SR-1000-001 (2)
l
CM:LCB:r1S: ]al e
Clty Council Meeting:
Hay 24, 1983
II
Santa -Monica,
J /'iAf.'l-J -re<~.k...-
Ij~ 1\
Call fornla7 b v
{DDD-001'
11- F
TO:
Mayor and Clty Counc~l
l-1Jl.Y 2 4 1983
FROM:
City Staff
RE:
Organ~zat~onal Rev~ew of the Santa Mon~ca
Munlclpal Bus Llnes
Attached please flnd a report wh~ch presents an
organ~zatlonal rev~ew of the Transportatlon Department.
The D~rector of Transportation requested thlS study by
the Management Servlces Div~slon.
At th~s t~me, the report 1S transm~tted for
your reVlew. A series of recommendations are
presented for your cons~derat~on durln0 ~he 1983-84
budqet dellberatlons.
Prepared by: Lynne C. Barrette
Deputy C~ty Manager
Meganne Steele
Sr. Admlnlstrat~ve Analyst
Attachment
{l- r-
MAY 2 4 1983
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ORGANIZATIONAL REVIEW OF THE
SAtH A ~1ON I CA
MUNICIPAL BUS LINES
PREPARED By:
CITY MANAGER'S OFFICE
['1ANAGEMENT SERVICES DIVISION
f1AY 18" 1983
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INTRODU CT ION. . . . . . . . . . . . . . . . . . . . . . . . 1
EXECUTIVE SUMMARY.. .... .... ...... ...4
BACKGROUND INFORMATION.... ....... ...8
ORGANIZATIONAL OVERVIEW... .........11
COMPARISON WITH OTHER BUS LINES....13
MAJOR FINDINGS........... . . . . . . . . . . LJ
RECOMMENDAT IONS. . . . . . . . . . . . . . . . . . . . 21
IMPLEMENTATION PLAN........... .....34
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I~~RODUCTION
Santa Monica's Municipal Bus Llnes (SMMBL) lS exceptlonally
well regarded by users and professionals in the transportatlon
field. It has maintalned, and by certaln measures lmproved, its
flne reputatlon desplte a decade of maJor changes In the
organlzatlon's financing methods, patronage levels and equipment.
However, tremendous lncreases In the scope and volume of
administratlve work and contlnued legislatlve and regulatory
actlvlty at the federal, state and reglonal levels are creatlng
demands WhlCh the department finds difficult to meet. The
Dlrector is concerned about the workload of present staff and the
department's capaclty to maintain lts hlgh performance levels ln
the future. Day-to-day administratlve matters are dlstracting
the Dlrector from plannlng, pollcy-maklng and, lncreaslngly
lmportant, legislatlve advocacy. Addltlonal pressures will be
placed upon the department as It must struggle to obtaln and
protect Santa Monica's falr share of outside fundlng. Increased
planning will also be regulred to respond to decreased revenues
wlth optimal route and service level adJustments.
The Dlrector
the department's
conducted by the
Manager's Office.
were to:
of Transportatlon requested that a reVlew of
adminlstratlve staffing and organizatlon be
Management Servlces Dlvislon of the City
The objectives of this organlzational reVlew
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o Review and analyze the organization of the department
~nclud~ng staffing levels and composition, reporting
relationships, decision-mak~ng patterns and workload.
o Identify key funct~ons wh~ch should be performed by/for
the Transportat~on Department and determ~ne whether resources are
appropr~ately allocated to each.
o Ident~fy and recommend opportunities for ~mprovernent for
consideratlon ~n the 1983-84 budget~ng process and thereafter as
resources are ava~lable.
Compar~son of SMMBL with other public bus l~nes, ~nterviews,
questionna~res, observat~ons and review of a variety of materials
and documents were the basic data collect~on methods employed.
