Public Works Manual. May 2007 RH2 Engineering, Inc.

Transcription

1 Public Works Manual May 2007 RH2 Engineering, Inc.

2 May 2007 RH2 Engineering, Inc. Public Works Manual

3 ADOPTED by the Lummi Indian Business Council by Resolution No. Date: Tribal Chair This report was prepared under the direct supervision of the Professional Engineer below. RH2 Engineering, Inc 454 W Horton Road Bellingham, WA

4 Lummi Indian Business Council Public Works Organization Manual Table of Contents Spring 2007 Table of Contents Table of Contents... Executive Summary... 5 Chapter : Background... 6 Purpose... 6 Authorization... 6 Process... 6 Chapter 2: Organizational Design Process... 8 General... 8 Inventory of Existing Programs... 8 Inventory Focus... 8 Inventory of Current Responsibility... 8 Accounting Functions... 8 Budgeting Functions... 9 Building Services... 9 Central Warehouse... 0 Community Planning... 0 Construction Management... Construction Design... 2 Environmental Permits... 2 Facility Management (Buildings)... 3 Fleet Management... 4 Grounds Maintenance... 5 Hazardous Materials... 5 Parks and Recreation... 5 Purchasing... 6 Transportation... 6 Sewer Collection... 7 Sewer Treatment... 8 Signs, Signals and Markings... 8 Solid Waste... 9 Water Distribution System... 9 Water Source/Treatment Observations Chapter 3: Organizational Design... 2 Definitions... 2 Recommended Program Areas General Organizational Structure Roles and Responsibilities Department Administration Page of 46

5 Lummi Indian Business Council Public Works Organization Manual Table of Contents Spring 2007 Community Services Facilities Construction Services Transportation Lummi Water and Sewer District (LWSD) Tribal Employment Rights Office Summary Organization Chart Chapter 4: Position Characteristics General Position Class: Departmental Director Director of Planning and Public Works Position Class: Division Manager Community Services Manager Facilities Manager... 3 Construction Services Manager Transportation Manager Lummi Water and Sewer District Manager Tribal Employment Rights Office (TERO) Manager Position Class: Program Manager Community Services Division Planning Section Community Development Section Building Services Section Regulatory Compliance Section Facilities Division Fleet Section Buildings Section Material Management Section Park Maintenance Section Solid Waste Section Construction Services Division... 4 Design Section... 4 Construction Section Transportation Section Project Development Section Streets & Roads Section Transit Section Lummi Water and Sewer District Water Section Sewer Section Page 2 of 46

6 Appendices Appendix A Administrative Procedures Change Time Charges Confined Space Entry Permit Construction Contract Fiscal Tracking Contract Tracking Form LIBC Material/Work Order Procedure Goods & Services Procurement Procedure Customer Service Request or Inquiry Employee Timesheet Entry Procedure Appendix B Planning Procedures BIA Agricultural Land Leases Building Permit Procedure Realty Fee to Trust Procedure Acquisition of Land Partitionment of Trust Land Right-of-Way Tracking Sale of Trust Land NEPA/SEPA Checklist Procedure Appendix C Facilities Procedure Facility Maintenance Request Procedure Vehicle Accident Reporting Procedure Appendix D Construction Procedure Acceptance and Recording of Bids Approval of Payment Requests Authority of Project Representative Avoiding Scope-of-Work Problems Bid Opening Report Construction Conference Agenda Construction Diary Construction Management Contract Safety Hazard Warnings Instructions to Field Personnel Planning for Construction Project Administration and Execution Supplementary General Conditions Topics for Discussion Appendix E Transportation Procedure Clean a Catch Basin Daily Transit Mileage Reporting Procedure Denial of Transit Service Procedure Page 3 of 46

7 Lummi Indian Business Council Public Works Organization Manual Table of Contents Spring 2007 Pothole Repair Transit Driver Shift Change Request Procedure Transit Driver Supply Request Procedure Appendix F Lummi Water and Sewer District Procedure Curb Stop Operation Procedure Sewer Force main Repair Procedure Water Main repair Procedure Water Reservoir Cleaning Procedure Water Service Repair Procedure Sewer Main Repair Procedure Water Valve Operation Procedure Appendix G TERO Procedure Complaint Procedure Contractor Compliance Procedure Page 4 of 46

