
Increasing the flexibility of the civil service system in
order to attract, develop and retain the most appropriately
qualified candidates for municipal service positions.
Undertaking a comprehensive effort to analyze key positions
in municipal service to determine relevant tasks, qualifications,
criteria and training requirements for each job.
Launching a vigorous affirmative action program to increase
minority and female representation at all levels of Miami
city government.
Placing the new Human Resource Services Division under the administrative
control of the City Manager is managerially the most sound and rational approach.
The City Manager is accountable for service delivery. The delivery of service
is personnel based. He must therefore have administrative control over the
resources required to produce the services for which he is accountable. The
administrative control must be exercised within the constraints of a carefully
protected merit -based civil service system under the review and authority
of a strong, independent Civil Service Board and Commission. All of these
essential elements of a system of checks and balances are provided in the
Human Resource Management System recommended in this report.
We will be pleased to discuss any questions or comments you, the
Commissioners or others may have on the content of this report. We
Mr. Paul W. Andrews
January 18, 1974
Page Six
recognize that the City is anxious to begin making near -term improvements
in various areas of human resource management and we are ready to assist
in the implementation process. As discussed with the Commission, change
may be a threatening process. Nevertheless, if the City of Miami is to
become stronger, change is a necessity. We believe that the changes
recommended in this report do not require changes in the City Charter.
Rather they require action by the Commission, City Manager or Civil
Service Board. We would emphasize, therefore, that these bodies will
retain the power to undo anything they have done if changes made do not
produce desired results.
Before finalizing our recommendations we attempted to obtain the
viewpoints and perspectives of a broad variety of knowledgeable and
concerned individuals. Toward this end we held individual interviews or
group meetings with all City Commissioners, the Civil Service Board and
employee representatives as well as Department Directors and other city
employees at all levels. We appreciate the cooperation we received and the
candid exchange of viewpoints that took place.
We look forward to joining with the City of Miami to carry out the imple-
mentation stage of our work program in the coming months.
414
Stuart M. Matlins OOZ, ALLEN & HAMILTON Inc.
Vice President
ry truly you A
I. A SUMMARY OF RECOMMENDATIONS FOR
DEVELOPING A HUMAN RESOURCE
MANAGEMENT SYSTEM
I. A SUMMARY OF RECOMMENDATIONS FOR DEVELOPING
A HUMAN RESOURCE MANAGEMENT SYSTEM
This report concludes a six month study of personnel manage-
ment policies, procedures and activities in the City of Miami by
Booz, Allen and Hamilton Inc. as part of the ongoing Management
Improvement Program initiated by the City and financed in part
by the Federal Department of Housing and Urban Development.
This chapter summarizes findings, observations and rec-
ommendations concerning the management of human resources in
the City of Miami and our recommendations for the development
of a Human Resource Management System (HRMS) for Miami City
government. The summary is presented in two sections concen-
trating on:
. Personnel Management procedures
Personnel Management policy
The distinction between policy and procedures is an essential one
and is maintained throughout our work in this area.
-1-
1. ORGANIZATION AND ADMINISTRATION OF THE
PERSONNEL MANAGEMENT FUNCTION
Personnel management in Miami was found to be a highly frag-
mented function with no single identifiable source of responsibility
for its overall coordination and administration. Various units
and individuals within city government exercise responsibility for
the several activities which are commonly classified as "personnel
services."
The Civil Service Board and its Office staff
oversee the civil service system, the primary
source of personnel management in Miami.
which controls the hiring, classification, up-
grading, evaluation and termination of all
employees in municipal service.
Special offices under the administrative control
of the City Manager provide other vital personnel
services including:
▪ Labor relations
Training
Work safety
• Administration of the workman's com-
pensation program
• City-wide medical services
Municipal departments provide certain personnel -
related services to departmental employees on
a decentralized basis with the degree and quality
of services provided varying substantialty among
departments.
-2-
We have concluded that this fragmentation of administrative
control over the personnel management function has diminished
the overall quality and effectiveness of human resource manage-
ment in the City and, as a result, of service delivery. Con-
sequently, our initial recommendation is to establish a new
Department of Human Resource Services within prevailing civil
service policy under the administrative control of the City Manager.
The new unit will provide a centralized capability for administering
all city-wide personnel management activities. Placing it under
the administrative control of the City Manager is consistent with
sound management principle and practice as it gives the Manager
direct control over the resources he requires to carry out his role
effectively. At the same time, civil service safeguards against
politically motivated or capricious treatment of employees will
be maintained and strengthened through the more sharply focussed,
continuing policy and quasi-judicial authority of the Civil Service
Board.
Consolidating all personnel management activities under the
administrative control of a Department of Human Resource Services
-3-
will require a number of modifications in the way the personnel
management function is currently organized:
Responsibility for administering the various
aspects of the civil service system (i. e. re-
cruitment, examination development and
administration, placement, service ratings,
classification and employee records) would
be shifted from the Office of the Civil Service
Board to the new Department along with some
of those employees engaged in these activities
at the time of transfer.
City-wide personnel services currently provided
by agencies other than the Office of the Civil
Service Board would alsc be shifted to the new
Department and appropriate staff absorbed.
The Civil Service Board would retain and increase
its concentration on the fundamental policy -
making review and adjudicative functions granted
it under the Charter. It would oversee all actions
of the new Human Resource Services unit and
play a stronger role in serving the Commission
as a policy formulation and review body.
The current role of the Civil Service Board would be modified
accordingly to focus proper emphasis on its two most important
functions: evaluating and formulating personnel policy; and fact-
finding and adjudicating disputes between City employees and
management arising out of the routine operation of the civil service
system.
-4-
The Civil Service Board is vested by City Charter with
authority to oversee the civil service system. Up to now, the
Board has interpreted this mandate to encompass a five -part role:
Promulgation of all civil service rules and
regulations, including their revision, for sub-
sequent approval by the City Commission
Administration of all staff, procedures and routine
office activities designed to execute civil service
policies
Enforcement of civil service provisions embodied
in Ordinance No. 6945, the Civil Service Rules
and Regulations ordinance
Adjudication of disputes between city employees
and management arising out of varying interpre-
tations and applications of civil service pro-
visions
Fact-finding to support quasi-judicial decisions
and to support advisory recommendations to the
City Commission
Thus, in pursuing its adopted roles the Board finds itself assuming
the inevitably conflicting postures of policy- maker, administrator,
enforcer, judge, jury and impartial advisor.
Allocation of Board office staff resources is concentrated
in support of the Board's administrative responsibilities. As a
result, staff support for remaining Board responsibilities, its most
important ones, is limited. It must be emphasized that under the
Charter, and by any rule of sound public management, the Board
-5-
is the sole entity authorized to carry out certain policy and
adjudicatory functions related to the civil service system. Admin-
istrative housekeeping can be carried out by a variety of entities. We
propose to strengthen the Civil Service Board by sharpening its
focus as a policy making, fact-finding and quasi-judicial body.
To do this, we recommend that its present administrative and
housekeeping responsibilities be assigned to the new Department
of Human Resource Services, along with appropriate staff, so
that the Board can concentrate staff resources and its own attention
on continuing fact-finding, review and advisory responsibilities.
2. PERSONNEL MANAGEMENT POLICY IN MIAMI CITY
GOVERNMENT
Personnel management policy was found to reflect the pro-
visions of Ordinance No. 6945, the Civil Service Rules and Reg-
ulations ordinance. This ordinance provides the framework and
prescribes the detailed procedures for executing personnel policy
in Miami.
Civil service, as practiced in Miami, is a detailed set of
policies, procedures and practices for governing the hiring, selection,
classification, promotion and retention of municipal employees in
classified service. Miami civic service, like its models and pre-
decessors in public service, is based on the principle of "merit"
employment --candidates identified and selected on the basis of
-6-
"demonstrated" performance. The civil servirr system h:is
produced many fine and dedicated public servants for the City
of Miami over the years and need not be replaced nor revised
significantly to achieve improvement in existing personnel manage-
ment procedures. We have identified a number of opportunities
for modifying and strengthening the system to make it less cumber-
some, more equitable and sufficiently flexible and responsive to
ensure the continued attraction and retention of capable public
employees for Miami city government. Without such employees,
the ability of the City to deliver services must be impaired.
Local governments nation-wide are struggling to remain
competitive in the market for highly qualified individuals to staff
their organizations. The City of Miami, for example, is rapidly
assuming a leadership role among local governments in generous
compensation packages for municipal employees. The following
practices embodied in Miami's civil service law, however, are
illustrative of out -dated concepts which came in with the origin
of the civil service system and exist to this day. They penalize
the City in attracting and retaining individuals of superior calibre
for municipal service:
Primary and often sole reliance is on compet-
itive assembled examinations for differentiating
among job candidates at both entry and advanced
-7-
level positions. Assembled examinations his-
torically have proved only about 30% -40% valid
in predicting job performance and, at best, are
only relatively indicative -of basic job aptitudes.
Furthermore, written examinations have often
proved culturally biased against minority and
Women candidates and, as a result, unfairly
penalize a large segment of the job applicant
population.
Restricted certification processes such as Miami's
"rule of three" for open competitive and ''rule
of one" for promotional job openings may pre-
clude appointment of the most appropriately
qualified candidate to fill available positions.
Moreover, bonus points in Miami's certification
system (such as veteran's and departmental
preference) may distort merit selection criteria.
Consequently, existing certification procedures
may penalize Miami in attracting and promoting
appropriately qualified candidates.
Extensive, time-consuming and sometimes per-
sonally objectionable entry procedures required
of any job candidates under existing civil service
provisions may create additional barriers to
attracting and retaining highly qualified individuals,
particularly in competing with the private sector.
The cumulative effect of the procedural changes is far short
of a major revision in personnel policy. This essential distinction
between procedure and policy must not be blurred. Miami's Civil
Service System and Board should continue to remain the dominant
policy keystone of personnel management in City government.
Proposed changes should permit Ilse• ('ity to compete more• success-
fully for scarce high calibre personnel resources and to encourage
their retention through a promotion system based on demonstrated
-8-
performance and achievement and overall appropriateness for
advanced level positions.
Ultimately, the continued survival of the City of Miami
as an autonomous governmental entity rests with the efficiency
and effectiveness with which it delivers services to Miami's citizens.
The efficiency and effectiveness of service delivery varies directly
with the quality of personnel resources and the proficiency with
which they are managed. Changes in personnel management op-
erations recommended throughout this report should help to ensure
quality personnel and upgrade and strengthen management of 'these
vital human resources.
;4
The next chapter outlines our approach to accomplishing
these objectives --a system design for developing a Human Re-
s9urce Management System in Miami.
-9-
performance and achievement and overall appropriateness for
advanced level positions.
Ultimately, the continued survival of the City of Miami
as an autonomous governmental entity rests with the efficiency
and effectiveness with which it delivers services to Miami's citizens.
The efficiency and effectiveness of service delivery varies directly
with the quality of personnel resources and the proficiency with
which they are managed. Changes in personnel management op-
erations recommended throughout this report should help to ensure
quality personnel and upgrade and strengthen management of 'these
vital human resources.
The next chapter outlines our approach to accomplishing
these objectives --a system design for developing a Human Re-
s..lurce Management System in Miami.
-9-
II. AN OVERVIEW OF THE CONCEPt OF
HUMAN RESOURCE MANAGEMENT
II. AN OVERVIEW OF THE CONCEPT OF HUMAN
RESOURCE MANAGEMENT
This chapter presents an overview of the basic concepts, components,
and elements of a Human Resource Management System (HRMS) for the
City of Miami.
Human resource management in the public sector is the applica-
tion of the processes involved in obtaining. developing and utilizing
the people required to provide public services. Human resource
management involves planning, carrying out, and controlling such
processes as:
Defining resource (or manpower) needs
Obtaining needed manpower resources
Utilizing and developing these resources to their
optimum levels of effectiveness and efficiency
Providing basic support services to ensure proper
functioning of these resources
Traditionally, the management --planning. directing, con-
trolling. and evaluating --of finances, equipment or capital improve-
ments in government has received relatively close management
attention. Manpower and human issues have been addressed in less
systematic and effective ways. They should be addressed in an over-
all system that considers all of the elements of people management
and the interrelationship of these issues.
-10-
The Human Resource Management System (HRMS) we have
set out for the City of Miami is comprised of four major components:
position management, personnel procurement, manpower development,
and employee services. An overall schematic for HRMS is depicted
in Exhibit I, following this page, and described in more detail below.
(1) Position Management
The purpose of position management is ensuring that
positions are established in sufficient number and with the
appropriate mix of skills to handle the anticipated workload of
the City government efficiently and effectively within available
financing. Specific elements of position management include:
Work measurement
Manpower utilization
Skills -needs assessment
Job engineering
Manpower planning
Classification and salary administration
Position budgeting
(2) Personnel Procurement
Personnel procurement involves the active recruitment,
screening and placement of candidates for city employment as
well as maintenance of personnel records to provide timely and
PERT
POSITION MANAGEMENT
--- MINA --
MANPOWER
UTI LIZATI ON
f
WORK
MEASUREMENT
H
SKI LLS
NEEDS
ASSESSMENT
L_
JOB
ENGINEERING
t
ADMINISTRATION
OF
CLASSIFICATION
AND SALARY
PLAN
MANPOWER
PLANNING
POSITION
BUDGETING
QUALIFICA`
DETERMINI
RECRUITMENT.
REQUIS
TIONINI
MAN
DEVELOP
NEED:
ASSESSMI
CAREER
PLANNING
TRAINING
AND
EDUCATION
}
.NEL PROCUREMENT
ONS
ION
EXAMINATIONS
SELECTION
EMPLOYMENT
PROCESSING
r
PERSONNEL
RECORDS
IDMINISTRATION
r
doses. Specific elements
SOWER DEVELOPMENT
INT
YT
PROMOTIONS
AND
ADVANCEMENT
ON-THE-JOB
,DEVELOPMENT
-12-
PERFORMANCE
EVALUATION
EMPLOYEE
MOTIVATION
ation
steps necessary to
i
I LABS of individual employees
CONTR
AN1proving their job skills,
NEGOTII
_-._ --
tivating them to con-
elivery of municipal
are:
nt
�J
etween employees
ons, cooperation,
Exhibit I
City of Miami
HUMAN RESOURCE
MANAGEMENT SYSTEM
EMPLOYEE SERVICES
DISCIPLINARY
ACTIONS
AND
GRIEVANCES
OR
ACTS
0
kTI ONS
BENEFITS
ADMIN-
ISTRATION
ORIENTATION
AND
COUNSELING
SERVICES
SAFETY
SERVICES
MEDICAL
SERVICES
O. Shows flows and relationships
between elements and procedures
J
,c elements
y to
:nployees
ib skills,
con-
ipal
accurate information for management purposes. Specific elements
of personnel procurement include:
Requisitioning
Recruitment
Qualifications determination
Examinations
Selection
Employment processing
Personnel records administration
(3) Manpower Development
Manpower development involves the steps necessary to
identify and meet the developmental needs of individual employees
by evaluating their work performance, improving their job skills,
preparing them for advancement, and motivating them to con-
tribute to overall effective and efficient delivery of municipal
services. Specific elements in this area are:
•
•
Performance evaluation
Development needs assessment
Career development planning
On-the-job development
Training and education
Promotion and advancement
Employee motivation
(4) Employee Services
Employee services provide a link between employees
and management to maintain communications, cooperation,
and a mutually supportive work environment. Specific ele-
ments of this component include:
Orientation and counseling services
Disciplinary and grievance action
Employee benefits administration
Safety services
Medical services
Labor contracts and negotiations
This overall systems design for HRMS in Miami provides
a framework for evaluating existing City activities in the area
of personnel administration and a context for structuring
improvements in the way human resources presently are man-
aged. Several of the elements in each component of HRMS
already are present in Miami's civil service system and other
current personnel management activities . The object of this
report is to identify opportunities for improving the management
of human resources in the City, and thereby strengthen City
government, through the development of a more comprehensive
and effective system.