Departmental staff were cooperatlve and very helpful throughout
the study. Considered ~n aggregate, the department contributed
at least as many hours to the review as did the analyst. Each of
the followlng admlnistrative staff completed questionnalres and
were lndlvidually lntervlewed twice: D~rectori Asslstant
Director; Supervising staff Assistant~ Senlor Accountanti
Transportat~on Maintenance Superv~sori and Trans~t Operatlons
Supervlsor. The City Personnel Analyst who conducted the recent
clerical ser~es class~flcation/compensation study was also
interviewed personally. Telephone interviews were conducted w1th
the local llalson at the Los Angeles County Transportatlon
Comm~ssion, adm1nlstrators of several other mun1cipal bus I1nes
and several former Transportation Program Spec1alists.
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The following Execut1ve Summary highl~ghts the
recommendations and implementatlon plan resulting from the
organlzatlonal reV2ew. For those unfamll2ar wlth the
Transportation Department, historical background information and
an organlzatlonal overVlew are provided to begln the report. To
encourage full appreciation of the accomplishments and
cost-effectlveness of SMMBL, a comparison wlth other public bus
llnes lS also presented. Noteworthy observatlons and analyt1cal
conclusions are described In the MaJor Findings section. In the
Recommendatlons seetlon, comments lntended to clarlfy recommended
actions and to reference related maJor flndlngs follow each
specific recommendation statement. Flnally, an lmplementatlon
plan proposal concludes the report.
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EXECUTIVE SUMMARY
Implementat~on of the recommendations from this study is
consldered necessary to ensure the continued operatlng efficlency
and high performance standards of the Mun1cipal Bus Llnes.
Recommendat2ons relate to organizational structure, stafflng,
work systems and areas for further study. Establlshment of a new
dlvislon and the addltion of flve posltlons are the most
slgniflcant changes recommended.
Offsettlng decreases 1n motor
coach operator p06~tions result ~n no net increase 1n personnel
resources ln the Department.
organizational Structure
o
It
the
lS recommended that the organizational structure of
Department be streamlined by establlshlng a new
~
dlV1Slon of Adminlstrative SerVlces.
o It 16 recommended that supervlsory responslblllties of
the Director and Assistant Director be sW1tched to align
w1th the1r prlmary functions.
Stafflng
o It is recommended that a posltlon of Admlnistratlve
Serv~ce6 Officer (ASO) be establlshed to manage the new
D~vlsion.
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o It
~s
recommended that one Transportation Program
Spec~alist
(TPS)
be shifted to the Administrat~ve
Services
reviewed.
Division
and
that the classificatlon be
o It
lS
recommended
that
a posit~on of Assistant
Adminlstratlve Services Offlcer be established to provide
staff support in managing the new divislon and In
lmplementatlon of automated management lnformatlon
systems.
o It ~s recommended that a position of Admlnlstrative Staff
ASslstant be establlshed lh the Administrat1ve SerVlces
D1V~Slon to provlde customer relations services support.
o It is recommended that the vacant Transportation Cashler
Clerk posltion be reclassified to Staff Assistant I.
o It
lS
recommended that conslderation be given to
expand~ng the department's scope of serVlces and
establlshing a Senlor Admln~strative Analyst pos~tlon to
perform community liaison/public relations speciallst
functlons.
o It lS recommended that one existlng Transporatlon Program
speciallst (TPS) posltlon be reclasslfied to Senior
Admlnlstratlve Analyst.
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o It is recommended that a Transit Malntenance Manager
position be
Divis1on.
established to manage the Malntenance
Work Systems
o It
1S
recommended
that
the Dlrector restructure
communicat1on
systems
to limit hlS lnvolvement ln
adminlstrative decision-making.
o It is recommended that the Dlrector convene management
staff meetlngs weekly.
o It is recommended that ffilddle-management staff tralnlng
and development be given h1gher pr1orlty.
o It 15 recommended that a revised system for back-up
support be developed.
o It is recommended that Motor Coach Supervisors not be
assigned "go-for" service tasks.
Areas for Further study
o It 18 recommended that the new ASO analyze offlce flling
and bas1c work systems for efflciency 1mprovements and
potential word processsing and EDP appl1cat1ons.
o It 15 recommended that a deta1led classlflcat10n and
compensation study be conducted by Personnel regard1ng
the Motor Coach Superv1sors, Transportatlon Program
Specialist, and Ass1stant Director.