8 Lummi Indian Business Council Public Works Organization Manual Executive Summary Spring 2007 Executive Summary Introduction The Lummi Indian Business Council s Department of Public Works is a growing operational division. It has experienced both an increasing workload due to growth and increased responsibilities due to additional regulatory and administrative responsibility. The Public Works Department was concerned about the span of control and workload considerations of the various areas of the Department. It also wanted a framework to guide future staffing and structure of the organization. Content of Document This document identifies the current formal structure of the Public Works Department. Activity and responsibility areas are identified with a proposed structure for the future organization. The underlying premise is that the Lummi Nation will ultimately contain a population of nearly 50,000, and thus will be functionally similar to a mid-size city. The major Management and technical positions are identified and the basic knowledge, skills, and abilities necessary for successful performance of the assigned duties are provided. These can become the basis of job descriptions and future recruitment efforts. A byproduct of today s ever more complex business and government operating environment is a need for uniform procedures for accomplishment of work tasks. An initial component of a detailed procedures manual comprises the last chapter of this document. Issues/Opportunities o Formally adopt this document s organizational recommendations to provide guidance to staff as the Public Works Department continues to expand. o Consider creating a new Planning Department to have primary responsibility for land use planning and regulation. The span of control for the Director of Public Works without the Planning function is near the upper limit of what can be realistically maintained for a long period of time. o Authorize a Department Director to approve operating procedures intended to insure uniform application of policies adopted by the LIBC. Page 5 of 46

9 Lummi Indian Business Council Public Works Organization Manual Chapter : Background Spring 2007 Chapter : Background Purpose The Lummi Indian Nation (Nation) is a self-governing tribe. The Nation is growing in size and complexity as it develops the Reservation area to support the members of the Tribe. Overall governance is provided by the Lummi Indian Business Council (LIBC), an elected body that is responsible for policy direction for the Nation. The LIBC policies are implemented by staff, including the Public Works Department (Department). The responsibilities of Public Works are increasing as the infrastructure and services provided by the Department are increased. The expectation for a well managed and responsive Department is present among the LIBC and Tribal members. This Manual is intended as a guideline for organizing the Public Works Department as the growth in services necessary to support the Tribal development increases and as a guide to staff in the steps to providing selected services. It is a framework within which to build the staff and expertise necessary. The vision of this planning process is to ultimately provide the Nation with a fully functional Public Works Department that is responsive to the Tribe s needs and provides the coordination necessary to partner with other governmental units to accomplish projects. This Manual is not intended to provide insight into appropriate staffing levels other than the top professional and middle management positions. There will be some responsibilities that the Department will accomplish with staff and other tasks will be performed by contractors. Staff levels will be dictated by the need for services, and this Manual will provide the structural framework guidance. Likewise, the Manual does not attempt to specify every step and detail necessary for accomplishment of work items. The authors believe that the LIBC staff possesses the necessary skills and integrity to accomplish most tasks with general guidance. Finally, this Manual should be considered a living document. It should be reviewed on a regular basis and revised as necessary to reflect internal and external changes in programs and expectations. Authorization The LIBC and RH2 Engineering entered into a contract for professional services on June, RH2 Engineering has coordinated this project with Kirk Vinish, Lummi Transportation Coordinator. Process The Nation provided a copy of the current departmental organization and a draft Table of Contents from a previous attempt to create an organizational manual. The current organization was used as the foundation to develop the future vision of the Department. Page 6 of 46

10 Lummi Indian Business Council Public Works Organization Manual Chapter : Background Spring 2007 Table -: Current Departmental Organization RH2 prepared a list of functions that are often associated with the Public Works departments of full-service governments in the region. A copy of the original questionnaire used to compile the list is in Appendix B. The focus was on agencies serving populations of approximately 50,000. This number reflects the general magnitude of the Nation s vision of ultimate population. The current population is significantly below this number, and Department staffing will evolve as needed to provide the desired level of service. There is no one organizational structure dictated for accomplishing the tasks assigned to a Public Works department. Tasks are generally associated with planning for future needs, permitting and design of projects, construction and project accounting. Other tasks often assigned include land use planning and permitting, code enforcement, and material and asset management (central warehouse, purchasing and data management). Nation staff reviewed the list and provided input on the distribution of work tasks within the current organization. The following table summarizes the current task assignments for the various functions that the Nation has assigned to the Public Works Department. Page 7 of 46

11 Lummi Indian Business Council Public Works Organization Manual Chapter 2: Organizational Design Process Spring 2007 Chapter 2: Organizational Design Process General There are many ways to organize a Public Works department, and many different service functions that may be assigned to such a department. A smaller community may not provide all functions, nor will all functions impose a significant impact on workload. As a community grows, there will be similar growth in services and service levels. This growth will necessitate additional staff, and additional staff leads to increases in the need for management and organizational structure. Inventory of Existing Programs Inventory Focus The initial focus of this project was to inventory the Public Works Department (Department) functions currently being provided by the Lummi Indian Nation (Nation). Not all Public Works functions, such as accounting, need to be performed by a Public Works organization, yet they need to be performed. This inventory is useful in documenting the current status of Public Works functions. Inventory of Current Responsibility The following tables summarize the current responsibility assignments for Department functions. For the most part, the current organization provides for accomplishment of the typical functions of a Public Works organization. The inventory is in alphabetical order by area of major responsibility. Each functional area contains a brief description of the expectations of performance of the area. Accounting Functions This is the practice of accounting specifically for Public Works functions. Qualified personnel can be located in the Public Works department and work under the policy guidance of the organization s general accounting office or be a part of the accounting office. Close and effective communications between accounting personnel and the project manager is essential to ensure that funding conditions and requirements are clearly achieved. Function Brief Description of Work Where is Function Performed? Project Accounting Construction Project Accounting, including daily, weekly, monthly and project status accounting Public Works Page 8 of 46