The following chapter describes the existing system as
it relates to Human Resource Management and describes areas
for potential improvement.
-14-
III. OPPORTUNITIES FOR IMPROVING
HUMAN RESOURCE MANAGEMENT
III. OPPORTUNITIES FOR IMPROVING
HUMAN RESOURCE MANAGEMENT
This chapter highlights relevant issues in public personnel
management, provides a brief description of Miami's civil service -
system in the light of these issues, describes on -going personnel
management activities in Miami together with assigned organizational
responsibilities, and presents the overall conclusions about recom-
mendations for improving human resource management in the City.
Personnel management in most local governments generally can
be described as a process, based on merit principles, for identifying,
selecting, developing and retaining qualified individuals to staff public
service organizations. Today, this process occurs within a rapidly
changing social and economic environment which is testing the adapt-
ability of current public personnel management policies to meet
continually changing public service needs.
1. THE CIVIL SERVICE SYSTEM EMPLOYED BY MOST
GOVERNMENTAL UNITS WAS CONCEIVED BY TURN -OF -THE
CENTURY REFORMERS TO COMBAT THE ABUSES OF
PATRONAGE AND THE SPOILS SYSTEMS PREVALENT IN
PUBLIC SERVICE AT THAT TIME
Even though certain modifications have been made over time,
civil service remains a dominant keystone around which public
personnel management programs have been structured. Recently,
-15-
selected features of civil service systems have come under challenge
as being insensitive to contemporary personnel management problems.
Changes are being advocated by groups ranging from local public em-
ployee unions to the National Civil Service League in order to resolve
these issues. These national trends are reflected where appropriate
and balanced with Miami's requirements in our human resource man-
agement recommendations.
2. PREVAILING PUBLIC PERSONNEL POLICIES AND PRACTICES
REFLECT TRADITIONAL CIVIL SERVICE PRINCIPLES
As the result of the reaction of reformers against the spoils
system in the public service, civil service policies and practices were
designed to protect the integrity of the personnel management system
against patronage abuse. The objective has been to identify and select
candidates on the basis of "measured" ability and to develop and
promote employees according to their "demonstrated" performance.
However, as the National Civil Service League has pointed out in its
Model Public Personnel Administration Law, "... many of the methods
by which governments have contrived to assure merit employment
and protect the service against past abuses have also served to exclude
many well -qualified persons, severely limit the flexibility of respon-
sible officials, and curtail the overall effectiveness of public service. "
Restrictive selection and promotion practices which are commonly
cited in many local governments include the following:
-18-
Competitive assembled examinations as the primary and,
often, sole basis for ranking candidates for initial appoint-
ment and promotion
Restrictive selection processes whereby appointing authori-
ties are limited to consideration of only a designated few
of the top -ranked candidates from a position class eligi-
bility to fill a position vacancy
The establishment of an independent citizen body to administer
the civil service system was an additional vehicle for combating the
spoils system of political patronage. By removing administrative
responsibility from the chief executive officer and assigning major
administrative functions to an independent commission, it was felt
that public personnel decisions would be insulated from politics
effectively. However, in practice, independent civil service boards
have exercised such a degree of authority and assumed such a variety
of responsibilities as to become a considerable political force of
their own, often beyond the reach of public accountability.
Moreover, multi -layered administrative systems, characterized
by independent and functionally -oriented citizen boards with adminis-
trative responsibilities, have been identified as major barriers to
streamlined and responsive public sector decision making, partic-
ularly at the local level.
As civil service systems have proliferated and become established
throughout the country, new and different problems in public personnel
management have emerged which conflict with traditional civil service
practices. For example:
-17-
•
Collective bargaining for public employees has become in-
creasingly widespread. This conflicts with such traditional
practices as guaranteed tenure for public employees and
protective personnel rules and regulations.
Affirmative action programs have been undertaken to over-
come continuing under -representation of minorities and women
in government. They identify certain traditional civil service
practices as major barriers to the hiring and upgrading of
minorities and women.
The ability to attract and retain top calibre personnel has
become increasingly difficult as civil service has erected
barriers to lateral entry, restricted promotional opportuni-
ties to specific classification series, lagged increasingly
behind the private sector in competitive compensation (par-
ticularly for certain scarce skilled personnel) and granted
blanket tenure rights to public employees irrespective of job
performance.
3. PERSONNEL MANAGEMENT IN MIAMI IS CHARACTERIZED BY
A STRONG CIVIL SERVICE SYSTEM
Personnel management in Miami is characterized by a strong
municipal civil service system. Established by City Charter, civil ser-
vice principles govern the selection, retention, advancement and classifi-
cation of all employees in municipal service. The City's civil service
system is patterned after the traditional model of merit -based public
employment and many of the protectionist elements characteristic of
these systems elsewhere are apparent in Miami today.
The civil service system is administered by an independent Civil
Service Board which promulgates all rules and regulations governing
the system for City Commission approval and enactment. Equally
-18-
important, the Board adjudicates all disputes between city employees and
City management arising out of the civil service system. The basic
regulatory framework for civil service in Miami is contained in
Ordinance No. 6945, "Civil Service Rules and Regulations. " This
ordinance prescribes city policy covering practically all areas of
personnel administration. The Office of the Civil Service Board provides
staff assistance to the Civil Service Board in administering the system.
Miami's civil service system has provided the city with capable,
dedicated municipal public servants for many years. Traditional pro-
cedures, however, have become cumbersome. Although merit
principles still prevail in Miami, certain methods and practices
developed to ensure merit employment appear no longer to meet best
the needs of the City. The next section briefly summarizes some of the
key problems emerging in Miami city government relative to civil
service practices and overall personnel administration.
4. SEVERAL SIGNIFICANT PROBLEMS HAVE BEEN IDENTIFIED
IN THE MANAGEMENT OF HUMAN RESOURCES IN MIAMI--
THESE PROBLEMS DIRECTLY AFFECT THE CITY'S ABILITY
TO DELIVER SERVICES TO RESIDENTS AND VISITORS
A number of problems have been identified in the organization,
administration and policy framework of personnel management
activities in Miami.
-19-
(1) Responsibility for Personnel Management Services and
Activities Presently Is Fragmented Among Various
City Departments and Boards
No single source of management responsibility exists for
coordinating and administering personnel management activities
in Miami. Responsibility has been dispersed among several key
officials, departments, and offices:
The City Commission has the following responsibilities:
▪ Sets salary and benefits rates for city employees
- Approves position allocations and appropriates
required funds
▪ Approves personnel rules and regulations in
ordinance form
▪ Selects a' City Manager to be chief executive of-
ficer of the city
• Appoints three of the five members of the Civil
Service Board (the remaining two are selected
by city employees in annual elections)
The Civil Service Board has the following responsi-
bilities:
▪ Administers the civil service system
▪ Initiates personnel rules and regulations and all
revisions for subsequent Commission approval
▪ Sits as judge and jury over adversary hearings
between city employees and administrative
management
▪ Appoints an executive secretary to direct its
office staff and supervises him
-20-
The Office of the Civil Service Board:
▪ Provides staff assistance to the Board in per-
forming its administrative responsibilities,
specifically in the areas of:
..
Recruitment
Examinations
Employee records administration
Employee service ratings
Classification and salary administration
Adversary hearing services
The City Manager, as chief executive officer of the
City:
- Has final authority in matters of suspension and
dismissal of city employees
▪ Appoints all department directors and their
assistants
▪ Exercises ultimate appointive authority over all
classified employees
- Controls position allocations and filling of va-
cancies through the budget process and personnel
requisition approvals
The Employee Services Office, a special staff unit
reporting to the City Manager:
• Directs the labor relations program including
contract negotiations and administration
▪ Provides centralized safety and training services
to all city departments
▪ Administers the workman's compensation program
The City Physician's Office has the following responsi-
bilities:
• Conducts all employment -related physical
examinations
▪ Certifies illness or disability for sick leave and
workman's compensation claims
-21-
The Retirement Boards a body comprised of citizen,
employee and management representation, has such
responsibilities as:
▪ Commissioning impartial disability examinations
▪ Authorizing claims if certified
▪ . Recommending levels of pension benefits to the
City Commission for approval
The Finance Department administers the payroll
and benefits program including:
▪ Maintaining and updating the Group
Insurance and Retirement Plans
• Providing secretarial services to the
Retirement Board
All Municipal Departments have such responsibilities
as:
▪ Promulgating departmental rules and regulations
which are approved by the Civil Service Board
▪ Conducting in-service orientation and training
programs for departmental employees
- Determining departmental manpower require-
ment, including position planning and requisi-
tioning to fill position openings
(2) Fragmentation of Responsibility for Personnel Management
Services and Activities Hampers the City's Ability to
Properly Manage Its Human Resources
This fragmentation of responsibility seriously hampers the
City's ability to exercise proper administrative control over the
management of human resources in Miami.
-22-
•
Authority to oversee the civil service system is vested
in the Civil. Service Board by City Charter and the
Board has assumed considerable administrative re-
sponsibilities through Ordinance No. 6945 (including
administration of all recruitment, examinations, place-
ment evaluation, classification and records activities)
to support its authority. The City Manager has no
authority over the Civil Service Board which is ac-
countable only to the City Commission. Thus, a situa-
tion has been created whereby authority has been
granted and responsibility assumed by the Civil Ser-
vice Board without sufficient accountability while the
City Manager is held accountable without commensurate
authority and responsibility.
The Office of the Civil Service Board is engaged pri-
marily in supporting the Board's administrative respon-
sibilities. This reduces the overall effort devoted to
the Board's vital fact finding activities and adversary
hearing responsibilities. Hence, the Civil Service_
Board's adopted administrative responsibilities dilute
its effectiveness in discharging its key advisory and
quasi-judicial responsibilities. Furthermore, Board
members' technical knowledge of personnel administra-
tion may be insufficient to perform administrative re-
quirements effectively, given the citizen -dominated
composition of the body.
(3) Existing Civil Service Policies and Practices Limit the
City's Ability to Staff Positions With Appropriate Personnel
Several rules and regulations embodied in Ordinance No. 6945
and prevailing practices of the Civil Service Board limit the City's
ability to staff position openings properly. This, in turn, limits
the effectiveness of the City in meeting overall requirements and
emerging community needs. Examples of these rules and associa-
ted limitations are as follows:
-23-
The provision for Board review and recommendation
of all classification allocations and changes prior to
the City Manager's approval limits the City's ability
to structure jobs to attract the most appropriately quali-
fied individuals to accommodate work requirements.
Restricted certification procedures --a rule of three
for entrance -level positions and a rule of one for
promotions --limits the prerogatives of the appointing
authority to choose the most appropriate candidate.
Limitations on lateral entry from outside the City of
Miami at advanced -level positions further restrict
management prerogatives in staffing professional
position openings. For instance, civil service rules
prescribe that Assistants to Department Heads must
be chosen from within departmental ranks.
"Contaminants" in the certification process (i.e. ,
veterans' preference, seniority credits, departmental
preference) may distort merit selection in that the
top -ranked candidate may not be the most qualified
to fill a position opening.
Primary, and, in most cases, nearly exclusive, reli-
ance on written examinations places excessive em-
phasis on selection instruments which research has
proved to be --at best --only 30%-40% valid in predicting
job performance.
Qualifications standards and instruments established
by the Civil Service Board have been reported as often
being irrelevant to job requirements.
Cumbersome hiring procedures cause excessive delays
in filing requisitions and may result in the loss of good
municipal service candidates.
The service rating system does not adequately differ-
entiate between superior and average performance
and places excessive burdens on management in justi-
fying unsatisfactory ratings to the Civil Service Board.
-24-
(4) Municipal Employees Are Penalized by Selected
Civil Service Practices and Procedures
Miami city employees often are penalized by prevailing
civil service practices and procedures, for example:
Promotional opportunities are neither equitable nor
consistent for all city employees. This is manifested
in a number of ways:
▪ Certain class series have established career
ladders (i. e. , police, fire, clerical) while
others have one single position (e. g. , publicity
writer).
• Promotional practices under the Civil Service
ordinance create undue hardships for employees
seeking advancement. For instance, the prac-
tice of dropping top -ranked candidates from the
eligible register upon declining an appointment
creates an unfair situation. Employees, in order
to achieve the promotional opportunity they are
most interested in, must literally anticipate the
timing on position openings and gauge their per-
formance on written exams against their com-
petition accordingly.
No opportunities exist for employees to advance
as professionals, technicians, or skilled opera-
tors without accruing supervisory responsibilities.
Little or no training is available to help prepare
employees for supervisory experience or the re-
quirements for advanced -level positions.
The lack of prescribed responsibility for comprehen-
sive employee orientation and counseling results in
insufficient attention afforded these employee service
activities. Employees have no single informed source
to whom inquiries regarding benefits, promotional op-
portunities and other matters may be directed.
-25-
(5) Minority Participation in the City Work Force Fails to
Reflect a Proportionate Representation in All Departments
and Position Classes
The number of minorities represented in various departments
and position classes throughout the city fails to reflect sufficiently
the prevailing ethnic mix within the community. Several programs
have been initiated to address this imbalance, including:
•
Operation Badge --An intensive recruitment effort by
the Miami Police Department to attract minority candi-
dates to apply for the entry-level police officer position.
Operation Hose --A similar effort on the part of the
Fire Department. In addition, the Emergency Employ-
ment Act produced several minority candidates for the
Fire Department, five of whom were recently hired
and sent through the Fire Academy.
Nevertheless, severe imbalances still exist in pertain depart-
ments and selected position classes, particularly for advanced -
level positions.
5. OPPORTUNITIES EXIST FOR IMPROVING THE MANAGEMENT OF
HUMAN RESOURCES IN MIAMI AND STRENGTHENING SERVICE
DELIVERY
Several opportunities exist for improving the management of human
resources in Miami. This section provides a brief summary of key recom-
mendations and Chapter IV outlines a plan for achieving improvements
in human resource management through development of a Human Resource
Management System in Miami.
-26-
(1) Centralize Overall Responsibility for Human Resource
Management in a Single Department of Human Resource
Services
Centralization of overall responsibility for human resource
management in a single municipal department under the administra-
tive control of the City Manager will strengthen the City's ability to
meet needs of departments and employees. It will establish a man-
agerially logical point of administrative authority and accountability
for managing and developing city manpower tied to service delivery.
(2) Retain the Capability for Selected Personnel Functions on a
Decentralized Basis Throughout the City
Retention of the capability for providing selected personnel
functions on a decentralized basis within the city departments is
required to continue to meet certain management reporting and
employee service activities at the individual employee level.