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o It is recommended that a systematic rev1ew of
dec~s~on-making processes by other City departments
~mpact~ng short and long-range transportat~on plann~ng be
conducted and efforts be made to increase teamwork and to
clarify coordination requirements as needed.
o It ~s recommended that a review be conducted of the
Ma1ntenance Dlvision admlnlstratlve work systems and
effectlveness.
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grant from the Southern Californla Assoclatlon of Governments.
Presently, manual malntenance of vehlcle repair records and parts
lnventorleS lS backlogged up to SlX months. Calculatlons of
speclal payrolls requlred for grant reimbursement ellglbl1lty now
requlre routlne overtlme.
14. Coordlnatlon wlth other ,Clty departments for both
short-range and l,ong-range plannlng purpo~es is an actlvlty WhlCh
could beneflt from systems review and pol.ley clarlflca~lon. For
example, streets, parking and traffic activitles of General
Servlces may impact on bus routing, schedullng or stops.
Slml1arly, long-range planning and POllCY development activltles
of Communlty and EconomlC Development also affect transportation
polley.
15. Malntenance dlvls10n adminlstrative work systems and
effectiveness could beneflt from a focused review. Problem
lndlcators include close review and/or prlor approval of routlne
administratlve declsions, inventory control problems and backlog
of paperwork processing. The 1983-84 budget includes funds for a
consultant study of the Malntenance Divislon's lnternal
operatlons: the study lS funded by a grant from the Southern
California Assoc~ation of Governments.
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BACKGROUND INFORMATIO~
The Santa Monica City Counc~l created the Santa Mon~ca Mun~c~pal
Bus Lines in Aprll 1928. The orlginal purpose the SMMBL was to
prov~de a trans~t l~nk between the rapidly growlng West Los
Angeles-Santa Monlca area and Central Los Angeles. Thus ln 1928,
motor coach service was lnaugurated on a twelve-mlle bus route
connectlng the Santa Monlca C1V1C Center and Beacb area with the
Plco-Rlmpau termlna1 of the Los Angeles Ral1way,
via P1CO
Boulevard.
The depresslon years and World War II prompted contluued
expanSlon of SMMBL serVlces wlth new routes and additional
serVlces be1ng added to the system.
In 1951, the City Council
made another maJor dec1sion, optlng to purchase the Bay Cities
Translt Company,
a private trans1t company which had for years
prov1ded local translt serV1ces ln the West Los Angeles-Santa
Mon1ca Bay area.
The system has never lim1ted its serVlces to the City of
Santa Monlca and derlves no funding support from the City. Whlle
Downtown Santa Monica 15 one focal point for the SMMBL services,
the system also serves the central buslness dlstrlcts and major
commercial areas of Westwood, Century City, Rancho Park, Mar1na
del Rey, Venlce,
PaciflC Palsades and Brentwood, llnklng the
cores of all these West Los Angeles and Bay Area communities. In
(*) This sectlon of the report conslsts of verbatlm excerpts from
a briefing paper prepared by Jack Hutch1son, Dlrector of
Transportaton.
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addltlon, SMMBL provldes the translt access for Westside
resldents to the UCLA campus, the Veterans Administratlon Complex
and all senior and Junior high schools 1n the area. In add1tlon,
SMMBL has hlstorlcally offered a reglonal translt link to Central
Los Angeles Vla P1CO Boulevard, and more recently via the Santa
Monlca Freeway.
SMHBL malntains the operatlng policy that services should be
provlded at levels of convenlence and accessiblllty WhlCh wlll
attract a broad spectrum of the ridershlp market, rather than
solely the translt dependent. With a 36 square miles service
area, Big Blue Buses operate on 12 specific routes. SMMBL bus
stops are designated by a post-mounted tr1angular shaped blue
slgn lettered "Santa Monlca Municipal Bus Lines". Bus benches
are provlded by SMMBL at approximatley 80 percent of the 300
transit stops withln the Clty of Santa Monlca. MaJor passenger
termlnals are located at both UCLA and at the intersection of
Pica and Rlmpau Boulevards.