12 Lummi Indian Business Council Public Works Organization Manual Chapter 2: Organizational Design Process Spring 2007 Function Brief Description of Work Where is Function Performed? Reimbursement Billing Processing Budgeting Functions Preparing payment requests for reimbursement Preparing progress payments to contractors LIBC Accounting LIBC Accounting The Annual Budget is an essential process and document for an operating department. It is the process where the Elected Officials provide policy direction to departments through approving activities by authorizing the expenditure of funds. The budget process should be on-going throughout the year with periodic status reports from the Department to the Council that summarize progress and problems. Function Brief Description of Work Where is Function Performed? Capital Projects Preparing and administering the annual Capital Projects Budget Public Works Operating Budget Building Services Preparing and administering the annual Operation and Maintenance Budget Public Works Building Services is a description generally used to describe all of the permits and processes necessary to construct new buildings and real estate improvements. Work includes a significant amount of counter time or assisting applicants with the process. The division is also generally responsible for ensuring construction is in compliance with the appropriate building codes, the intended land use is in compliance with the land use plan, and other land clearing and access regulations are proper. The function also includes inspection of the actual building process to ensure the structure is built as designed and approved and enforcement action if necessary. Function Brief Description of Work Where is Function Performed? Building Permits Issue Building Permits Public Works (Planning Building Inspection Land Use Permits Inspection of new structure construction Issue and monitor land use Permits Division) Public Works (Planning Division) Public Works (Planning Division) Page 9 of 46

13 Lummi Indian Business Council Public Works Organization Manual Chapter 2: Organizational Design Process Spring 2007 Function Brief Description of Work Where is Function Performed? Building Code Public Works (Planning Enforcement Division) Event Permitting Beach Access Permit Central Warehouse Enforcement action necessary to ensure compliance with the applicable Building Codes Regulation of large scale events, such as Stommish Issue and control of permits allowing non-members use of Tribal beaches Public Works (Planning Division) Public Works (Planning Division) A Public Works operation uses a wide variety of supplies in the execution of their assigned tasks. As the need for accountability develops in an organization, an often overlooked aspect is the purchasing and control of supplies. If people are allowed to issue purchase orders for materials, the tendency is to use a favorite supplier with little regard for cost. There is also the inherent problem of limiting the use of supplies purchased for agency projects. A centralized system of obtaining parts and supplies at the least cost and tracking those materials to valid jobs is one method of achieving accountability. A warehouse, or stocks and stores, should only be responsible for the materials. Actual purchasing and financial matters should not be performed by the same personnel as material management. Function Brief Description of Work Where is Function Performed? Inventory Control Receiving, issuing, and tracking of materials and supplies LIBC Accounting Procurement Emergency Supplies Purchasing goods and services by contracts and competitive bids Limited stock of sand, sandbags and other supplies for emergency response LIBC Accounting Public Works Community Planning Community Planning is a vital function of any government with land use authority. Responsible planning is the process where the goals and objectives of the community are achieved through land use regulations. In addition to the development, periodic review, and update of land use and zoning plans, there is the routine process of implementing those plans as land development is proposed. The complete planning picture should include comprehensive utility planning and transportation planning, as both are necessary to implement the land use plan. Page 0 of 46

14 Lummi Indian Business Council Public Works Organization Manual Chapter 2: Organizational Design Process Spring 2007 Function Brief Description of Work Where is Function Performed? Land Use Planning Variance Process Transportation Planning Utility Planning Zoning Planning Commission Prepare comprehensive land use plans for adoption; update and amend as necessary Administer and recommend action for variances requested from plans and standards Prepare, administer and update Transportation master plan for all modes of transportation; secure funding for projects to implement plan Plan, administer and update comprehensive utility plans for water and sewer systems Prepare, administer and update the comprehensive zoning code Provide coordination and support for the Lummi Planning Commission Public Works (Planning Division) Public Works (Planning Division) Public Works (Planning Division) Lummi Water and Sewer District (LWSD) and Public Works (Planning Division) Public Works (Planning Division) Public Works (Planning Division) Construction Management Construction Management is the process of actually building the project. It can operate as an independent division, or more typically, included in an Agency s Engineering function. Close coordination between the field inspectors and the project engineer is essential for an effective construction project. This function can be a contract service. Function Brief Description of Work Where is Function Performed? Inspection Inspection of capital construction projects to ensure compliance with design plans Public Works Construction Certification Grant Compliance Execute any necessary completion of construction notices, and certification of compliance with funding and construction standards Ensuring that projects are completed in compliance with the terms and conditions of the granting agency Public Works LIBC Office of Management and Budget Project Scoping Assist other departments in scoping Public Works Page of 46