(3) Strengthen the Role of the Civil Service Board as a Policy
Making, Fact Finding and Quasi -Judicial Body by Relieving
It of Day -To -Day Administrative Responsibilities
Reassignment of administrative functions, while in no way
diminishing its authority over the civil service system, permits
the Civil Service Board to concentrate its energies on its primary
missions --to recommend policy and hear and adjudicate disputes
between management and classified employees. In addition, it
gives it more time to advise its primary client --the City Commission.
The potential for conflict arising over lack of objectivity will be
-27-
lessened by removing administrative duties from the body charged
with hearing disputes arising out of the system it administers.
(4) Ensure Sufficient Flexibility in Personnel Policies to
Attract, Develop and Retain the Most Appropriately
Qualified Personnel
Sufficient flexibility must be introduced into Miami's system
of managing human resources to attract, develop and retain the
most appropriately qualified personnel. The following measures
are illustrative of the various alternatives which exist for ensuring
such flexibility in the system:
Adopt ."Rule of the Register" for entry-level positions
to increase the array of choices provided through the
certification process. This measure has been recom-
mended by the Civil Service Board but awaits Com-
mission action.
Adopt "Rule of Three Groups" for promotional posi-
tions. This will increase the alternatives within
which management can exercise its prerogatives while
somewhat restricting selection, commensurate with the
validity of available ranking instruments.
Consider installing selective certification for appro-
priate position classes such as Planner which may
require particular knowledge, skills or experience in a
limited area of the field.
Establish training and performance milestones as
prerequisites for consideration of promotion to ad-
vanced -level positions.
Permit lateral entry from outside the City into
advanced -level positions on a limited basis. Establish
a quota system, if necessary, to protect existing muni-
cipal employees against overuse or abuse of such a
prerogative.
-28-
Extend advantages to municipal employees in competing
for advanced -level position through greatly expanded
in-service training and development programs.
Make promotional opportunities more uniform and con-
sistent for all City positions through:
• Opening up promotional positions to all City
employees who meet minimum qualifications
standards regardless of class series.
▪ Creating dual -track advancement opportunities
for municipal employees who wish to progress
as technicians but have no desire to become
managers.
Install an employee performance appraisal system
which will adequately differentiate among unsatisfac-
tory, marginal, adequate, good and outstanding per-
formance.
(5) Initiate a Comprehensive Job Analysis Program
Throughout the City
A comprehensive job analysis program should be initiated
throughout the City to help determine appropriate job -related
task elements upon which to base:
Position qualifications
Recruitment efforts
Assembled examinations
In-service training curricula
Performance standards for employee evaluation purposes
Work standards, where applicable
Job analysis is an analytical process which identifies and
examines the tasks which are accomplished in completing a partic-
ular job and determines what the worker does in relation to data,
-29-
people and things, and the level of complexity at which he performs.
It is a technique developed by the U.S. Training and Employment
Service of the Department of Labor and only recently adopted ex-
tensively by local governments. In other local governments, job
analysis has succeeded in:
•
Establishing qualifications standards based on the re-
quirements of the job
Drafting position descriptions which accurately reflect
job tasks
Developing test instruments which reflect actual job
content
Reducing the number of "dead end" positions and con-
solidating positions and classes, to the extent possible,
to simplify the classification plan and its administra-
tion
Increasing entrance -level and promotional opportuni-
ties for minority candidates through job engineering
and establishment of paraprofessional positions
Refining training curricula and performance evaluation
criteria to reflect actual job requirements
In Miami, job analysis should be undertaken by a project
team comprised of operations analysts selected from existing
City employees and supplemented by appropriate representatives
from the Management Services and Human Resource Services
Departments. Technical assistance in developing and implement-
ing a job analysis project will be provided during the implementa-
tion phase of the overall management improvement program.
-30-
(6) Undertake a Vigorous Affirmative Action Program To
Increase Minority Representation in the City of Miami
A vigorous affirmative action program should be undertaken
to upgrade minority representation in the City work force. Prior
to launching such a program, the following events should take
place.
The City Commission should adopt a resolution pre-
scribing overall city policy regarding affirmative
action and designating the City Manager as Chief
Affirmative Action Officer charged with developing
a comprehensive affirmative action plan and executing
it upon Commission approval.
The City Manager should nominate a citizen -comprised
task force with appropriate representation from the
Miami community to assist in developing a city-wide
affirmative action plan along the policy guidelines
prescribed by the City Commission.
The plan should:
▪ Specify actions to be taken to increase minority
participation in city government
▪ Outline methods and strategies to achieve
prescribed goals
- Designate specific time targets to meet in
achieving progress toward goal attainment
- Assign responsibility to various city officials
and employees for successfully accomplishing
affirmative action objectives
The plan may include such elements as:
- Restructuring job content through the job analysis
program to provide increased opportunities for
low- and under -skilled job candidates
▪ Prescribing qualifications standards which are
specifically job -related and non-discriminatory
in impact
• Revising the certification procedure to permit
increased minority consideration for job open-
ings and encouraging minority appointment
through departmental performance standards
▪ Reviewing existing hiring procedures to identify
potential barriers to minority employment
such as polygraph examinations and discrimina
tory medical 'standards
- Intensifying recruitment efforts through com-
munity based civil service outreach offices
and supplemental qualifications assistance
training programs
▪ Establishing para-professional programs for
sub -entry level positions in municipal service
▪ Demonstrating increased sensitivity to the
Spanish speaking population through Spanish
language advertisements and job announcements,
Spanish speaking reception personnel, Spanish
language test instruments, where appropriate,
and designated position classifications with
Spanish speaking prerequisites
The next chapter presents a system design for the overall manage-
ment of human resources in Miami.
-32-
IV. RECOMMENDED PLAN TO DEVELOP A HUMAN
RESOURCE MANAGEMENT SYSTEM
IV. RECOMMENDED PLAN TO DEVELOP A HUMAN
RESOURCE MANAGEMENT SYSTEM
This chapter presents a system design for the overall management
of human resources in the City of Miami. This system incorporates
recommendations summarized in the previous chapter into the basic
framework for an HRMS. This framework is described in sections
dealing with:
Administrative organization
Position management
Personnel procurement
Manpower development
Employee services
Basic steps toward implementing the system,
including projected staffing, costs and
anticipated benefits
1. ADMINISTRATIVE ORGANIZATION OF THE HUMAN RESOURCE
MANAGEMENT FUNCTION
Overall management and administration of HRMS in Miami requires
several key organizational changes to accommodate the revised align-
ment envisioned under the new proposal. These organizational modifica-
tions require formal action on the part of the Commission, the Civil
Service Board, and the City Manager for implementation. They will not
-33-
change or dilute the civil service merit system as established and
articulated in the City Charter. Instead, the thrust of these recommenda-
tions is to strengthen the current merit -based civil service system by
establishing clearly delineated responsibilities and roles for its effective
operation. The following paragraphs describe these major organizational
recommendations.
(1) Establish a New Department of Human Resource Services
Under the Administrative Control of the City Manager as
Part of the Anticipated Administrative Services Group
A Department of Human Resource Services should be estab-
lished under the Deputy City Manager for Administrative Services
with responsibility for providing specific centralized city-wide
personnel services. Overall departmental organization should be
structured as in Exhibit II, following this page. Creation of this
new department will involve some or all of the following actions:
Transferring existing routine administrative pro-
cedures conducted by the Office of the Civil Service
Board to the new Department of Human Resource
Services, specifically:
• Recruitment
- Examinations development and administration
▪ Selection and placement
- Employee records administration
▪ Classification and salary administration
- Employee service ratings
Absorbing the existing Offices of Employee Services
and the City Physician in total.
-34-
• HUM.
SAFETY TRAINING & POSITION
SERVICES DEVELOPMENT MANAGEMENT
SERVICES
• SAFETY OFFICER • TRAINING & DEVELOPMENT OFFICER • POSITION MANAGEMENT
WORKMEN'S WORK TRAINING PERFORMANCE MANPOWER CLAS;
COMPEN- SAFETY AND EVALUATION PLANNING TION
SATION EDUCATION A[
BOARD OF
COMMISSIONERS
CITY
MANAGER
DEPUTY
MANAGER
ADMINISTRATIVE
SERVICES
HUMAN
RESOURCES
SERVICES
DEPARTMENT
_J
OA RESOURCES SERVICES DIRECTOR
FFICER
IFICA-
PAY
MIN.
CIVIL
SERVICE
BOARD
OFFICE OF
CIVIL
SERVICE
BOARD
EMPLOYEE
INFORMATION
SERVICES
EMPLOYMENT l INFORMATION
SERVICES OFFICER
EMPLOYEE
RECORDS
ORIENTATION
INFORMATION
primarily functional
iment to be assigned
Services
•vices
'ive new middle
he new department
rces Services
.cer
t Officer
icer
'icer
Could continue to be
In addition, it should
)f Safety and Training
ed to the most appro-
EMPLI
SER Personnel Officer and
• positions with personnel
EMPLOYMENT position class. The
assifying the existing
into the new position
raining incumbents.
RECRUITMENT
•am support positions as
e six new units of the
artment:
chnician and Clerk
EX4Bted to each unit as
T
AI
16 existing employees
►il Service Board and
ity Physician's Office
—es Unit into the new
Is Department should
hiring new staff.
EXHIBIT II
City of Miami
PROPOSED STRUCTURE OF HUMAN
RESOURCE SERVICES
SAFETY IYMENT
SERVICES ;ICES
• SAFETY OFFI('SERVICES OFFICER
WORKMEN'S
COMPEN•
SATION
EMPLOYMENT
PROCESSING
MINAIONS.
)MIN.
MEDICAL
SERVICES
• CITY PHYSICIAN
MEDICAL
EXAMINATIONS
PREVENTIVE
HEALTH
DIRECT ADMINISTRATIVE RESPONSIBILITY
ADVISORY AND POLICY REVIEW
RESPONSIBILITY
NEW UNITS
.al
•d
tnd
Dnne1
ig
is as
to
aes
d
ze
d
I FA
Creating six new sections with a primarily functional
orientation within the new department to be assigned
major program responsibilities:
- Position Management
▪ Training and Development Services
▪ Safety Services
▪ Medical Services
- Employment Services
▪ Employee Information Services
Establishing one top-level and five new middle
management positions to staff the new department
as it develops:
Director of Human Resources Services
• Position Management Officer
- Safety Officer
• Training and Development Officer
▪ Employment Services Officer
▪ Employee Information Officer
The Medical Services section would continue to be
headed by the City Physician. In addition, it should
be noted that the existing title of Safety and Training
Administrator could be converted to the most appro-
priate new position.
Creating a new position title of Personnel Officer and
staffing the new section officer positions with personnel
recruited or promoted into this position class. The
City may wish to consider reclassifying the existing
title of Personnel Specialist III into the new position
class and blanketing in any remaining incumbents.
Creating and staffing new program support positions as
needs emerge within each of the six new units of the
Human Resource Services Department:
- Personnel Specialist, Technician and Clerk
positions should be allocated to each unit as
needs dictate.
- Absorption of about 12 of 16 existing employees
from the Office of the Civil Service Board and
all existing staff of the City Physician's Office
and the Employee Services Unit into the new
Human Resource Services Department should
reduce requirements for hiring new staff.
-35-
(2) Create "Departmental Services Units" in All Large
Municipal Departments To Provide Selected Personnel
Functions on a Decentralized Basis
Departmental Services Units should be created in the following
major departments and anticipated service divisions to provide
selected personnel services on a decentralized basis:
Community Development Services: One unit should
be sufficient to serve this relatively small service
area.
Community Improvement Services: One unit will be
required to serve each of the three anticipated new
departments because of their large size:
• Engineering and Maintenance Services
• Sanitation
- Recreation and Tourism
Administrative Services: One unit should suffice
for this area.
Police Services and Fire Services: These departments
may wish to retain their existing administrative appa-
ratus to supervise all internal departmental services.
In addition, existing titles such as "Assistant Chief
for Administration" may be elected to be retained and
the practice of assigning uniformed personnel to staff
duty as "Training Officer, " etc. , need not be discontinued.
Together with creation of the new Departmental Services
Units, the City should establish a new position class of "Depart-
mental Services Administrator" and staff the five new units as
each respective service area is emplaced. The existing title of
"Personnel and Safety Officer" should be considered for reclassi-
fication into the new position class and its three incumbents
blanketed in.
The Departmental Services Unit network is depicted in
Exhibit III, following this page, which shows a reorganized city
government as proposed for Stage II of organizational development
in our report of August 1973 on overall city government organiza-
tion. Each unit would perform the following functions:
Day-to-day employee relations
Work safety
In-service skills training
Time and attendance control
Budget control and manpower planning
(3) Retain Staff To Assist the Civil Service Board in Discharging
Its Hearing Administration Role
A staff, headed by an Executive Director, should be retained
to assist the Civil Service Board in discharging its responsibilities
for hearing administration. All remaining staff of the Office of the
Civil Service Board not absorbed into the new Department of Human
Resource Services should be kept on to support the Board. In fact,
the City may also wish to consider the addition of new position
classifications to improve the Office's ability to carry out increased
responsibilities in the area of policy review and evaluation.
-37-
DIVISIONS
,RTMENTS
1
1
I
1
1
1
I
1_
r
_J
AGER/POLICE CHIEF t
DEPUTY CITY MANAGER DEPUTY CITY MAN COMMUI
C,DMMUNITY UriPHOVEMENT SERVICES
ENGINEERING
AND
MAINTENANCE
SERVICES
• DEPT.
SERVICES
UNIT
SANITATION
SERVICES
RECREATION
& TOURISM
SERVICES
POLICE
• DEPT. • DEPT. • DEPT.
SERVICES SERVICES SERVICES
UNIT UNIT UNIT
PLANNING
SERVICES
IVISIONS
ITMENTS
BOARD OF
COMMISSIONERS
4 CITY MANAGER
ASSISTANT
�ITY MANAGER
1
1
i
I
• COMMUNITY!
RELATIONS L
• LABOR
CONTRACTS &
NEGOTIATIONS
EPUTY CITY MANAGER
Q1TY DEVELOPMENT SERVICES
ENGINEERIN(
AND
MAI NTENANC
SERVICES
OFFICE
OF THE
PLANNING
BOARD
111••••1100=J
CIVIL
SERVICE BOARD
OFFICE OF
CIVIL SERVICE
BOARD
DEPUTY CITY MANAGER/FIRE CHIEF
FI RE SERVICES
CODE
ENFORCEMENT
SERVICES
• DEPT. i
SERVICE(
UNIT
v
• DEPT.
SERVICES
UNIT
FIRE
• DEPT.
SERVICES
UNIT
is
to
_he
full
GENERAL
SERVICES •y admin-
Jhs.
L_
itions
ointing
rmally
Brvice
1VISIONS
TMENTS
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DEPUTY CITY M,
I I, ►1 0
ENGINEERING
AND
MAINTENANCE
SERVICES
• DEPT.
SERVICES
UNIT
SANITATI 1
O
SERVICES
• DEPT.