The baslc hours of weekday serVlce for Santa Monica's B1g
Blue Buses range from 6 a.m. to 1 a.m., wlth a few exceptions.
Base perlod (mid-day) headways on SMMBL routes range from 10 to
60 rnlnutes. Durlng the peak hours, five mlnute serVlce prevails
on portions of two routes servlng the UCLA campus.
The Department
time, the decision
operated
was made
at a proflt untll 1971. At that
to take advantage of State and
Federal funding to permlt contlnuatlon of the system's low fares.
After having rna1ntalned a 25 cents baslc fare Slnce 1968, the
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basic fare was lncreased to 35 cents ln November 1980.
At the
same tlme, the fare for B1g Blue Bus freeway serV1ce to Downtown
Los Angeles was lncreased from 80 cents to $1.00. Compared to
the 85 cent base fare untll 7/1/82 and the current 50 cent base
fare charged by SCRTD. the 3S cents represents a bargain for
those In the B1g Blue Bus serVlce area. In addltion, the
Department malntalns the highest farebox revenue/expense ratio
of any translt operator in the state. SMMBL experienced 70%
growth lD patronage between 1973 and 1980~ this has since
dec11ned slightly as the avallablllty of lower gasollne pr1ces
attracted some riders back to the autornoblle and fares increased.
In 1982, SMMBL boarded 20,705,733 passengers.
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ORGANIZATIONAL OVERVIEW
The
of twelve
total of
Transportation Department (Municipal Bus Lines) is one
C1ty departments report1ng to the Clty Manager. A
225 full-time posltlons are authorlzed for tbe
Department, mak1ng lt the th1rd largest department 1n the City.
In 1982-83, the Department has a $16.3 m11l1on dollar budget,
comprised of 12.9 million for operat1ng expenses and 3.4 m1lll0n
for new capltal proJects. Fund1ng lS currently provided from
operatlng revenues (5.0 mill1on), State sales tax funds (5.8
m1llion), and Federal funds (5.5 million).
In
terms
of
staff1ng
and
scope of services,
ilie
Transportation Department has been relatlvely stable over the
past ten years. The staffing pattern for key adminlstrative and
supervlsory positlons has remained virtually unchanged since
1975. The Department operates f1xed route bus services, charter
bus services and monthly day-tours for Senlor citlzens.
There are slgnlflcant d1fferences between the Department's
formal and functional organ1zat1onal structure. As evident by
comparison of Exhlblts A and B, the functlonal organlzation is
more horizontal. F1ve pos1t1ons are actually superv1sed by the
Dlrector, with the aSslstance of the Assistant Dlrector, rather
than by the Ass1stant D1rector as formally presented. The
Supervising Staff ASs1stant actually superv1ses the Fiscal Staff
Ass1stants I and II. rather than the Senior Accountant as
formally presented.
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A broad range of functions should be performed by/for the
Transportat~on Department, as ~llustrated in Exhib~t D. An
analys~s as been made of the nature and extent of staff resources
allocated to each functlon. S~gn~f~cant findlngs regard~ng areas
of overlap, gaps and particular emphasls are h~ghlighted ~n the
MaJor Flnd1ngs sect~on of this report. Suggestions regarding the
asslgnment of functions under a revlsed organlzatlon are
presented 1n the Recommendations section.
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COMPARISON WITH OTHER BUS LINES
_anta Monica's Municipal Bus Lines has been compared with
ten other transLt systems In Cal~fornLa.
These other systems
were selected for compar~son due to size and scope of translt
serVlces provided.
SMMBL is considered a medlum Slze system;
Long Beach, Sacramento and San Dlego are other Californla medlum
Slze systems most slmilar In terms of SLze of bus fleet and
number of passengers. Each of these organlzations was surveyed
ln the research process and organizational structures and
stafflng patterns were revlewed.