15 Lummi Indian Business Council Public Works Organization Manual Chapter 2: Organizational Design Process Spring 2007 Function Brief Description of Work Where is Function Performed? and initial project definition Project Management Manage the process of constructing Public Works capital projects Contract Compliance Construction Design Ensure that construction projects comply with all contractual provisions imposed by Tribal regulation and grant or funding source requirements Public Works Construction Design is the process of designing a project and/or developing the standards for a design. The Engineering design is typically involved in a project from conception to construction, including financing options and applications. This function can be a contract service. Function Brief Description of Work Where is Function Performed? Project Design Engineering and/or Architectural design of new projects and reconstruction of existing facilities Public Works Bid Preparation Advertise/Award Design Standards Capital Improvement Plan (CIP) Funding Applications Preparation of the formal bid documents (Plans and Specifications) Compliance with the applicable advertising and awarding procedures Establishment of design standards for capital facility construction Determination of short (< 5 years) and long range (>5 years) facility and infrastructure capital improvements, including funding options Preparation of applications for appropriate grants, loans and other funding sources to assist with the implementation of the CIP Public Works Public Works Public Works Public Works Public Works Environmental Permits A significant part of almost all projects is permitting. There are the old time standards, such as connection permits for water and sewer, and the newer and evolving environmental permits Page 2 of 46

16 Lummi Indian Business Council Public Works Organization Manual Chapter 2: Organizational Design Process Spring 2007 intended to preserve and enhance the environment, natural and cultural. These efforts often take significant field review and can require detailed studies, especially for larger projects. Function Brief Description of Work Where is Function Performed? Wetlands Permits Sewer Certificate of Compliance Water Certificate of Compliance SEPA/NEPA Determination Historical and Archaeological Cultural Evaluate wetlands permit applications and recommend issuance or denial Issue permits for connecting to the Sewer system Issue permits for connecting to the Water system Preparation of documentation for Tribal projects and evaluate impacts of projects proposed by others Evaluate the historical and archaeological impacts of proposed projects Evaluate the impact of proposed projects on the cultural resources of the Tribe Public Works (Planning Division) Public Works (Planning Division) Public Works (Planning Division) LIBC Natural Resources LIBC Tribal Historic Preservation Office LIBC Cultural Department Facility Management (Buildings) Lummi Nation has a large inventory of buildings and structures used for various Tribal activities and functions. The on-going cleaning and maintenance of the inventory is considered Facility Management. This function includes routine cleaning of floors and windows, minor preventive maintenance like painting walls and repairing plumbing fixtures. The larger projects, such as re-roofing and exterior painting, and the planning for capital improvements is also a function of Facility Management. A closely related longer term space needs planning activity, normally called space planning, can also be part of Facility Management. Facility Management would also be responsible for internal leasing of space when that becomes necessary to fairly allocate costs to various tenants and/or funds. Function Brief Description of Work Where is Function Performed? Cleaning Regularly scheduled cleaning and minor maintenance of buildings Public Works Preventive Maintenance Planning, scheduling and implementing preventive maintenance of buildings, such as re-roofing, exterior painting and remodeling Public Works Page 3 of 46

17 Lummi Indian Business Council Public Works Organization Manual Chapter 2: Organizational Design Process Spring 2007 Function Brief Description of Work Where is Function Performed? Capital Maintenance Building Management Planning, scheduling and implementing large maintenance of buildings, such as additions, significant remodel of space, and similar long term projects. Management of buildings by space allocation to users, planning for future space needs and/or management of a cost recovery program to allocate building costs among building tenants Public Works Public Works and Accounting Fleet Management Fleet Management is a function that is responsible for cost effective ownership and operation of a government s motorized equipment. There are varying levels of this function that may be selected for any particular organization, although a single entity responsible for a fleet is generally less costly than distributing that effort among many diverse work units. Fleet maintenance is generally the first step in a centralized fleet operation, whether it be performed by staff, contracted or a combination. Central fleet ownership and management results in an equipment pool where users are charged for their actual use of a piece of equipment. General purpose vehicles, such as sedans and passenger vans, can normally be managed to actually reduce the number of vehicles in the fleet, while specialized equipment like Police cars are typically used only by Police. A centralized fleet operation can manage a fleet content to maximize use of vehicles, such as retaining vehicles removed from Police service in the general motor pool after decommissioning. Function Brief Description of Work Where is Function Performed? Vehicle Maintenance Fleet Management Fleet Replacement Operation of a central facility or program to provide maintenance and repair services for Tribal operated motorized equipment Development and implementation of a centralized fleet operation to optimize use of cars, trucks, and other motorized equipment Development and implementation of a centralized fleet ownership program that includes replacement schedules for cars, trucks and other motorized equipment based on economic and operational needs Public Works Public Works Public Works Page 4 of 46