SERVICES
UNIT
EXHIBIT III
City of Miami
DEPARTMENTAL SERVICES NETWORK WITH
PROPOSED STAGE II ORGANIZATION
E I
DEPUTY CITY MANAGER
ADMINISTRATIVE SERVICES
1
._ -
FINANCIAL
SERVICES
MANAGEMENT
SERVICES
• DEPT.
SERVICES
UNIT
1
I
I
l
1
1
1
HUMAN
RESOURCE
SERVICES
(4) Assign Labor Relations as a Staff Function Responsible
Directly to the City Manager
In order to discharge his role in an effective manner, the
City's Labor Agent should be totally independent, yet cognizant
of all operating units in the City. As a staff arm of the Manager's
Office, the Labor Agent would be afforded the proper perspective
to represent management fairly in all contract negotiations and
administration.
At the end of this chapter we have set out in detail a listing of the
projected staffing requirements, costs and•anticipated benefits from full
implementation of HRMS as proposed in this report.
2. POSITION MANAGEMENT
Current city activities in the area of position management are
limited primarily to traditional techniques of classification and salary admin-
istration. These activities are summarized in the following paragraphs.
(1) All Positions in the Classified Service Are Allocated to
Appropriate Classes Upon Recommendation of the Civil
Service Board and Approval of the City Manager
New positions and reclassification of existing vacant positions
are normally instigated at the request of the departmental appointing
authority. Reallocations of existing occupied positions are normally
initiated by the employee. Staff from the Office of the Civil Service
Board conduct position audits and recommend appropriate action
to the Board.
-38-
(2) Position Descriptions Are Maintained by the Office of the
Civil Service Board
The practice in the past has been to contract out to consulting
firms comprehensive periodic reviews of the classification and
salary plans. Limited maintenance and updating activities are con-
ducted by the Office staff. The most recent contract review was
completed by Yarger Associates in January 1973.
(3) The Office Staff Participates in an Annual Tri-County Wage
and Benefits Survey
The annual Tri-County Wage and Benefits survey determines
prevailing rates for key bench mark positions in municipal service.
Lead responsibility for conducting the survey is rotated among
Tri-County agencies each year. On the basis of survey results,
the Executive Secretary makes recommendations to the City
Manager on changes to the salary plan deemed warranted.
(4) Positions Are Authorized to Municipal Departments During
the Annual.Budgeting Process
Departments justify incremental staffing requests on their
departmental budget submissions and subsequent approval by the
Manager normally elicits Commission authorization in budget
appropriation ordinances. New positions and newly vacant positions
require a departmental requisition in order to activate the machinery
-39-
necessary to supply the departmental appointing authority with
sufficient certified candidates from which to choose.
(5) Significant Areas of Position Management Are Not Currently
Addressed
Little activity is apparent in Miami in the remaining areas of
position management, including:
Work measurement and work standards development
Manpower utilization and performance reporting
Skills needs assessment
Job engineering to encourage employee satisfaction
and increase job opportunities for women and minority
candidates
Systematic manpower planning based on volume of
anticipated work load coupled with forecasting of
internally -supplied and externally -recruited man-
power requirements
To address these areas, we recommend that the City under-
take a systematic program of position management under the
direction of the Position Management unit of the Department of
Human Resource Services.
(6) A Work Measurement Program Should Be Initiated for
Appropriate Departments and Target Position Classes
A work measurement program should be undertaken to develop
a series of applicable work standards in appropriate areas for the
following purposes:
-40-
To provide bench mark work output standards for
performance reporting and appraisal of supervisory
personnel
To assist in identifying and monitoring costs for
improved cost accounting systems
To help identify critical work tasks for skills needs
assessment to better balance skills to job responsi-
bilities
To establish guidelines for determining manpower
utilization and forecasting staffing needs based on
expected work loads
Lead responsibility should be assigned to the Operations
Analysis group anticipated for the new Management Services
Department in cooperation with the special job analysis project
team discussed in Chapter III.
(7) The Cit Should Determine Manpower Utilization in Labor
Intensive Areas and Initiate a Reporting System for
Management Purposes
Current utilization patterns of labor intensive manpower
should be determined to identify priority areas for productivity
improvements. This activity should also help in projecting man-
power requirements to accommodate anticipated work loads. This
effort should become a primary product of the work measurement
program and, again, should be assigned to the Operations Analysis
group for lead responsibility with the cooperation of the job analysis
project team.
-41-
(8) An Inventory of Skills Needs Should Be Undertaken Through
the City -Wide Job Analysis Project and Systematic Needs
Assessment Program Initiated Prior to Annual Position
Budgeting
The city-wide job analysis project should yield considerable
data on skills needs of positions throughout the Miami city govern-
ment. Utilizing project results as baseline data, systematic
assessment of job -oriented skills needs should be conducted prior
to authorization of new positions or filling of position vacancies,
in certain cases. Lead responsibility for skills needs assessment
should be assigned to the Position Management Officer.
(9) The New Departments of Management Services and Human
Resource Services Should Initiate a Job Engineering Program
on a Limited Basis To Increase Employment Opportunities
for Lower -Skilled Individuals
A job engineering program should be initiated on a limited
basis to identify priority candidates for job restructuring to create
additional opportunities for minority and lower -skilled individuals
to be employed in municipal service. In addition, ongoing moni-
toring of job content should be observed to enhance opportunities
for job satisfaction and enrichment among City employees.
(10) A Systematic Manpower Planning Program Should Be
Established by the Human Resource Services Department
A systematic manpower planning program should be established
through linking departmental work load projections, manpower
-42-
utilization reporting, turnover analysis and career development
planning. Manpower requirements should be forecasted and com-
pared with position turnover experience to develop an annual
recruitment schedule for meeting emerging manpower needs on
a timely basis. Lead responsibility should be assigned to the Posi-
tion Management Officer with work load projections supplied by
individual departments, manpower utilization reports generated
by the Operations Analysis group and baseline data on turnover
analysis supplied internally within the Human Resource Services
Department.
(11) The Classification and Salary Administration Program
Should Be Restructured and Expanded in Scope Relegating
Housekeeping Functions to the Human Resource Services
Department
The scope of the classification and salary administration
program should be expanded to include ongoing maintenance of the
classification plan on a cyclical basis in addition to the present
system of exceptional audits. Ongoing maintenance should:
Keep the classification plan sufficiently up to date
Help to avoid problems over reclassification requests
Preclude the necessity for frequent hiring of salary
and classification consultants
-43-
The Position Management Officer would have lead responsibility
with considerable interchange indicated with departments and
with the Payroll and Benefits Administration section of the
Finance Department.
(12) Position Budgeting Should Be Formalized as an Integral
Component of the Annual Budgeting Cycle
Position budgeting should become a formalized process during
the annual budgeting cycle to ensure rational allocation of positions
to organizational units consistent with city-wide work priorities
and service level objectives. Lead responsibility would be assumed
by the Budget Administration unit of the new Management Services
Department. Considerable support for Budget Admin-
istration activities should come from the Position Management
unit of the Human Resource Services Department.
3. PERSONNEL PROCUREMENT
Personnel procurement in Miami, unlike Position Management,
currently encompasses the complete range of activities or elements in
the HRMS. Our recommendations in this area involve expanding the
scope and restructuring the administrative responsibilities of the current
group of activities. These current activities include:
Requisitioning: Paperwork initiated by municipal
departments and sent to the Civil Service Board
and City Manager providing notification that they
are prepared to fill a position vacancy
-44-
Recruitment: Formal notification of position
openings through job announcements and media
advertisements, usually limited to a single box
on the classified page of the major local newspaper
Qualifications Determination: Determining appro-
priate qualifications criteria for position openings
and screening applicants for municipal service
positions according to established criteria
Examinations: Developing assembled examinations
to test knowledge and aptitude of job applicants and
administering the testing and scoring program
Selection: Involves the process of certifying job
candidates for potential appointment, including a
series of background investigations, a pre-
employment medical examination, a polygraph
examination, a physical agility exam for selected
positions and an employment interview with
departmental appointing authorities
Employment Processing: Includes all paperwork
processing requirements to enroll new employees
into the payroll, pension and group insurance
systems
Personnel Records Administration: Maintaining
and updating source documents in employee
records jackets and personnel data for manage-
ment purposes in predominantly manual form
Recommended improvements in personnel procurement activities
are devoted primarily to one of three key objectives:
Streamlining the process to make it less cumbersome
and time consuming
Increasing management flexibility to hire job
candidates appropriate to work requirements con-
sistent with overall accountability for job performance
and the merit system
-45-
Eliminating barriers to minority employment where
traditional merit "protective" devices appear no
longer to meet contemporary career service needs
in Miami city government
(1) The City Should Consider Eliminating Routine Position
Control in Order To Streamline the Requisitioning Process
The use of the personnel requisition process as a budget
control mechanism should be re-evaluated and consideration
given to eliminating routine position control as exercised currently
by the budget unit of the City Manager's Office. Approval and
authorization of position allocations should provide sufficient
control except in extenuating circumstances (such as revenue
shortfall) when position control on an exceptional basis might be
authorized.
(2) Recruitment Efforts for Scarce Skills and Women and
Minority Candidates Should Be Intensified Within Hunnan
Resource Services
Recruitment efforts have traditionally been passive, relying
on "walk-in" applicants or the "man coming to the job. " More
aggressive efforts for recruiting women, minority and scarce -
skill candidates should be employed with the lead for this activity
being taken by the new Human Resource Services Department.
The following are illustrative examples of potential improvements
in this area:
-46-
Establish `outreach" centers in appropriate locations
throughout the Miami community to dispense employ-
ment information and collect job applications.
Request additional funds for increasing media adver-
tising, including periodic spots in community -based
radio stations and newspapers.
Increase visits made to vocational and trade
schools in order to attract qualified applicants
for scarce -skill trades and skilled labor positions.
Examinations could be given in the schools as part
of regular course work.
Use bilingual recruitment personnel.
(3) Qualifications Criteria Should Be Refined Through the
City -Wide Job Analysis Project Conducted By the Human
Resource Services and Management Services Departments
Qualifications criteria currently are oriented toward general
eligibility standards rather than specific job -related aptitudes,
skills, knowledge and experience. Qualifications criteria should
be upgraded significantly through the recommended city-wide job
analysis project. Screening of job applicants can then be conducted
on a more rational, job -related basis. This would be a joint effort
on the part of Human Resource Services and Management Services
Departments. The results would be reviewed and evaluated by
the Civil Service Board.
-47-
(4) The Job -Relatedness of Testing Instruments Should Be
Improved Through the Joint Efforts of the Civil Service
Board and Human Resource Services Department
Examination content has been reported by a number of Miami
city employees as being somewhat irrelevant and often out-of-date
for selected position classes, particularly in skilled trades. A
thorough review of exam content should be undertaken by Human
Resource Services and the Civil Service Board as an outgrowth of
the job analysis project to modernize testing instruments and
ensure their job -relatedness. More formal test validation --
assessing the correlation between test and subsequent job perfor-
mance --may have to wait until job -valid measures of work perfor-
mance are developed. In the meantizne, expanded use of qualifications
appraisal boards and performance tests may be appropriate.
(5) Selection Practices Should Be Revised To Increase
Flexibility and Eliminate Questionable Pre -Employment
Qualifying Requirements
Selection practices defined in the Civil Service Ordinance
should be revised where possible to permit "Rule of the Register"
certification for open competitive positions. In addition, the pre-
employment qualifying practice of requiring a polygraph examination
should be reviewed. A certificate attested by the job candidate
that he is drug -free and waiving disability rights if he provides
-48-
false information should be sufficient for most positions.
Moreover, medical standards for employment eligibility should
be formally specified and specifically job -related. Rejection of
candidates on medical grounds should be carefully documented
and aggrieved candidates given impartial redress by the Civil
Service Board if they can obtain a contradictory medical opinion.
These revisions should be researched by the Board staff with
assistance from Human Resource Services and the City Law
Department. They should then be presented to the Board and
Commission for appropriate action.
(6) Document the Personnel Record Keeping Practices in
Written Procedures Manuals and Computerize Appropriate
Personnel Information
Personnel record keeping practices should be formalized in
written procedures manuals under the direction of Human Resource
Services. In addition, appropriate personnel information should
be computerized, as practical. Guidelines for retention of
personnel records on a decentralized basis should be developed
and issued to departments. Key personnel data needs for
management purposes should be identified and unified manual
reporting systems capable of being automated as capacity is in
place should be developed. An illustration of a personnel
management report is provided in Exhibit IV, following this page.
-49-
XHIBIT IV (a)
7.ity of Miami
PERSONNEL STATUS REPORT (FY 74)
Positions
ra.r Positions Unfilled Vacancy
r. Vacant Over 1 Month Rate/Qtr.
Department
. Community
Development
Services
- Planning Sves,
- Code Enforce Sves.
• Ofc Planning Bd.
▪ Community
Improvement
Services
- Public Works
- Public Properties
- Sanitation
- Parks & Recreation
- Publicity & Tourism
- Public Facilities
Administrative Services
Services
- Communications
- Finance
- Internal Audit
- Employee Services
- City Physician
- Ofc Planning Bd.
. Police
. Fire
. City Manager's
Office
. City Clerk's
Office
. City Attorney's
Office
FY Positions Actual New Promotions/ PrO.
Department Authorized Beg. Qtr. Hires Transfers In TIICA
. Community
Development
Services
- Planning Sves.
- Code Enforce Sves.
- Ofc Planning Bd.
. Community
Improvement
Services
- Public Works
- Public Properties
- Sanitation
- Parks & Recreation
- Publicity & Tourism
- Public Facilities
. Administrative Services
Services
- Communications
- Finance
- Internal Audit
- Employee Services
- City Phy..sician
- Ofc Planning Bd.
. Police
. Fire
. City Manager's
Office
. City Clerk's
Office
• City Attorney's
Office
Total City
E
ILLUSTRATIVE QUA RTERL1
Termination/
Separations
Actual
End Qtr.
Turnovi
Rate/QtY
r.
!f2r2.•
. .
. • • .
ist.P4cA1,1,1,tti 0 ;
. _
41'
• . . r.. -.• • - • •
••-•• •
••
Promotions/
Transfers Out
Department
Community
Development
Services
- Planning
- Code Enfoi
- Ofc Planni
Community
Improvemen
Services
- Public Wo:
- Public Prc
- San.itation
- Parks &
- Publicity
- Public Fai
• Administrat
Services
- Communit
- Finance
- Internal A
- Employee
- City Phys
- Ofc Plann
. Police
. Fire
• City Manag
Office
- City Clerk:
Office
• City Attor
Department
. Community
Development
Service s
- Planning Sves.
- Code Enforce Sves.
- Ofc Planning Bd.
. Community
Improvement
Services
- Public Works
- Public Properties
- Sanitation
- Parks & Recreation
- Publicity & Tourism
- Public Facilities
'XHIBIT IV (a)
7ity of Miami
it PERSONNEL STATUS REPORT (FY 74)
Positions
Far Positions Unfilled Vacancy
r. Vacant Over 1 Month Rate/Qtr.
. Administrative Services
Services
- Communications
- Finance
- Internal Audit
- Employee Services
- City Physician
- Ofc Planning Bd.
. Police
. Fire
. City Manager's
Office
. City Clerk's
Office
. City Attorney's
Office
Total City
Department
• Community
Development
Services
- Planning Sves.