Selected smaller systems have
also been lncluded In the summary chart below, princlpally to
provlde comparison of admlnistratlve staffing levels. The data
presented below is extracted from two recent reports by the
Callfornla State Controller's Officer and by the Amerlcan Public
Translt Association.
Trans 1 t Peak Administrauve Peak Buses/ passengers/
System Buses Passengers Staff Admin. Staff Admin. St aff
Fresno 68 10,038.000 31 2.19 323,806
Long Beach 124 18,566.430 Sl 2.43 364,047
Sacramento 157 16,813.757 147 1.07 114,379
San Diego 196 30,642,248 114 1.72 268,792
Omnitrans 67 4,121,508 29 2.31 142,121
(San Bernardlno) '-
Rlverside 38 2,261,537 23 1.65 98,328
North San Diego 89 6,345,600 S4 1.65 117 ,511
Santa Barbara 50 5,848,181 23 2.17 254,269
~~
Santa Cruz S3 8,759,310 48 1.06 175,186
Monterey 34 3,323,000 16 2.13 207,688
Average 88 10,671,957 S4 1.63 198,363
Current
Sant.a Monica 106 20,705,733 22 4.82 941,170
--- ~~...:::..-----._- ~
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SMMBL's administrat1ve staffing level is exceptionally low
1n compar1son w1th other transit systems. Santa Mon1ca's current
adm1n1strative staff, includ1ng staff assistants and all
superv1sors as well as D1V1S1on heads and top management, is
presently at 22 pos~tions Wh1Ch 1S less than half the number 1n
Long Beach. Controll1ng for differences 1n the Slze of trans1t
system operatlons. Santa Mon1ca reallzes the greatest return on
adm1nistrat1ve efforts in terms of buses operat1ng 1n peak demand
per10ds and passengers carried each year. Santa Mon1ca operates
an average of 4.82 buses during peak commuter hours for each
admlnlstrative staff posit1on, whereas the next hlghest rate ~s
Long Beach wlth only 2.43 buses. Sim1larly, Santa Monica 15
exceptlonal 1n terms of number of passengers per adm1nistrat1ve
staff: 941,170 passengers board SMMBL
staff positlon whereas Long Beach has
board1ngs per staff posltlon.
buses annually for each
only 364,047 passenger
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MAJOR FINDINGS
1. Santa Mon1ca Mun1cipal Bus Lines (SMMBL) 18 w1dely
recogn1zed for sound operation and strong local patronage.
Compared to the e1ght other publ1C bus Ilnes In the County, its
f1xed route serVlces operate at the lowest cost per passenger.
Santa Monica also has the h1ghest number of passengers 1n terms
of both veh1cle service hours and vehlcle serV1ce miles. A
recent publlC op1nlon survey found 98% of SMMBL riders surveyed
on-board were sat1sfied wlth the serV1ces provided. A remarkable
82% of the 4,063 respondents consldered SMMBL services as "good"
or "very good".
2. The Transportation Department has remalned a fa1rly
stable organ1zatlon over the past ten years desplte substantial
lncreases 1n the scope and amount of adminlstrat1ve work
associated with federal fund1ng. New funct10ns of grantsmansh1p
and grant management, formallzat1on of plannlng and performance
monltorlng activ1ties, and lncreased documentatlon requ1rements
have each resulted from utll1zatlon of 1ntergovernmental aide.
The D1rector of Transportation requested thlS organizational
study because of concern about workload demands upon present
staff and about the department's capacity to susta1n 1tS current
performance levels 1n the future as outside fundlng decl1nes and
fare increases and routejschedul1ng changes become more frequent.
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3. Overall, management and admin1strat1ve support staff
appear to be except10nally hard-workin9, committed to h1gh
performa~ce standards and ded1cated to publ~c serVlce. Key
managerlal and offlce staff roles are held by indlvlduals who
have dedlcated their careers to the department and 1ts "B19 Blue
Buses". HLgh standards for performance and loyallty are thereby
establlshed as norms throughout the organ1zat1on.