18 Lummi Indian Business Council Public Works Organization Manual Chapter 2: Organizational Design Process Spring 2007 Grounds Maintenance This activity includes the maintenance of community parks and areas around the community buildings. Mowing, watering, weeding and similar activities are the majority of the planned activities. Function Brief Description of Work Where is Function Performed? Mowing Routine mowing of turf areas of parks, cemeteries and surrounding buildings Public Works Watering Grounds Maintenance Periodic watering of turf and planting areas, including maintenance of irrigation systems Periodic weeding, fertilizing and other recurring activities necessary for healthy plantings Public Works Public Works Grave Digging Opening grave sites as needed Public Works Public Facilities Maintenance of Stommish Grounds, Public Works (unfunded ball fields and street trees activity) Hazardous Materials Hazardous materials management and disposal is a specialized function of solid waste. There are generally two portions of the activity: ) disposal of household wastes such as paint, solvents and cleaning agents; and 2) the decontamination of disposal sites such as manufacturing or illicit drug production sites. Function Brief Description of Work Where is Function Performed? Household Hazardous Waste Site Contamination Spill to Waterways Collect and dispose of household hazardous waste in accordance with applicable rules and regulations Management of contaminated site cleanup and LIBC Buildings Management and cleanup of hazardous material spill to waters of the Nation Whatcom County Household Hazardous Waste Program Public Works Department of Natural Resources Parks and Recreation An important part of any community is providing activities and facilities for recreation. Programs range from youth-oriented after school and sports activities to tours and specialized Page 5 of 46

19 Lummi Indian Business Council Public Works Organization Manual Chapter 2: Organizational Design Process Spring 2007 activities to assist the elders. Recreation programs are often paired with grounds maintenance for administrative purposes. Function Brief Description of Work Where is Function Performed? Park and Greenway Planning Park Development Park Use Management Park Maintenance (non-turf) Purchasing Prepare and update long range plans for providing recreational areas and facilities for the community Improvement of Park lands for use by the community Schedule and manage various facilities for use by community members Maintenance and repair of park and recreation facilities other than grounds Public Works (Planning Division) Public Works (Planning Division) and Public Works (Construction and Maintenance) Public Works Public Works A purchasing department is responsible for the actual process of obtaining needed supplies, goods and services. They typically do not determine what is needed, as that is better specified by the end user. The personnel responsible for purchasing should not be responsible for the payment for those services or the ultimate use of the good purchased in order to ensure audit and accountability are not compromised. Function Brief Description of Work Where is Function Performed? Procurement Prepare and manage bids and other procurement processes for obtaining goods and services. Public Works Parts and Supplies Use established supply and service contracts to obtain needed goods and services for Tribal agencies Public Works Transportation Transportation systems are a critical element of any community. Roads, trails and sidewalks are the major components of the system. All of them require periodic maintenance in order to provide safe and adequate service to the community. Preventive maintenance is a proactive process where the existing system is preserved. Corrective maintenance is the repair of some defect that has appeared that reduces the usability of the system, such as a pothole in the roadway or brush and weeds encroaching on a sidewalk or path. Page 6 of 46

20 Lummi Indian Business Council Public Works Organization Manual Chapter 2: Organizational Design Process Spring 2007 Function Brief Description of Work Where is Function Performed? Preventive Maintenance Cleaning Corrective Maintenance Grading Drainage Maintenance Transit Sewer Collection Preservation of existing Tribally owned roadway and pathway surfaces through appropriate preventive maintenance programs, such as resurfacing Sweeping and debris removal from road and pathways Application of appropriate measures to correct hazards or deficiencies in roads and paths, such as pothole patching. Periodic grading of non-paved road and path surfaces Routine cleaning of drainage structures and roadside ditches to ensure proper drainage of surface water and appropriate treatment of water before discharge to waterways Management and providing public transportation services within the Nation, coordination with regional service (Whatcom Transportation Authority) Public Works (unfunded) Public Works (unfunded) Public Works (unfunded) Public Works (unfunded) Public Works (unfunded) Public Works Sewer collection generally refers to the system of pipes and facilities necessary to receive waste from a residence or business and transport it to a treatment works. Function Brief Description of Work Where is Function Performed? Lift Station Maintenance Sewer Main Cleaning Service Connections Corrective Maintenance Routine scheduled maintenance of lift stations to ensure proper operation Routine program of cleaning sewer mains to reduce blockages Installation of new side service connections to the sewer system Maintenance activities to repair nonoperating portions of the sewer system, such as repair of an inoperative lift Lummi Water and Sewer District (LWSD) LWSD LWSD LWSD Page 7 of 46