- Code Enforce Sves.
- Ofc Planning Bd.
rIV(b)
Miami
3ONNEL STATUS REPORT (FY 75)
Positions
Flit' Positions Unfilled Vacancy
,r. Vacant Over 1 Month Rate/Qtr.
• Community
Improvement
Services
- Eng. & Maint. Sves.
- Sanitation Sve s .
- Rec. & Tourism Sves.
. Administrative
Services
- General Sves.
- Financial Sves.
- Management Sves.
- Human Resource Sves.
. Police Services
Fire Services
. City Manager's
Office
. City Clerk's
Office
. City Attorney's
Office
Total City
Department
. Community
Development
Services
- Planning Sves.
- Code Enforce Sves.
- Ofc Planning Bd.
FY Positions Actual New Promotions/ Prom(,
Authorized Beg. Qtr� Hies Transfers In Try e
. Community
Improvement
Services
- Eng. & Maint. Sves.
- Sanitation Sves.
- Rec. & Tourism Sves.
. Administrative
Services
- General Sves.
- Financial Sves.
- Management Sves.
- Human Resource Sves.
. Police Services
. Fire Services
. City Manager's
Office
. City Clerk's
Office
. City Attorney's
Office
Total City
Actual New
Beg. Qtr. Hires
ExHIBt IV (b)
City of Miami
ILLUSTRATIVE QUARTERLY PERSONNEL STATUS REPORT (FY 75)
Positions
promotions/ Promotions / Termination/ Actual Turnover Positions Unfilled Vacancy
Transfers In Transfers Out Separations End Qtr. Rate/Qtr. Vacant Over 1 Month Rate/Qtr.
Department
Community
Development
Services
- piing Sves.
- Code Enforce Swig.
- Ofc Planning Bd.
. 'Commtmity
Improvement
Services
public Works
- Public Properties
- Sanitation
- Parks & Recreation
- Publicity & Tourism
- Public Facilities
EXHIBIT IV (a)
City of Miami
ILLUSTRATIVE QUARTERLY PERSONNEL STATUS REPORT (FY 74)
• Positions
FY Actual Turnover
d Vacancy
AuthorizediBeg.gQtr. Hires Tr�sfers In Transfers Out SeparNew Promotions/ Promotions/ ations, End Qtr. Rate/Qtr. Positions
Overf11Month Rate Qtr.
.
Administrative Services
Services
- Communications
- Finance
- Internal Audit
- Employee Services
- City Physician
- Ofc Planning Bd. ,
Police
. Fire
City Manager's
Office
City Clerk's
Office
City Attorney's
Office
Total City
Department
Community
Development
Services
- Planning Sves.
- Code Enforce Sves.
- Ofc Planning Bd.
EXHIBIT IV (b)
City of Miami
ILLUSTRATIVE QUARTERLY PERSONNEL STATUS REPORT (FY 75)
Positions
FY Positions Actual New Promotions/ Promotions/ Termination/ Actual Turnover Positions Unfilled Vacancy
Authorized Beg. Qtr. Hires Transfers In Transfers Out Separations End Qtr. Rate/Qtr. Vacant Over 1 Month Rate/Qtr.
. Community
Improvement
Services
- Eng. S. !hint. Sves.
- Sanitation Sves.
- Rec. & Tourism Sves.
Ad.-ainistrative
Services
- General Sves.
- Financial Sves.
- Management Sves.
- Human Resource Sves.
Police Services
Fire Services
. City Manager's
Office
. City Clerk's
Office
• City Attorney's
Office
Total City
h
Department
Community
Development
Services
- Planning Sves.
- Code Enforce Sves.
- Ofc Planning Bd.
EXHIBIT IV (b)
City of Miami
ILLUSTRATIVE QUARTERLY PERSONNEL STATUS REPORT (FY 75)
Positions
FY Positior.s Actual New Promotions/ Promotions/ Termination/ Actual Turnover Positions Unfilled Vacancy
Authorized Beg. Qtr. Hires Transfers In Transfers Out Separations End Qtr. Rate/Qtr. Vacant Over 1 Month Rate/Qtr.
Community
Improvement
Services
- Eng. & \laint. Sves.
- Sanitation Sves.
- Rec. s Tourism Sves.
. AtLainis:rative
Services
- General Sves.
- Financial Sves.
- Management Sves.
- Human Resource Sves.
Police Services
Fire Services
City Manager's
Office
. City Clerk's
Office
. City Attorney's
Office
Total City
4. MANPOWER DEVELOPMENT
Existing efforts in the City of Miami to motivate and develop
municipal employees are generally fragmented, unsystematic and limited
in scope. Principal areas of concern by city employees in manpower
development include the following:
Training traditionally has been provided on a depart-
mental basis and coordinated by a City Safety and
Training Officer. This position has been vacant for
months, however, and the City's training efforts
are very limited. Exceptions exist, though,
particularly for the uniformed services where
designated training officers provide comprehensive
training services for police and fire personnel.
Advancement in municipal service is achieved through
civil service based promotions. Promotions, although
theoretically predicated upon demonstrated merit
performance, are subject to a number of variables
such as turnover and timing which are not uniform for
all employees nor indicative of merit performance.
Performance appraisal is limited to the current
Service Rating program which only identifies and
reports unsatisfactory performance on a semi-annual
basis. This technique does not allow any differentiation
between marginal and outstanding work performance.
Our survey of city employees indicates that this area
is of particular interest to line employees.
It is apparent that the City must increase its commitment to and invest-
ment in the development and motivation of city employees. This
increased emphasis is basic to improving work performance and
preparing employees for advancement to positions of increased work
responsibility. At the same time, the City must protect itself from
unsatisfactory work performance through a systematic program of
performance evaluation and corrective actions, where appropriate.
The responsibility for manpower development has traditionally been
that of management. Until now, however, little has been done to assure
that department managers and city management as a whole carry out
this responsibility. As a line department under direct City Manager
authority, the new Human Resource Services Department presents a
significant opportunity for implementing and enforcing improvements
in this area. The new Human Resource Services Department (HRSD)
should take the lead in carrying the recommended improvements under
Civil Service Board review that are discussed in the following paragraphs.
(1) Inventor Cit -Wide Develo•ment Needs on a S stematic
Basis
The City should maintain an up-to-date inventory of
municipal employee development needs. Needs can be assessed
through the job analysis project and periodic employee surveys
as well as through monitoring of appropriate research and
training curricula.
(2) Initiate S stematic Career
Selected Municipal Departments on a
Limited Basis in Sel
Career development potential should be monitored and
developmental milestones scheduled on an individual basis for
certain areas of municipal service (i.e., Police and Fire
-51-
Departments, all second -line supervisors, middle managers and
executive employees). A program should be initiated on a pilot
test basis to assess the feasibility of extending such a program
city-wide.
(3) Schedule On -the -Job Development Opportunities to
Provide Skills Training and Improve Work Performance
On-the-job development opportunities should be provided on
a decentralized basis throughout the City to improve overall work
skills and performance capabilities. Although delivered on a
decentralized basis, city-wide coordination of on-the-job develop-
ment services should be the responsibility of the Training and
Development unit of HRSD.
(4)
Expand Trainin and Educational Op ortunities for
Miami City Em 1p ogees
The City should broaden training and educational opportunities
available to city employees and encourage participation in these
through appropriate incentives, such as:
Training and educational attainment prerequisites for
promotional eligibility for selected advanced -level
positions
. Training
and education milestones as a prerequisite
for merit increases or exceptional bonuses or other
monetary incentives
-52-
(5) Revise Civil Service Promotional Practices To Permit
Increased Flexibility for Staffing Advanced -Level Positions
Promotional practices should be revised to permit increased
flexibility in staffing advanced -level positions so that the City and
its employees may benefit from having the beat qualified persons
assume the critical middle management and professional
positions. Avenues toward implementing this recommendation
include:
"Rule of the Register" should be instituted for
open -competitive positions.
"Rule of Three Groups" should be instituted for
promotional positions.
Selected and limited use of lateral entry at advanced -
level positions should be permitted to obtain personnel
with specialized or professional experience and
training not possessed by current city employees.
Existing municipal employees should be extended
advantages in competitive situations through
significantly expanded training and development
opportunities rather than the current "bonus point"
system.
Opening up of promotional eligibility to all municipal
employees who meet minimum qualifications should be
considered.
Selective certification should be permitted based on
well -established performance and qualifications
standards for promotional positions.
Flexible training and experience milestones should be
built into advanced -level position qualifications
standards.
These proposed revisions should be carefully researched
by HRSD and the Board staff to assure that they are applied
in such a way as to reinforce the merit -based civil service
system. Intensive legal examination will be required also.
The results of these efforts should then be presented to the Board
and Commission for their review and approval.
(6) Strengthen the Service Rating Program Through
Adoption of an Employee Evaluation Instrument That
Will Differentiate Among Varying Degrees of Performance
The employee evaluation process should be revised to permit
a complete performance appraisal based on job -related criteria.
The job analysis project should assist in identifying critical job -
related task elements and determining appropriate performance
standards. A basic evaluation instrument, capable of city-wide
adaptation, should then be designed to accommodate specific job -
related performance criteria as well as the more traditional
"personality trait" and quantitative/qualitative work output
evaluation factors. In the past, evaluation mechanisms have
proven unsuccessful for a number of reasons including the inability
of the Board staff to enforce the proper execution of evaluations
by departmental management. With no direct control over depart-
ment managers, the Board had no effective recourse in cases of
non-compliance. It is recommended, therefore, that this new
effort be shifted to HRSD where the authority of the City Manager
-54-
may be used to ensure compliance and proper execution of
evaluations. Results of evaluations, however, that directly affect
employee status would still be applicable to and reviewed by
the Civil Service Board as they are today.
(7) Consider Making the "Merit" -Based Compensation Program
Effective To Provide Rewards Commensurate With
Employee Performance
Subsequent to implementation of an improved employee
evaluation program, the City may wish to consider revising the
automatic merit increase compensation program to provide
monetary rewards commensurate with employee performance.
This might take the form of productivity incentives, "job rate"
compensation policies, performance bonuses or the like. However,
full development and implementation of a time -merit compensation
plan should await total city-wide acceptance of the strengthened
performance appraisal program.
4. EMPLOYEE SERVICES
Existing activity in the area of employee services ranges from
predominantly informal efforts such as employee orientation and
counseling to more sophisticated computer -based payroll and benefits
administration. Other current activities classified as employee services
include:
-55-
Disciplinary and Grievance Procedures: Miami has
established procedures for disciplining employees and
providing them impartial redress through the grievance
process. However, the resulting adversarial
proceedings appear to have damaged overall manage-
ment/employee relations.
Work Safety: The City's Safety and Training Officer
position has remained unfilled for an extended period
of time so safety engineering activities are practically
non-existent. The Employee Services Office administers
the workman's compensation program, though, and
safety services are provided in a few city departments
on a decentralized basis. However, existing efforts
fall far short of emerging Occupational Safety and
Health Administration requirements.
Medical, Services: The City Physician's Office conducts
pre -employment physical exams and certifies illness
and disability claims but no :systematic employee health
program exists.
Labor Relations: All labor negotiations and contract
administration activities are coordinated through the
Employee Services Office where work load in this
area is generally experienced on a cyclical basis
coinciding with the contract periods.
It is apparent that current activities in the area of employee
services offer opportunities for expansion and improvements,
particularly in safety services and employee orientation and
counseling.
(1) HRSD Should Institute an In -Service Orientation and
Counseling Program
An in-service program to provide city-wide orientation
and counseling services should be instituted on a centralized basis
as part of the new Employee Information Services section of
HRSD. A dedicated period should be set aside each week to
provide general orientation for new city employees and the new
section should be staffed with sufficiently informed reception
personnel to assist employees in assessing and retrieving
information on job opportunities. In addition, professional
counseling relative to career guidance should be made available
to municipal employees.
(2) Disciplinary and Grievance Procedures Should Be Tied
Into the HRSD Counseling and Performance Evaluation
Programs
In-service counseling and performance evaluation programs
should provide the means for identifying and resolving routine
grievances and disciplinary appeals. Counseling sessions
provide an opportunity for discussing unsatisfactory performance
and suggesting corrective action. Performance evaluations could
be designed to highlight potential work problems in a counseling
environment and propose proper solutions before conflicts occur.
This positively oriented process can save valuable time for the
Board and the Commission and lessen the animosity generated
in legalistic employee/management confrontations.
-57-
(3) Benefits Administration Procedures Should Provide
Employees With Required Information and Prompt
Claim Service
No major problems were identified in the benefits adminis-
tration area. There is an apparent need, however, for more
complete information for employees and management alike
concerning the present and future value of municipal compensation
packages. In addition, claim service to employees should be as
prompt and responsive as possible. HRSD should provide a means
of responding to compensation cases to inform individuals clearly
of their benefit rights.
(4) HRSD Should Institute a Self -Enforced Safety Standards and
Inspection Program
A self -enforced safety standards and inspection program
should be instituted under HRSD to anticipate and comply with
emerging Occupational Safety and Health Act requirements. The
program should be composed of three elements:
•
Safety Training and Education
Safety Inspection and Standards Review
Accident Investigation and Analysis
Standards initially promulgated should be drawn from existing
federal industrial standards currently being enforced by the Occu-
pational Safety and Health Administration (OSHA). Our survey of city
-58-
employees uncovered significant areas for improvement in the
safety and first aid programs available to field crews.
(5) Health and Medical Services to City Employees Should Be
Expanded Under the City Physician in HRSD
Health and medical services to city employees should be
moderately expanded to include a preventative health program
including diagnostic and inoculation services on a limited basis.
Expanded health and medical services should meet OSHA guide-
lines for industry recommended in the State of Florida OSHA plan.
Health services for field crews as basic as having first aid kits
on all crew vehicles and regular first aid training for all crew
foremen could provide a sound beginning.
(6) Labor Relations Should Be Handled by the Office of the
City Manager
Labor relations should be afforded appropriate city attention
by assigning it as a staff function to the City Manager's Office.
Efforts should be concentrated on:
Improved coordination of labor negotiations with
annual budget calendars
Establishing a routine channel of communications
between the Office of the City Manager and employee
representatives
-59-
Administering labor contracts consistent with individual
contract provisions while maintaining, to the extent
possible, equitable and uniform treatment of all city
employees irrespective of employee group affiliation
5. BASIC STEPS TOWARD IMPLEMENTATION
Implementation of a comprehensive human resource management
system requires action by the Board of Commissioners, the Office of the
City Manager, and the Civil Service Board and its staff.
(1) Implementation Must Take Place in a Gradual and Coordinated
Way With Participation by Those Directly Concerned and
Affected
The recommended HRMS cannot and should not be unilaterally
imposed by any single unit of City government. The recom-
mended changes should be the product of the evolution of a new
management structure and should develop as a result of careful
consideration by all parties involved and concerned with manage-
ment of the City's human resources, including:
The Board of Commissioners
The Civil Service Board
The Office of the Civil Service Board
The Office of the City Manager
Department directors
Employee groups and their representatives
Community representatives
For this reason, all of these parties were involved in the process
of designing the recommended system described in this report to
-60-
obtain the benefit of their experience and viewpoints. This open
environment for developing new administrative procedures and
processes for an HRMS is considered vital to the eventual
success of the recommended system and should be continued.