4. Persistent workload problems appear to eXlst for most
superv1sory staff and staff ass1stants appear to be working at
full capac1ty. The Director, Ass1stant Dlrector, Supervls1ng
Staff Asslstant, Senior Accountant, Malntenance Superlntendent
and one Motor Coach Superv1sor/Schedule Superv1sor rout1nely work
overtlme. Office staff rarely take any coffee breaks durlng the
day. A general cllmate of lndustrlous and, at t1mes, hectlc
actlvlty appears to prevail In the crowded adminlstrative
offlces.
5. Polley development, plannlng, marketlns and
grantsmanshlP/ leSlslatlve lobbYlng functlons have been deferred
and/or shortchanged due to administrative workload. The Dlrector
and Asslstant Director have been swamped by day-to-day
administratlve matters. There has also been a hlgh rate of
turnover and vacanCles 1n the Transportatlon Plannlng Speclalist
staff support positlons.
6. Customer services, flnancial systems and control,
Operatlons Divlsion personnel management, and performance
rnonltorlng and evaluatlon functlons appea~ to be organlzational
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strengths. A slgn1f1cant proport1on of the Director and
Ass1stant Director's time 1S spent ensuring that the h1ghest
poss1ble qual1ty of output 18 real1zed 1n these functional areas.
7. Roles and declsion-makin~ authority of the D1rector and
Ass1stant Director are not well d1st1nsulshed. The Director and
Asslstant Director work as a team with responslbllltles deflned
more by ava1lab1llty to respond to the 1mmedlate crlS1S than by
clearly delineated organizat1onal roles. ThlS flu1dlty in roles
lS understandable glven the lack of depth ln managerial capacity
with1n the Department and assoclated workload problems.
Decislons of any sign1ficance are dlscussed Jointly and the
lncumbents spend a slgn1f1cant proport1on of their work time
meeting together.
8. Ad~lnlstrati.ve decis1on-maklug ~ractices are centralized
and control-oriented. The Dlrector appears to malntain a high
level
of 1nvolvement 1n all non-routlne declsions through
personal consultation w1th the Assistant Dlrector. Due to lack
of staff and t1me, management staff meetlngs are rarely convened
formally~ partlclpatlon 1n deC1Slons is ellclted as needed.
Budgetlng and accounting funct10ns are dlrectly managed by the
Director. Formalized procedures requlr1ng documentatlon and/or
reVlew of routine decislons eX1st to improve conslstency and
facllltate supervlsory reVlew.
9. Back-up supvort ~s typically prov~ded by people stepp~ng
down rather than up or across the or~an1zatlon. The Director
and/or ASs1stant D1rector funct10n as back-ups for every positlon
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stud~ed except cler~cal duties of the
Ass~stant. Th~s practice ~llustrates a
managerial capac~ty w~thln the department.
Superv~sory Staff
lack of depth ~n
10. It has been dlfflcult to attract and retaln qualified
people for the two Transportat~on Program Spec~alist posltlons.
Incumbents performlng dut1es consistent with the class
speclf~catlons have tYPlcally moved on to substant~aly more
responslble, hlgher paying Jobs. Whlle thlS reflects well upon
the Department as a tralning ground for talented ~ndlvlduals, lt
also reflects a lack of opportunltles for upward mobillty withln
the organlzatlon.
In addltion, there are lndlcat~ons that some
prlor lncumbents felt frustrated by a perception that
independence of work and access to lnformatlon were llmited by
the dec~slon-Making systems wlthln the department. One of the
current lncumbents has been wlth the department for two and
one-half years but lS perform1ng special proJect duties related
to construction of the new faCllit~es and cap~tal purchases.
11. Cramped, unpleasant working conditions WhlCh have
limlted staff1n9 levels and postponed work system analyses wlll
be ellffilnated with the move lnto new admln1strative faclllties 1n
July 1983 and the new maintenance facillties 1n February 1984.
There is slmply no room for addit~onal staff 1n the eXlsting
admlnistratlve or malntenance areas. Wlth present staff almost
On top of themselves and flIes squeezed In wherever, there would
be little opportun~ty to lmprove product~vity through space
reallocation or system redeslgn. The Department ~s eagerly
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await~ng the freedom to grow and change wh~ch the new fac~l~t~es
shall provlde.