21 Lummi Indian Business Council Public Works Organization Manual Chapter 2: Organizational Design Process Spring 2007 Function Brief Description of Work Where is Function Performed? station or removal of a sewer line blockage Sewer Treatment Sewage treatment generally refers to the facility where treatment is provided prior to discharge. Sewage treatment can range from septic tank type systems to treatment works with many processes. Treatment works are generally regulated by federal or state laws. Function Brief Description of Work Where is Function Performed? Plant Operation Operation of the sewer treatment plant in accordance with the design parameters LWSD Plant Maintenance Discharge Permit Compliance Signs, Signals and Markings Preparation and implementation of a preventive and corrective maintenance program for the sewer treatment plant Water quality and plant performance monitoring in accordance with the discharge permit conditions and standards of practice LWSD LWSD Traffic control is a specialized activity where working knowledge of the Manual on uniform Traffic Control Devices (MUTCD) is vital. There are significant liability exposures for installation and maintenance of devices that are not in conformance with the MUTCD. Function Brief Description of Work Where is Function Performed? Traffic Engineering Determination of appropriate traffic control devices, placement and installation of signs, signals, and markings for roads and paths in accordance with the MUTCD Public Works Traffic Control Device Maintenance Inspection, cleaning and repair of traffic control devices in accordance with the MUTCD and standards of practice. This includes re-lamping of signals and lighting and painting of Public Works Page 8 of 46

22 Lummi Indian Business Council Public Works Organization Manual Chapter 2: Organizational Design Process Spring 2007 Function Brief Description of Work Where is Function Performed? markings Solid Waste Solid waste refers to the collection and/or disposal of household, busines and industrial waste. The service can be provided by the agency or by contract providers. Function Brief Description of Work Where is Function Performed? Collection Disposal Recycling Program Roadside collection of solid waste on a regular basis. Disposal of collected solid waste in accordance with applicable rules and regulations Operation of a commodity recycling program for waste and/or yard waste Regulated Provider (Whatcom County) Public Works (Elders, disabled and near waterways only) Regulated Provider Public Works (Limited) Regulated Provider (Whatcom County) Water Distribution System Water distribution refers to the pipes, pump stations and reservoirs necessary to deliver water from the source to the user. Function Brief Description of Work Where is Function Performed? Pump Station Maintenance Distribution System Maintenance Service Connections Corrective Maintenance Routine scheduled maintenance of pump stations to ensure proper operation Routine program of flushing water mains to remove sediment, exercising valves, hydrants and other appurtenances to ensure proper operation Installation of new water service connections to the system Maintenance activities to repair nonoperating portions of the water system, such as broken water main repair or LWSD LWSD LWSD LWSD Page 9 of 46

23 Lummi Indian Business Council Public Works Organization Manual Chapter 2: Organizational Design Process Spring 2007 Function Brief Description of Work Where is Function Performed? pump station repair Reservoir Maintenance Water Source/Treatment Routine program to clean, inspect and repair reservoirs LWSD Water source and treatment refers to the source of supply for a water system, which can be a purchase from another purveyor, wells or surface water. Some sources require treatment in order to meet the water quality standards for potable water. Treatment can range from a relatively simple process like chlorination to complex processes such as filtration plants. Function Brief Description of Work Where is Function Performed? Source of Supply Treatment Management of the various sources of water supply to ensure water quality is maintained at the least cost Operation of the treatment process, such as chlorination, to ensure water quality compliance Department of Natural Resources LWSD Observations There are two current organizational aspects that merit specific attention. The Planning Division is currently a section of Nation s Public Works Department. This is not uncommon in smaller organizations. As the planning duties and responsibilities grow, the Department Director may experience a management span of control overload. This should trigger consideration of creating a separate department for land use planning and related activities. The other anomaly is with the Water and Sewer function. The Lummi Water and Sewer District is a distinct governmental unit, yet it is functionally part of the Lummi Nation s government. The District Manager reports to an elected Board and to the LIBC through the Director of Public Works. This places the District Manager in the position of having two bosses. That is fine as long as both bosses have the same vision, but can lead to conflicting direction when the visions are different. Page 20 of 46

24 Lummi Indian Business Council Public Works Organization Manual Chapter 3: Organizational Design Spring 2007 Chapter 3: Organizational Design Definitions In order to provide a common framework and language, the following definitions will apply to this Manual. A Department is a collection of Programs, often of diverse focus, that are administered by a common administrator. A Division is a series of programs with a common general focus or similar activities. Examples of programs could be Planning and Maintenance. A Program is a more focused area of interest within a division, such as Land Use Planning or Surface Water Maintenance. They are generally the basis of a budget. A Task is a specific activity within a program area s responsibility. An example of a task is Issue a Building Permit. A Task is comprised of a series of actions. The following is a graphical illustration of the definitions. Department Division A Division B Program Program 4 Task Task 2 Task 8 Task 9 Program 2 Task 0 Task 3 Task 4 Task Task 2 Program 3 Program 5 Task 5 Task 6 Task 2 Task 4 Task 7 Page 2 of 46