Before submission of this report, discussions concerning basic
HRMS recommendations were held with Commission members, members
of the Civil Service Board and its Office, managers at all levels in the
city government and employee representatives. Recommendations will
be reviewed in more detail with them during implementation. Once the
Commission considers further development of HRMS, the first stage of
implementation can begin as outlined below. It should be noted that the
five stages of implementation overlap in time sequence in some cases.
Stage 1 - Review and orientation discussions concerning
detailed HRMS plans, policies and programs
involving those units and individuals that will
be affected by specific improvements.
Stage 2 - Formulation of a work plan for implementing
HRMS that reflects the policy priorities of the
City government and securing formal Commission
approval for specific actions, as required.
Stage 3 Establishing the new HRMS administrative
organization through creation and staffing of
ne w units, and phasing in operations consistent
with work steps indicated by the overall work plan.
-61-
Stage 4 - installing new systems and procedures to
improve and streamline the existing personnel
administration processes and initiating new
programs to strengthen overall management of
human resources in the City.
Stage 5 - On -going operation of new organizations,
systems and procedures.
Each of these stages will require the participation of a number of
different units and individuals. This participation should be
coordinated by the Office of the City Manager with special
responsibility for implementation assigned to the new Deputy City
Manager for Administrative Services. This responsibility should
be shifted largely to the Human Resource Services Director when
the position is filled and the Executive Secretary of the Civil
Service Board. Ultimately, accountability for the proper
installation and administration of an HRMS remains, as the courts
have recently indicated, with the City Manager as the chief
executive officer of the City and the appointing authority under
the Charter.
(2) Staff Should Be Added to the Human Resource Management
System on a Staged, incremental Basis
Tentative staffing requirements and costs required for
complete implementation of organization recommendations
proposed throughout this chapter are displayed in Exhibit V.
following this page. Staffing increments should be staged to
-62-
City of Miami
WE STAFFING REQUIREMENTS AND INCREMENTAL COSTS
FOR FULL IMPLEMENTATION OF HRMS
. Personnel Spec)
. personnel Tech
. Personnel Clerl
. Nursing Staffin;
Positions
HUMAN RESOURCE SERVICES STAFF
TOP MANAGEMENT
Tentative
Staffing Existing
Req= ens New Staff
. Director of Department 1 0 11 1 0
. Assistant to Department Head 1 1 0
. City Physician
MIDDLE MANAGEMENT
. Departmental Services
Administrators
. personnel Services Officer
. Labor Coordinator
5 3 2
5 3 2
1 1 0
PROGRAM SUPPORT
0 6 4
0
. Personnel Specialists 10 4
. Personnel Technicians 1136 3
. Personnel Clerks 3 3 0
. Nursing Staffing
CIVIL SERVICE BOARD STAFF
1 1 0
. Executive Secretary 1 0 1
. Assistant to Executive Secretary . Personnel Technicians 2 0 2
2 0 2
. Clerical Staff
Total
52
34 18
• As of December 31, 1973.
• • Direct salary cost only. Does not include fringe estimated at 17%.
$30, 000
16, 000
18, 000
20, 000
14, 000
12, 000
8, 000
14,000
12,000
TENTATIVE STAFFING REQUIREMENTS AND INCREMENTAL COSTS
FOR FULL IMPLEMENTATION OF HRMS
coincide with program priorities as they are addressed. In
addition, the staffing should be reassessed annually to ensure
that each unit of HRMS is properly staffed to accomplish its
assigned policy review and program administration duties.
(3) Benefits of thed Outweigh
Full l hdIncremental Staffing Costs uccessful Lrnplementation of
HRMS Should g
Successful implementation of HRMS will provide the founda-
tion for near -term efficiencies in personnel management processing
costs as well as some productivity improvement in municipal ser-
vices. In all likelihood, however, these benefits will not result in
savin s in the traditional business sense. Rather, these benefits
are likely to surface in two different forms:
Quantitative Cost Avoidance: Producing more units of
service under existing manpower levels.
Qualitative Service Improvements: Improving the
level or,effectiveness (impact) of existing City
services.
The level of quantifiable benefits from HRMS can best be
understood through three examples related to:
Job Analysis, Work Measurement and Other
Productivity Improvements
Accident and Injury Reduction
Employment Processing Improvements
-63-
Approximate benefits in each example are highlighted below:
Job Analysis, Work Measurement and Other
Productivity Improvements
A job analysis and work measurement program
will identify areas where specific job tasks can be
redefined or restructured to increase productivity
of individual positions. The effect of this type of
program in the City of Miami can be made with
generalized but reasonable data to illustrate the
effect of increasing productivity. Experience in
other local governments proves that a 20% increase
in productivity, as a result of a program of this type,
is a conservative figure. If all positions in the City
were improved by only 10%, the dollar value of cost
avoidance would exceed $3 million annually. Of this
$3 million, $1.2 million could be expected to be
attributed to labor-intensive services to the
public. This, in effect, would allow the City to
provide that much more service to the residents of
Miami.
Accident and Injury Reduction
The cost of workman's compensation due to injury or
serious illness has risen significantly over the past
five yea:7s. The real costs of injuries are beyond the
basic compensation benefits and include overtime pay
often required to fill in for missing employees (as in
the case of police or fire with fixed manpower require-
ments). There is also a cost of diminished services
which may also be equated to approximately the cost
of overtime pay for the sake of discussion. A sound
work safety and preventive health program, con-
servatively, can be estimated to reduce vacancy days
by as much as 20% annually based on national figures
and our past experience. Using available data, we
estimate the effect of this reduction to be approximately
$160, 000 annually.
-64-
Employment Processing Improvements
Another form of position vacancy occurs when job
openings are not filled promptly, and, again, cost
per unit of service increases because of overtime
pay or the level of service decreases in proportion-
ate dollar value. While accurate data is not presently
kept on days/position vacancy, using reasonable esti-
mates, the degree of cost avoidance available by
cutting the average vacancy time from 60 to 40 work-
days is estimated to be in the area of $50, 000 annually.
Other forms of cost avoidance and service improvement
exist in less tangible forms. For example, the improvement of
employee skills through an ongoing and effective training program
can contribute to productivity improvement also. Our past expe-
rience indicates that the dollar value of such programs usually is
equivalent to 1%-2% of total staff salaries, or approximately
$300, 000-$600, 000 annually in Miami's case. Examples of other
types of potential benefits resulting from improvement in each
area addressed in th.: complete lhiman Resource Management
System are providedein Exhibit VI, following this page.
Benefits can and should be measured on an annual basis as
a means of monitoring the success of implementation efforts.
During implementation, specific benefit measures should be devel-
oped by the operations analysis unit of Management Services. These
measures should be developed for specific programs and be well -
understood by all those involved.
Human Resource Management System
Area of Improvement
. POSITION MANAGEMENT
- Work measurement
- Manpower utilization
- Skills needs assessment
- lob engineering
- Manpower planning
- Position budgeting
- Classification and salary administratior.
. PERSONNEL PROCUREMENT
- Requisitioning
- Recruitment
- Qualifications determination
- Examinations
- Selection
- Employment processing
- Personnel records administration
. MANPOWER DEVELOPMENT
Development needs assessment
- Career planning
- On-the-job development
- Training and education
- Promotion and advancement
- Performance evaluation
- Employee motivation
EXHIBIT VI (1)
City of Miami
EXAMPLES OF POTENTIAL HRMS BENEFITS
Potential Benefit Examples
. Increase manpower utilization `or v.nderutilized pos.-ions.
. Work measurement standards may ie ce.ve'.oped to c eter-
mine manpower utilization, and irenti`y cats. an4 arias
for productivity improvement.
. Work load requirements may be p ie::ed on a monthly o-
annual basis to minimize positior ncis: and etrpbye:
downtime.
. Increased productivity through ',ever :rgi leered jcbs.
. Increased job opportunities for Norarc minority gr3ups.
. Development of more interesting ale pwsrnally sa::lsf.ring
jobs through job enrichment prog;a Tns.
. Increased and more intensive a edit c lassi` cations.
. Streamlined requisitioning process decreases time lapse
between requisition and employment.
. Increase in the number of qualified applicants for city
employment, especially minority and women applicants.
. Increased clerical and supervisory productivity in the
procurement process.
. Reduced overtime costs related to positibn vacancy.. •
. Streamlined personnel records management system and
resultant greater ease of access and reduced access and
processing cost.
. Improved opportunities for upward mobility.
. Greater training and education opportunities.
. Improved means to recognize and reward superior
employee performance and resultant improve-
ment in performance in response to incentives.
Human Resource Management System
Area of Improvement
. EMPLOYEE SERVICES
- Counseling and orientation
- Disciplinary actions and grievances
- Benefits administration
- Safety services
- Medical services
- Labor contracts and negotiations
EXHIBIT VI (2)
Potential Benefit Examples
. Reduce the number of cases that require Civil Service
Board action and/or Commission.
. Reduce job related accidents involving time lost at work.
. Reduce sick leave costs.
(4) Establishment of the Full HRMS Concept Will Strengthen
the Civil Service System While Allowing Better Management
Control Over City Service Delivery
Exhibit VII, following this page, provides a detailed summary
of responsibilities for human resource related activities at present
and as proposed under the fully developed Human Resource Man-
agement System described in this report.
As can be seen from the Exhibit:
No changes are recommended in the civil service
system that alter or diminish the basic policy of
merit -based employment.
No changes are recommended that change the policy
making, advisory, appeals, fact finding or adju-
dicative authority of the Civil Service Board.
Procedural changes are recommended that affect
the routine administrative Board and the Office of thee
of the Civil Service
City Manager.
The overall result of centralization of human resource -
related administrative responsibilities in the Human Resource
Services Division will strengthen the civil service system and
the City's ability to serve its citizens, visitors and employees.
Placing the new Human Resource Services Division under the
administrative control of the City Manager is managerially the
most sound and rational approach. The City Manager is account-
able for service delivery. The delivery of service is personnel
-66-
. Position budgeting
• Classification and
Salary Administration
Personnel Procurement
. Requisitioning
• Recruitment
EXHIBIT VII (1)
City of Miami
PRESENT AND PROPOSED RESPONSIBILITIES IN
HUMAN RESOURCE MANAGEMENT IN THE CITY OF MIAMI
Type of Activity or Policy Setting and Evaluation Respornibility
Work Element Present Proposed
Admfnfstrative and
Operational Responsibility
Present Proposed
Position Management
. Work measurement . Not currently done . City Manager - HRS
• HRS . MSD
. Manpower utilization . Not currently done . City Manager .. ▪ HRS
. HRS . MSD
. Skills needs aasesment . Dept. Directors . Dept. Directors . Dept. Directors . HRS
. Civil Serv. Office . Dept. Directors
. Job engineering . Not currently done . Civil Service Board - . HRS
. Manpower planning . City Manager . City Manager . City Manager . HRS
. sty Manager • City Manager . Budget office . Budget office
. HRS
. avil Service Board . Civil Service Board . Civil Service . fiRS
Office
. Civil Service Board . Civil Service Board . Civil Service . HRS
Office
. City Manager
. Civil Service Board . Civil Service Board . Civil Service . HRS
. City Manager . City Manager Office
. City Manager
Qualifications examination . Civil Service Board . Civil Service Board . Civil Service . HRS
Office
. City Manager
(Initial screening)
Examinations . Civil Service Board . Civil Service Board . Civil Service . HRS
Office . Civil Service
Office
Selection . Civil Service Board . Civil Service Board . avil Service . Civil Service
Office Office
. Department . HRS
Directors . Department
Directors
IS = Human Resource Services Division.
D = Management Services Department.
City of Miami
PRESENT AND PROPOSED RESPONSIBILITIES IN
HUMAN RESOURCE MANAGEMENT IN THE CITY OF MIAMI
Type of Activity or Policy Setting and Evaluation Responsibility
Work Element Present Proposed
Administrative and
Operational Responsibiitiy
Presentd
Position Management HRS
. Work measurement • Not currently done . City Manager MSD
. HRS '
. Manpower utilization . Not currently done . City Manager . MSD. FIRS
Dept. Directors . Dept. Directors . FIRS
Skills needs aaseasinent . Dept. Directors • Civil Serv. Office . Dept. Directors
. Job engineering • Not currently done • Civil Service Board
. HRS
. Ci Manager . City Manager . City Manager . HRS
. Manpower planning �'ang
g Manager . Budget office . Budgetudoffice
• Position budgeting .City Manager Y g
. Classification and . Civil Service Board . Civil Service Board . CCiivil Service • FIRS
Salary Administration
Personnel Procurement HRS
. Requisitioning . Civil Service Board . Civi1 Service Board • Civil Offica Service
. City Manager
. Civil Service Board . Civil Service . HRS
. Recruitment .Civil Service Board Office
City Manager . City Manager • City Manager
Service Board .Civil Service HRSQualifications examination . Civil Service Board . Civil
Civ
(Initial screening) ffice
.City Manager
ce Board .Civil Service HRS
Examinations •Civil Service Board Servi Office . Civil Service
Office
Civil Service . Civil Service
. Selection .Civil Service Board . Civil Service Board ' Office Office
. Department . HRS
Diteaoars . Department
Directors
HRS = Human Remtuce Services Division.
MSD = Management Services Department.
EXHIBIT VII (2)
Administrative and
ype of Activity or Policy Setting and Evaluations Responsibility Operational Reaponsipli
Work Element ed —
T Prim Proposed Present
Personnel Procurement (coned.)
. Employment processing
Personnel Records
Administration
Manpower Development
. Performance evaluation
. Development needs
assessment
. Career planning
. Training and education
. On -the -lob development
. Employee motivation
Employee Services
. Labor coc,tracts and
negotiation
• Benefits Administration
. Civil Service Board
. City Manager
. Finance
. Budget Office
. Civil Service Board
. Finance
. Individual
Departments
. Civil Service Board
. Not currently done
city-wide
. Not currently done
city-wide
. Employee Services
. Selected
Departments
. Not currently done
city-wide
. Not currently done
in a systematic
fashion
. City Manager
. Commission
. City Manager
I S = Human Resource Services Division.
MSD = Management Services Department.
. Civil Service Board
. City Manager
. Finance
. HRS
. Civil Service Board
. HRS
. Civil Service
Office
. City Manager
. Finance
. Budget Office
. Civil Service
Office
. Finance
. City Manager
. Individual
Departments
. Civil Service Board . Civil Service
Office
. Individual
Departments
. City Manager
. HRS
. City Manager
. HRS
. City Manager
. HRS
. City Manager
. HRS
. City Manager
. HRS
• City Manager
. Commission
. City Manager
. HRS
. Finance
. Civil Service
Office
. ti S
. Finance
. HRS
. Individual
Departments
. HRS
. Individual
Departments
. Employee Services . HRS
. Selected . Selected
Departments Departments
IAD
. HRS
. Individual
Departments
. HRS
. Individual
Departments
. City Manager . City Manager
. Employee Services . HRS
. Finance . Finance
Type or Activity or
Work Element
EXHIBIT VII (3)
Administrative and
Policy Setting and Evaluation RespondbilitY Opata tonal Re3PotnibilitY
Present Proposed Present Prod
E __ Sake: (Coated.)
entatioa and . Not currently done . City Manager
counseling services systematictlly
city-wide
. Medical services
. Safety services
Disciplinary actions and
grievances
. City Manager
. City Phyddan
. City Manager . City Physician
. HRS
. Civil Service Board . Civil Service Board • Civil
dSe office
. City Manager
urna=H Resource Services Division.