25 Lummi Indian Business Council Public Works Organization Manual Chapter 3: Organizational Design Spring 2007 Recommended Program Areas General The inventory information obtained in the Chapter 2 process was used to determine groupings of activities into program areas that will become the framework of an organizational structure. A recommended structure for the Public Works Department follows. It was designed with the need for a balance between providing the necessary services and controlling personnel costs. A goal of 5-7 subordinates per manager has be set for the span of control for individual managers. The somewhat unique Lummi Water and Sewer District (LWSD) management reporting relationship to the Lummi Indian Business Council (LIBC) has been retained. Organizational Structure A departmental organization with six reporting divisions appears to be adequate for the LIBC s current and immediate future needs. The recommended structure is illustrated below. This structure is designed so that the Community Services Division can be segregated into a new department without undermining the integrity of this overall plan. The existing parallel reporting relationship of the LWSD Manager is carried forward. Department of Public Works Administration Administrative Support Community Services Division Facilities Division Construction Services Division Transportation Services Division Lummi Water & Sewer District Tribal Employment Rights Office Page 22 of 46

26 Lummi Indian Business Council Public Works Organization Manual Chapter 3: Organizational Design Spring 2007 Roles and Responsibilities Department Administration The role of the Public Works Department Administration is to provide leadership, support and direction for the technical divisions that comprise the Department. The administrative support for the entire department, such as clerical services, should be provided through the administration function. A central system of departmental records for all correspondence, official records and departmental personnel administration should be maintained for the Department Administration. In addition to the clerical support necessary for efficient operation of the Department, there should be a financial support group to assist the Director in preparing and tracking budgets and to provide the detailed project cost accounting necessary for control and compliance with funding source requirements. The existing accounting process through the LIBC Accounting section is not timely enough for accurately administering construction project finances. This group would also provide assistance to the managers in project and annual budget preparation. Community Services Department Administration Director of Planning & Public Works Leadership Provide leadership to the department through mentoring, training and personal example Clerical Support Department Records Correspondence Employee Records Financial Support Budget Preparation Fiscal Control Project Accounting The role of the Community Services Division is to provide for the orderly and cohesive planning for the reservation lands. The assigned actions are generally related to the overall community vision and priorities. This includes land use planning, infrastructure planning, development regulation, environmental stewardship and cultural preservation. The Economic Development Program is intended to provide assistance and guidance to small scale enterprises that will assist Tribal members to start and nurture business ventures that will assist with providing economic stability. The Planning Program is comprised of the various elements that make up the definition of the future land use development for the reservation. Land use and zoning are the most visible. After adoption of the land use and zoning regulations by the LIBC, they become the policy guidance for staff. The documents are used to evaluate proposals and determine whether the proposal conforms to the adopted plan. Additional functions that have been Page 23 of 46

27 Lummi Indian Business Council Public Works Organization Manual Chapter 3: Organizational Design Spring 2007 assigned to the Planning Program are comprehensive land use planning and long range facility planning. The Building Services Program is responsible for the mechanics of implementing the adopted plans. This is accomplished by issuing building permits and inspecting building construction to ensure compliance with permit and code provisions. A similar activity is the issuance of grading permits for land disturbance activities. Along with the authority to issue building permits, comes the responsibility to enforce the codes and regulations. The Regulatory Compliance Program is responsible for the coordination and enforcement of the environmental regulations that are imposed on activities today. This group has two distinct roles. The first is to provide technical support, coordination and guidance for Tribal projects that need to obtain external permits. The second is to review and comment on similar applications for projects that are not Tribal. Activities that are assigned to the Regulatory Compliance Program are NEPA/SEPA checklist preparation for Tribal projects and determinations for other projects, other environmental action reviews, issuance of water and sewer availability permits, determination of historical, archaeological and cultural impacts and land use enforcement. Other major functions are the enforcement of the land use code and flood plain development regulations. Facilities The Facilities Division provides the support functions necessary for the internal operation of the government. The scope can be limited to departmental, expanded to the entire governmental unit or set somewhere between. The emphasis of this division would be on the physical assets of the Lummi Nation (Nation). The Fleet Program is intended to ultimately own and operate the entire fleet for the Nation. Centralized ownership will allow the best utilization of the vehicles and is intended to minimize overall costs. The Fleet operation contains two major components. The first is the coordination of maintenance of the fleet. Planning Land Use Master Plan Zoning Comprehensive Planning Facility Need Regulatory Compliance Environmental (NEPA/SEPA) Water/Sewer Connections Tribal Historic Preservation Office Fleet Fleet Management Fleet Maintenance Material Management Central Warehouse for Stocks and Stores Solid Waste Collection Disposal Haz-Mat Response Community Services Division Community Services Manager Facilities Division Facilities Manager Building Services Building Permits Building Inspection Land Use Permits Building Code Community Development Development Incubator Small Scale Enterprises Buildings Management Maintenance Parks Grounds Buildings Maintenance can be performed by employees, contracted or a combination of the two. The important objective is to ensure that proper preventive and corrective maintenance is Page 24 of 46

28 Lummi Indian Business Council Public Works Organization Manual Chapter 3: Organizational Design Spring 2007 performed. The second component is management of the fleet. This should include central ownership and the development and adoption of a rational replacement program for equipment. This activity can be self-supporting through renting or leasing equipment to users. An effective program might include rotation of high use vehicles to lower use functions in order to maximize the return on the Nation s vehicle investment. The Facility Program is similar in function to the Fleet Program, but is for the various buildings and structures owned and operated by the LIBC. The maintenance function involves the determination of the level of maintenance for each space as well as securing staff or contractors to perform the service. A highly used space, such as a public lobby, will probably have different cleaning and maintenance needs than a room used once a week. An effective Facility Program will lead to an overall management plan for the space, including standards for décor and space allocation. Material Management is the remaining section of internal services. This group is responsible for obtaining, receiving and disbursing materials and supplies. They are not responsible for the purchasing function, which is centralized. The material management staff uses open accounts, purchase agreements, and other contracts to obtain goods and supplies for the Public Works Department. When material is removed from the central warehouse, it is charged directly to an asset or job number, thus ensuring complete accountability for the item from receipt to use. This helps minimize the loss of equipment and supplies. The Parks function is responsible for the physical asset portions of the parks. It is comprised of Turf, Plantings and the maintenance of recreational facilities. Initially, the staff that provides similar services for the Facilities can perform these services, but as the infrastructure grows there will be the need for specialists to perform the services. Solid Waste for the Reservation area is currently provided by private contractors through a franchise and operated under State of Washington regulation, with the exception of the service for Elders. Construction Services The role of Construction Services is to oversee and manage the design and construction of the various projects undertaken by the Public Works Department. Projects can include roadways, utilities and buildings. This function may be best accomplished with contractors providing large project support with the public works staff responsible for the overall progress and management. When the project workload is sufficient in the long term, permanent staffing is an option. Construction Services Division Construction Services Manager Design Facility Design Transportation Design Utility Design Special Project Design Construction Contract Administration Construction Inspection Construction Certification The Design Program is responsible for the design of assigned projects. Staff will typically select a qualified design professional to perform the actual design, prepare the specifications and oversee the accomplishment of the design. Because of the wide range of technical expertise required for the variety of design Page 25 of 46

29 Lummi Indian Business Council Public Works Organization Manual Chapter 3: Organizational Design Spring 2007 needed by the LIBC, staffing of this program will generally be personnel versed in contract management. As the construction program grows, there may be opportunity to retain design professionals for the more common projects. The Construction Program is responsible for the oversight and management of all construction activities. This includes construction management and construction inspection. The primary objective is to ensure that all projects are constructed to the standards and specifications established for the project. There is a diversity of requirements imposed by the various funding sources, and knowledge of each is essential. At the end of construction, there needs to be sufficient documentation to allow the appropriate person to certify compliance with funding and construction standards. It is possible for the same personnel to function in both programs. For example, an Engineer may prepare the design and specifications for a project during the winter months, then perform the construction management and inspection during the construction season. Transportation Planning, maintenance and repair of the transportation infrastructure is likely the most visible activity that should be provided by the Department. Overgrown sidewalks, blocked drains and potholes in the roadway are all very visible to the general population. Local and regional public transportation is vital for residents to travel within the Reservation. The role of the Transportation Program is to provide planning, construction funding, and routine maintenance and repair for the transportation infrastructure. This function will evolve over time to become a significant service provider as the Nation s transportation infrastructure grows and develops. Project Development Transportation Element CIP Funding Transit Planning Governmental Liaison National Liaison Local Agency Liaison Transportation Division Transportation Manager Street Maintenance Planned Maintenance Emergency Maintenance Paths & Trails Maint. Signs, Lights & Markings Transit Services Lummi Transit Mediaid Transit Regional Coordination Internal Circulator The Project Development function includes updating the LIBC Transportation Plan, which includes all modes of mobility within the reservation. This document is presented to the Planning Commission for approval prior to approval by the LIBC. The update includes identification of funding sources and programs to implement the identified transportation plan elements. The provision of public transportation services on the Reservation in also included in the planning section. The Street Maintenance function is generally responsible for the public transportation network that serves the area. There is the need for management of various pavements, such as streets and pathways. A very important function of the drainage maintenance program is to keep pollutants from being transported from the drainage system to the habitat, which will require periodic cleaning of drainage structures and drainage (ditch) maintenance. There are various types of roadside shoulders on Tribal roadways that need to be cleaned or graded periodically, especially those that also serve as pedestrian pathways. Paths and walkways are Page 26 of 46