MSD = Management Services Department.
. HRS
. Individual
Departments
. HRS
. HRS
. Civil Service
Board and Office
. City Manager
based. He must therefore have administrative control over the
resources required to produce the services for which he is account-
able. The administrative control must be exercised within the
constraints of a carefully protected merit -based civil service
system under the review and authority of a strong, independent
Civil Service Board and Commission. All of these essential ele-
ments of a system of checks and balances are provided in the
Human Resource Management System recommended in this report.
The development and installation of a comprehensive HRMS for
Miami requires careful and detailed planning. This planning should be
done in the context of implementing the overall management organization
structure proposed in our August 1973 report concerning strengthening
the overall organization structure of the City and is considered in detail
in the next chapter on long-range implementation of the recommended
Human Resource Management System.
-67-
V. LONG-TERM IMPLEMENTATION PLAN FOR
HUMAN RESOURCE MANAGEMENT SYSTEM
V. LONG-TERM IMPLEMENTATION PLAN FOR
HUMAN RESOURCE MANAGEMENT SYSTEM
This chapter presents the details of a plan for implementing
proposed human resource management system recommendations.
These recommendations to strengthen and improve human resource
management as carried out under the civil service system are of
value to the City of Miami only if the means of accomplishing the
improvements are carefully planned for and the action steps well -
understood in detail. Where such plans are not made or maintained,
cities have traditionally experienced problems in effecting needed
change. The implementation plan for HRMS recommendations is
discussed below in terms of how, by whom and within what time
frame, actions may be accomplished, including:
The basic approach
The time frame for development
Recommended management and staffing assignments
1. THE BASIC APPROACH
The basic approach to HRMS implementation is a simple one.
char es in organization structure to erect the framework.
It begins with g
It then progres
ses through cycles of design and implementation with
increasing depth
to add people to carry out the functions. Each cycle
evolves from organ
izational design to procedural change with considerable
-68-
air
overlap between the steps. This overlap should help to assure a smooth
implementation of organizational and procedural recommendations.
An essential feature of the approach is that it relies on team
management to get things done. This approach is similar to the one
we recommended for the adoption of the Deputy City Manager (DCM)
concept presented in our organization report (August 1973). Two basic
tools will be supplied to assist the City in the implementation process:
Proposed organization structures --The recommended
overall city organization charts for several phases of
organizational development can be found in the Allen ini
zation report presented to the City by Booz,
August 1973. A detailed organization structure for
human resources management is contained in Exhibit II,
following page 34.
HRMS Polic Guidelines Workbook--Thisflooseleaf
notebook contains descriptions
• Current processes systems
• Issues pertinent to each process
• Goals for each process recommended
• Suggested guidelines for HRMS policies
Both these tools are working documents to provide the City with a
starting point for implementation. The organization structure outline
and the Wor
kbook must be refined and expanded as the various stages
of impleme
ntation are reached. Details on using the Workbook are
explained in
its introduction. It will be provided to the City in a
separate volume within the next few weeks.
-69-
2. THE TIME FRAME FOR DEVELOPMENT OF A COMPLETE HRMS
The basic near -term organization development should be carried
out over a five to six month period. This allows for gradual implemen-
tation. The near -term implementation starts with a series of meetings
with elected officials and selected employees and Civil Service Board
and office representatives. In these meetings we will introduce the
details of the organization changes which are recommended to take
place in subsequent months and on which agreement to proceed has
been provided by the appropriate authority. Some of the major
organizational changes recommended include:
Creation of a Deputy City Manager for Administrative
Services
Establishment of a new Human Resource Services
Department, within the anticipated Administrative
Services Group
Creation of Departmental Services Units to provide
certain personnel functions
The roposed implementation of the HRMS or parts of it depends
P
on approva
l and passage of ordinances by the City Commission as well
as specific actions by others. These ordinances will permit the
developme
nt of a series of near -term and long-range improvements
of human resource management. A scheduled plan for.the
in the area ement
development of the improved human resource manag
three year resented in Exhibit VIII,
systems recommended in this report is p
following this page.
-70-
EXHIBIT VIII (1)
City of Miami
EAR DEVELOPMENT PLAN FOR FIRMS AND
TCTURED MANAGEMENT ORGANIZATION
Fiscal Year 1974 Fiscal Year 1976
1. ORGANIZATION DEVELOPIV.
1. Staff the Deputy City ManIPlete realignments of Service Divisions to
of the City Manager. ect Stage III organizational structure.
. Community ImprovemelPlete staffing of key managerial positions.
. Community Developme
. Administrative Servicelplete staffing of Management Services
• Police Services (Policeartment.
. Fire Services (Fire Ch
iplete staffing of Human Resource Services
2. Create 5 Service Divisionartment.
City Manager. Within 5 r
group existing city depart
service units (see Stren t
Or anization Structure of
August 197
3. Begin staffing Managemer
Hire a Director of Man
. Absorb incumbent city
incorporated units
- Internal Audit Depar a
- Budget Admini
- Data Processing Sec
Select 5 Operations An
employees and assign i
Section.
4. Begin staffing Human Ref
. Hire a Director of Hun
THREE -YEAR -DEVELOPMENT PIJAN
Fiscal Year 19
Fiscal Year 1974
I. ORGANIZATION DEVELOPMENT
1. Staff the Deputy City Manager positions within the Office
of the City Manager.
• Community Improvement Services --existing
• Community Development Services
• Administrative Services existin
• police Services irelice Chief)1eexisting g
• Fire Services
2. Create 5 Service Divisions each Headed by a Deputy
City Manager. Within 5 new Service Divisions,
group existing city departments into functional
De
service units (see Strengthening the Miami
artmen
t
Or anization Structur of the City o
August 1973
3. Begin staffing Management Services Department.
Hire a Director of Management Services
• to
Absorb incumbent city employees from
incorporated units
- Internal Audit Department
- Budget Administration Section
- Data Processing Section
Operations Analysts from existing city
▪ Select 5 OPeran to Operation Analysis
employees and assig
Section.
in staffing Human Resource Services Department
4. Be g
Hire a Director of Human Resource Services
1. Reorganize 5 Servic
Implementation wor
▪ Develop detailed
to facilitate new .
• Continue team bu
Divisions to enco
in service delive
2. Staff new departure.
functional services
• Engineering & M
• Recreation & Tc
3. Continue staffing n
▪ Budget analysts
• Data processing
4. Continue staffing n
Department.
▪ Personnel Spec
• Personnel Tech
• Reinforcing Pe
5. Develop work plat
structures.
Prepare detail-
levels.
Prepare FY 7�=
configurations
THREE -YEAR: -DEVELOPMENT PLAN --MANAGEMENT ORGANIZATION
Fiscal Year 1975
EXHIBIT VIII (1)
City of Miami
THREE-YEAR DEVELOPMENT PLAN FOR HRMS AND
RESTRUCTURED MANAGEMENT ORGANIZATION
1. Reorganize 5 Service Divisions according to Stage II 1.
Implementation work plans.
• Develop detailed operating policies and procedures
to facilitate new organizational alignments.
. Continue team building within and among Service
Divisions to encourage efficiency and effectiveness
in service delivery.
Staff new department director positions to supervise
functional services unit groupings.
. Engineering & Maintenance Services
. Recreation & Tourism Services
3. Continue staffing new Management Services Department.
. Budget analysts
. Data processing personnel
4. Continue staffing new Human Resource Services
Department.
. Personnel Specialists
. Personnel Technicians
. Reinforcing Personnel Officers
5. Develop work plan for implementing Stage III organization
structures.
. Prepare detailed integration plans at all organizational
levels.
Fiscal Year 1976
Complete realignments of Service Divisions to
reflect Stage III organizational structure.
2. Complete staffing of key managerial positions.
3. Complete staffing of Management Services
Department.
4. Complete staffing of Human Resource Services
Department.
. Prepare FY 76 budget format to reflect new organizational
configurations.
Fiscal Year 1974
• Reassign city employees as required and appropriate
from incorporated units.
- Office of the City Physician
- Employee Services Office
- Office of the Civil Service Board
5. Reassign the Labor Relations function as a staff responsibility of the
Office of the City Manager.
. Establish a new unit for Labor Contracts and Negotiation
. Staff the position of Labor Coordinator
6. Develop work plan for implementing Stage II Organization structure.
Conduct Team Building sessions
• Prepare Detailed Integration plans at Service Division level
Reassign ci
from incori
- Office of
- Employe.
- Office of
Fiscal Year 1974
II. HRMS DEVELOPMENT
1. Staff selected key positions in Human Resource
Services Department.
• Department Director
Assistant to Department Head
• Position Management Officer
Training and Development Officer
• Employment Services Officer
2. Initiate a comprehensive job analysis program covering
target position classes.
• Select and train operations analysts in Functional Job
Analysis.
. Prepare and secure agreement with departmental
personnel on overall work plan.
. Select target position classes with attention to:
- Engineering Technicians I -IV
- Auto Equip Operators I- IV
- Park Tenders I -III
- Accountants I -IV
- Selected craft positions
Schedule field audits
THREE YEAR DEVELi_
Fiscal
1. Continue staffing
Services Departrr
• Safety Service
Employee Info
. Remaining Pei.
2. Continue compre-
the City with atte
Clerical/Secr
Cashiers and
Photographers
. Keypunch and
Civil Enginee
. Inspection ser
• Planners I -III
• Laborer serie
Maintenance s
. Recreation Le
. Communicati
3. Continue and e
throughout the
4. Continue repor
labor intensive
. Include all a
have been de
Begin feasib
an Resource
r
-1is program covering
firsts in Functional Job
,with departmental
=th attention to:
THREE YEAR DEVELOPMENT PLAN--HRMS
Fiscal Year 1975
1. Continue staffing of key positions in Human Resource 1.
Services Department.
. Safety Services Officer
. Employee Information Services Officer
. Remaining Personnel Specialist positions
2. Continue comprehensive job analysis program throughout
the City with attention to:
. Clerical/Secretarial Series
Cashiers and Account Clerks
Photographers and publicity writers
• Keypunch and Computer operators
Civil Engineers I -IV
• Inspection series
. Planners I -III
Laborer series
• Maintenance series
▪ Recreation Leaders I -III
. Communications and Office Machine Opertor series
3. Continue and expand work measurement program
throughout the City to all appropriate positions.
4. Continue reporting of manpower utilization in selected
labor intensive areas.
Include all areas for which work output standards have
have been developed.
• Begin feasibility study of automating reporting system.
EXHIBIT VIII (3)
Fiscal Year 1976
Complete staffing of Human Resource
Services Department.
2. Complete remaining uncovered positions
in job analysis program.
3. Complete work standards development
and institute on going work measurement
audit cycle.
4. Automate manpower utilization reporting
as practical.
5. Continue job engineering and restructuring
program.
6. Initiate ongoing planning maintenance cycle
to update classification plan.
7. Refine manpower planning system by
incorporating annual recruitment schedule.
8. Continue affirmative action program
through to goal achievement.
9. Continue test validation and refinement of
qualification criteria.
Fiscal Year 1974
. Commence field work
. Prepare and post field reports
. Begin identification of task elements
- Training curricula
- Performance criteria
- Qualifications requirements
- Examinations materials
- Medical standards
- Class specifications
POSITION MANAGEMENT
3. Concurrently with the job analysis program
initiate work measurment target position classes
and began establishing work output standards,
where appropriate.
. Select and train operations analysts in work
measurement.
. Prepare work plan coordinate with functional job
analysts and secure departmental cooperation.
. Commence field work in target position classes
4. Begin reporting of manpower utilization patterns in
selected labor intensive areas.
. Select in cooperation with departmental personnel,
output measures for reporting purposes.
. Design and implement simple manual reporting
system.
. Refine measures as work standards established.
Fiscal Year 1975
POSITION MANAGEMENT
5. Initiate a job engineering and rest'
program to create additional empl.
opportunities for women and minoi
. Refine job content data through
job analysis program.
. Establish and staff potential pai
positions identified.
6. Design and begin making operatiox
manpower planning system include
• Manpower utilization reporting
. Turnover analysis
. Projected work load requireme
. Service level objectives
PERSONNEL PROCUREMENT
7. Complete development of affirmat
and institute ongoing program to
plan.
8. Continue test validation and refin
cations criteria through results o
program.
9. Revise position control procedure
necessity for routine City Manage
requisitions.
10. Automate information reporting
administration as practical.
ments
Wises
-F work
unctional job
-operation.
Fiscal Year 1975
POSITION MANAGEMENT
5. Initiate a job engineering and restructuring
program to create additional employment
opportunities for women and minority candidates.
. Refine job content data through results of
job analysis program.
. Establish and staff potential para-professional
positions identified.
6. Design and begin making operational a systematic
manpower planning system including:
. Manpower utilization reporting
. Turnover analysis
. Projected work load requirements
. Service level objectives
PERSONNEL PROCUREMENT
1; ,e development of affirmative action plan
to ongoing program to accomplish
.,.nue test validation and refinement of qualifi-
ations criteria through results of job analysis
program.
Revise position control procedures to eliminate
necessity for routine City Manager approval of
requisitions.
10. Automate information reporting and employee records.
administration as practical.
stablished.
EXHIBIT VIII (4)
Fiscal Year 1976
10. Expand career development planning program
to all supervisory and management level
personnel.
11. Expand performance evaluation system to
coverage of all city government personnel.
12. Continue offering training and education program
as curricula is developed based on job -related
task elements.
13. Complete revision of grievance and disciplinary
action procedures.
14. Initiate new safety program.
15. Begin computation of total compensation package
for benefit of employees.
Fiscal Year 1974
PERSONNEL PROCUREMENT
Fiscal Year 1`
MANPOWER DEVELOPMENT
5. Begin preparation of an Affirmative Action Plan including 11.
elimination of continuing barriers to minority employment.
. Assemble Task Force including community representation.
. Develop a work plan and schedule for Task Force attention.
. Intensify recruitment efforts for minority job candidates
- Confirm feasibility of establishing outreach employment
centers.
Initiate career developm
pilot areas.
. Police Department
. Fire Departments
12. Initiate new employee pe-
system on a limited basi
- Begin scrutiny of test instruments and qualifications criteria
for cultural impartiality through job analysis project and 13.
ongoing test validation program.
- Convert to "Rule of Register" certification.
6. Begin streamlining employee records administration and
information processes.
. Identify information requirements for management purposes
and design a simple manual reporting system.
. Begin feasibility study of automating information reporting.
MANPOWER DEVELOPMENT
7. Begin assessing employee development needs.
. Conduct and analyze detailed training needs survey
among all city employees.
. Refine development needs inventory through results of job
analysis project.
. Initiate for all manag
personnel.
Complete revisions in p
in civil service provisio
14. Design and begin develo
and education program t
needs.
. Offer selected job-rel
job analysis results a
EMPLOYEE SERVICES
15. Institute an employee co
16. Begin revising employe
procedures to reflect ca
17. Design and develop a se
and inspections progra
18. Refine medical standar
tablishing out
strum
thro
rog r
Fiscal Year 1974
L PROCUREMENT
reparation of an Affirmative Action Plan including
tion of contin . arriers to minority employment.
ask Fo uding community representation.
hedule for Task Force attention.
s for minority jo! ; ^andidates
mployment
cations criteria
project and
stration and
agement purposes
ern.
ation reporting.
urvey
results of job
EXHIBIT VIII (5)
Fiscal Year 1975
MANPOWER DEVELOPMENT
11. Initiate career development planning program in
pilot areas.
. Police Department
. Fire Departinents
12. Initiate new employee performance evaluation
system on a limited basis throughout the city.
. Initiate for all management and supervisory
personnel.
13. Complete revisions in promotional policies reflected
in civil service provisions.
14. Design and begin development of city-wide training
and education program to meet employee development
needs.
. Offer selected job -related training programs where
job analysis results available.
EMPLOYEE SERVICES
15. Institute an employee counselling program.
16. Begin revising employee grievance and disciplinary
procedures to reflect career development needs.
17. Design and develop a self -enforced safety standards
and inspections program.
18. Refine medical standards as appropriate.
Fiscal Year 1974
8. Design and begin development of a new performance evaluation
system.
▪ Prepare form and develop overall system design.
. Secure agreement from key individuals and groups.
• Refine performance criteria through results of job
analysis.
9. Begin revising promotional procedures to increase flexibility
in selection process.
• Secure necessary approvals
• Convert to "Rule of Three Groups" certification process.
EMPLOYEE SERVICES
10. Institute an Orientation Program for new city employees.
Dedicate a regular time interval for city-wide orientation
sessions.
EXHIBIT VIII (6)
8. Design ar.
system.
. Prepar
. Secure
. Refine
analysi
9. Begin rep
in selecti
. Secure
. Convex
EMPLOYEE
10. Institute
Dedicate
sessione
The development plan is organized into 5 sections:
. Organization
. Position Management
. Personnel Procurement
. Manpower Development
. Employee Services
It covers specific tasks in each of these areas which should be completed
in the next three fiscal years.
3. RECOMMENDED MANAGEMENT AND STAFFING ASSIGNMENTS
To understand fully how the implementation will be accomplished
it also is necessary to know who should be responsible for each specific
step. The proposed HRMS implementation plan was shown in the previous
exhibit. Its companion, Exhibit IX, following this page, lists the steps
enumerated earlier and assigns primary responsibilities for each one.
In addition, some important participants who may be involved at various
levels are included to show how the components and organizational units
interrelate. Many of these interrelationships will depend on the success-
ful accomplishment of earlier steps, particularly formulation of new
administrative groups, such as the Position Management unit or the job
analysis project team.
Management requirements and responsibilities shown in Exhibit IX
are presented as suggestions which appear reasonable at this time. Each
year, the plan should be reviewed for possible changes in the next year's
EXHIBIT IX (1)
City of Miami
PROPOSED ASSIGNMENT OF
IMPLEMENTATION RESPONSIBILITIES
Other Participants
. City Manager
. Department Directors
. Department Director
. Department Director
. Civil Service Board and Office
. Management Services Unit
. Employee Services
. Department Directors
. Commission
. Selected Department Directors
. Human Resource Services
Department
. Commission
. Civil Service Board and Office
Action
4 Fiscal Year 1974
Organization Development
. Create DCM positions
, Create service divisions and group
departments into units
Begin staffing Management Services
Department
. Begin staffing Human Resource
Services Department
• Reassign Labor Relations Function
Develop Stage 2 plans
HRMS Development
. Staff selected key positions in Human
Resource Services Department
. Initiate a comprehensive Job analysis
program covering target position
classes
Position Management
• Job analysis project with targets for
work measurement
. Establish manpower utilization reporting
?empanel Procurement
. Affirmative action program
• Streamline records procedures
Responsibility
. Commission
. Commission
. city Manager
. Deputy City Managers
. City Manager
. Deputy City Manager
. City Manager
. Deputy City Manager
. Deputy City Manager
. Deputy City Manager
. Administrative Services
. City Manager
. Human Resource Services
. Management Services
. Management Services Department
(Operations Analysis Unit)
. Management Services Department
(Operations Analysis Unit)
. City Manager
. Human Resource Services
Department
. Employee records
. Human Resource Services
Action
Fiscal Year 1974 (Continued)
Manpower Development
▪ Inventory of development needs
. Performance evaluation system
. Revision of promotional procedures in
line with career development planning
Employee Services
. Institute a formalized empbyee
counseling program
. Revise grievance procedures to provide
career development assistance
. Design safety program
. Refine medical standards
. Consolidate responsibilities for
orientation programs
. Reassign labor relations
Responsibility
. Management Services Department
(Job Analysis Team)
. Human Resource Services
. Human Resource Services Department
. Human Resource Services Director
. Human Resource Services Director
. Executive Secretary of Civil Service
Board
. Human Resource Services
. Human Resource Services
. Deputy City Manager for
Administrative Services
. Human Resource Services Department
. City Manager
. Commission
EXHIBIT IX (2)
Other Participants
. Management Services Deparunent
(Job Analysis Team)
. City Manager
. Department Directors
. Department Directors
• Civil Service Board
. Employee representatives
. Department Directors
. City Manager
. Employee representatives
. Commission
• Civil Service Board
. Employee representatives
. Department Directors
. Employee representatives
. Department Directors
. City Manager
. Department Directors
. Employee Services Department
Action
li. Fiscal Year 1975
Organization Development
. Develop division structures
. Staff new department director positions
to supervise functional services unit
groupings
. Continue staffing new Management
Services Department
- Budget analysts
- Data processing personnel
. Develop work plan for implementing
Stage 3 organization structures
- Prepare detailed integration plans
at all organizational levels
- Prepare FY 76 budget format to reflect
new organizational configurations
HRMS Development
. Continue staffing of key positions in
Human Resource Services Department
- Safety Services Officer
- Employee Information Services Officer
- Remaining personnel specialist positions
Position Mana&ement
. Continue comprehensive job analysis
program throughout the city
. Continue and expand work measurement
program throughout the city to all
appropriate positions
. Continue reporting of manpower utiliza-
tion in selected labor intensive areas
- Include all areas for which work output
standards have been developed
- Begin feasibility study of automating
reporting system
Responsibility
. Deputy City Manager
. City Manager
. Commission
. City Manager
. Deputy City Manager
. Administrative Services
. Management Services
. Human Resource Services Director
. Management Services Director
. Human Resource Services Director
. Management Services Director
. Human Resource Services Director
EXHIBIT IX (3)
Other Participarns
. Department Directors
. Deputy City Managers
. Deputy City Manager
. Administrative Services
. Human Resource Services
. Civil Service
. City Manager
. Commission
. Civil Service Board and Office
. Department Directors
. City Manager
. Civil Service Beard
. Department Directors
. Civil Service Board
. Department Directors
Action
II. Fiscal Year 1975 (Continued)
Personnel Procurement
. Complete development of an
Affirmative Action Program
. Continue test validation and refinement
of qualifications criteria through job
analysis
. Revise position control procedures
. Automate, as appropriate, employee
records administration operations
Manpower Development
. Begin pilot career development
programs
. Pilot test employee evaluation system
. Complete promotion policy revisions
. Job engineering program
. Manpower planning program
Responsibility
. City Manager
. Commission
. Human Resource Services
. Civil Service Board
. Human Resource Services
. Management Services
. Management Services
. Human Resource Services
. Management Services
. Human Resource Services
. Human Resource Services
. Civil Service Board and Office
. Human Resource Services
. Civil Service Board
. Human Resource Services
Department
. Pi fsition Management Unit
EXHIBIT IX (4)
Other Participants
. Community Task Force
• Civil Service Board
. Finance
. Civil Service Board
• Civil Service Office
. Human Resource Services
. City Departments
• Civil Service Board
. Department Directors
. City Manager
. Employee representatives
. Commission
. Management Services
(Operations Analysis Unit)
. Management Services
(Operations Analysis Unit)
. Department Directors
Action
III. Fiscal Year 1976
Organization Development
. Complete Stage 3 establishing appropri-
ate departmental divisions
. Complete staffing for key managerial
positions
. Complete staffing of Management
Services Department
. Complete staffing of Human Resource
Services Department
MRMS Development
Position Management
. Complete job analysis program
. Complete work standards development
. Automate manpower utilization reporting
. Continue job engineering
. Initiate ongoing classification plan
maintenance program
. Refine manpower planning system
Personnel Procurement
. Continue Affirmative Action Plan
. Continue test validation
Responsibility
. City Manager
. Department Directors
. City Manager
. Human Resource Services
. Deputy City Manager
. Administration Services
. Human Resource Services
. Deputy City Manager
. Administration Services
. Human Resource Services Director
. Management Services
. Human Resource Services
. Management Services
. Human Resource Services
. Management Services
. Human Resource Services
. Human Resource Services
. Human Resource Services
. Human Resource Services
. City Manager
. Human Resource Services
. Civil Service Board
. Commission
. Human Resource Services
EXHIBIT IX (5)
Other Participants
. Management Services
. Commission
. Deputy City Managers
. Civil Service Board and Office
. Civil Service Board and Office
. Departments
. Departments
. Civil Service Board
. Department Directors
. Civil Service Board
. Civil Service Board
. Department Directors
. Department Directors
. Civil Service Board
Action
AI. Fiscal Year 1976 (Continued)
Man wer Development
. Expand career development planning
program
. Expand performance evaluation system
. Continue to offer training and education
programs
Employee Services
. Complete revision of grievance and
disciplinary action procedures
. Initiate new safety program
. Begin computation of total compensation
package for benefit of employees
Responsibility
. Human Resource Services
. Human Resource Services
. Human Resource Services
. Department Directors
. Human Resource Services
. Civil Service Board
. Human Resource Services
. Human Resource Services
. Management Services
EXHIBIT IX (6)
Other Participants
. Department Directors
. Civil Service Board
. Employee representatives
. Employee representatives
. Employee representatives
. Department Directors
. Employee representatives
. Employee representatives
.
1
plan. These changes might be needed because of economic circumstances
or inadequate progress on key tasks.
Staffing requirements are likewise flexible and should be based on
pragmatic evaluations of anticipated and achieved progress. Currently
anticipated staffing needs and associated costs for the three year
development of the HRMS were outlined in Chapter IV, Exhibit V.
While overall management responsibility and coordination for
HRMS remains with the City Manager and his staff, successful imple-
mentation cannot be achieved without the cooperation and assistance of
the Commission, the Civil Service Board and Office, employee represen-
tatives and department directors. Finally, success depends on the
interest and dedication of each employee in achieving a human resource
management system which makes the City of Miami an outstanding
employer and place to live.
HRMS GLOSSARY OF TERMS
Benefits Administration: provision rovision and administration of an employee benefits package including providing
timely information on its contents and use.
Career Development Planning: A process of monitoring
potential of an employee and
career development p ecific milestones
designing a career ladder with sp
on an individual basis.
Classification and Salary
Administration: The administrative
procedures and fieldwork requird to descri tiondefine and keep
current data on a position
velo ment Needs Assessment: A process of determining
De P current inventory of employee
and maintaining a performance development needs from surveys, erfoerfoavaipro-
appraisals, specific requests,
fessional opinion.
Employee Motivation:
A series of techniques and programs for motivating improvement and job interest amongerform-
anc Ye and employee employees in order to encourage superior perform-
ance self -development.
nc
Services: A group
of functions or processes
Employee providing basic personnel information and support
employees.
services to empto Y
A process of formally recording
ent Processing: eco d
Employment el actions related to new employment r
personnel
of establishing an effective and
A process establishing
a ed applicants
e
Examination: means of ranking qualified
applicants
administration t job -
relate(' the development and
through erformance Potential.
related tests of P
Job Engineering: A technique or methodology for designing
jobs to meet the manpower requirements and
employee development needs; often involves on -
site job analysis and position restructuring.
Labor Contracts & Negotiations: The administration of
employee/management bargaining and contracts.
Manpower Development: A group of functions or processes
aimed at increasing the skills level and job satisfac-
tion of employees and preparing employees for
increased job responsibilities.
Manpower Planning: A process of identifying or forecasting
position needs and planning action steps to fill these
needs within a specified timeframe.
Manpower Utilization: The process of allocating manpower
resources to a task, or set of tasks or evaluating
the effectiveness of existing allocations.
Medical Services: A series of exam procedures and
preventive health programs for present and potential
employees.
On -the -Job Development: A process of designing and
providing development training as part of routine
job responsibilities and tasks.
Orientation and Counseling: A series of processes and
programs to provide City-wide and departmental
orientation information to new employees, and an
informal counseling service to air and resolve job -
related personnel conflicts.
Performance f rmance of• A process of an employee in terms evaluating
of mutually
e
per
understood work standards and measures, and in
terms of opportunities for further development of
employee skills and abilities.
-2-
Personnel Procurement: A group of functions or processes
that involve identifying and obtaining appropriate
personnel to fill vacant positions, and the processing
steps required to qualify these individuals for employ-
ment.
Personnel Records Administration: A set of procedures for
the creation, maintenance, and retrieval of employee
records.
Position Budgeting: The allocation of established positions to
organizational units within the framework of the annual
and on -going budgeting process.
Position Management: A group of functions or processes that
result in establishing manpower requirements, skills
needed to satisfy the requirements, and position
descriptions and budgets for the needed skills.
Promotion and Advancement: A process of identifying and
selecting candidates from the existing City manpower
supply to fill an advanced level position.
Qualifications Determination: A screening process designed
to determine when the recruited applicants meet
minimum criteria for given positions and to rank in
an equitable manner all applicants that do meet the
criteria for employment.
Recruitment: A process designed to ensure an adequate and
current supply of qualified applicants for new or exist-
ing position classifications.
Requisitioning: The process initiated by a department required
to request and obtain candidates to fill a budgeted job
opening.
Safety Services: A series of programs and procedures to
provide a safe and healthy work environment for all
employees and reduce injury costs and work time losses.
-3-
Personnel Procurement: A group of functions or processes
that involve identifying and obtaining appropriate
personnel to fill vacant positions, and the processing
steps required to qualify these individuals for employ-
ment.
Personnel Records Administration: A set of procedures for
the creation, maintenance, and retrieval of employee
records.
Position Budgeting: The allocation of established positions to
organizational units within the framework of the annual
and on -going budgeting process.
Position Management: A group of functions or processes that
result in establishing manpower requirements, skills
needed to satisfy the requirements, and position
descriptions and budgets for the needed skills.
Promotion and Advancement: A process of identifying and
selecting candidates from the existing City manpower
supply to fill an advanced level position.
Qualifications Determination: A screening process designed
to determine when the recruited applicants meet
minimum criteria for given positions and to rank in
an equitable manner all applicants that do meet the
criteria for employment.
Recruitment: A process designed to ensure an adequate and
current supply of qualified applicants for new or exist-
ing position classifications.
Requisitioning: The process initiated by a department required
to request and obtain candidates to fill a budgeted job
opening.
Safety Services: A series of programs and procedures to
provide a safe and healthy work environment for all
employees and reduce injury costs and work time losses.
-3-