12. Inappropriate cler~cal and "go-for" tasks are rout~nely
performed by operations divi~ion supervlsory personnel at the
expense of schedullns and staff superv~s~on. The Translt
Operat~ons Superv~sor reportedly spends two-three hours dally
transcr~b~ng personnel and accident records. When these duties
are combined with handl~ng non-complex complaint calls and other
m~scellaneous
tasks, up
to one-half of the Operatlons
tied up w~th tasks which could be
of records would remain an essentlal
Superv~sor's
duty time ~s
delegated.
Slhce reVlew
duty, somewhat less than one-half the superv~sor's duty time
could be freed up for managerial work ~f clerlcal assistance were
provlded. The
rout~nely works
Motor Coach Supervisor/Schedule Supervlsor
overt~me performing personnel clerk dutles.
Varlous Motor Coach Supervlsors are often asked to dellver tokens
and schedules, plck up repalr parts, transport vehicles for
repalr and run errands to City Hall. As a result, fleld
observations necessary to assess the eff~c~ency of schedules and
stops are belng deferred. Motor Coach Operators are also aware
when superv~sors are not in the field.
13. Lack of word process1l'l;,9 . and computer support increases
the cost and lowers the qual~ty of manasement information.
Departmental managers are accutely aware of a broad range of
potentlal EDP appllcatlons. The 1983-84 budget lncludes funds to
design, develop and lnstall a IDlcro/mlni computer system w~th a
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RECOMMENDATIONS
Opportunlt~es for improvement may be reallzed through
lrnplementatlon of recommendatlons relatlng to organlzatlonal
structure, stafflng, work syste~s and areas for further study.
Spec2flc recommendatlons In each area are presented here w2th
comments lntended to clarify the recommended actlons and to
reference related maJor f1ndlngs. A proposed organlzat2on chart
1S also provided.
Organ2zat1onal Structure
It is recommended that the organizational
structure of the Department be stream11ned by
estab11shing a new div1s1on of Adminlstrat1ve
SerV1ces.
Establlshment of an Adminlstrat2ve SerVlces Divlsion is
intended to buffer the Dlrector
declS2on-maklng.
S.l.nce the new
from day-to-day admlnistratlve
d.l.V1S10n would report to the
Asslstant
D2rector,
respective
roles
and dec2slon-maklng
responslbilitles would be more clearly dlstingulshed. The
Dlrector could thereby place emphasls upon top management
functlons of plann.l.ng, POllCY development, grantsmanshlP, publlC
relations/communlty llaison and evaluatlon of overall
departmental performance.
Functlonal responslbllitles of the new dlvislon would
lnclude: budget preparatlon; monitorlng and reportlngi financial
21
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systems and control~ requis1tion and purchase order process1ng~
general clerlcal support; customer serVlces and compla1nts;
employee payroll praces51ng; off1ce management~ technical support
for procurement and warranty contract administrat~on~ and, ~n the
future, data processing systems development.
It 1S recommended that supervlsory
responslblllties of the Dlrector and
Assistant Director be SWltched to al1gn w1th
thelr pr1mary funct~ons.
Whereas the Dlrector now supervises div1S1on managers and
the Assistant D~rector superv1ses staff analysts,
a switch of
these superv1sorlal duties 15 an essent1al prerequlslte to
1ncreasing emphasls upon managerlal functions. Involvement of
the Dlrector's Offlce in admlnistratlve reVlew and problem
solvlng should rarely surface above the ASSlstant Dlrector.
Clear assignment of the full range of supervisory authority over
d1V1Slon managers lS necessary for the Assistant to effectively
perform 1n th1S role. A dlrect report1ng relatlonshlp to the
D1rector of the staff support~ng grants, leglslative, commun1ty
lla1son, and plann1ng funct10ns would fac1l1tate clear and
conslstent commun1cation with outside agencies. Moreover, the
scope of responsibilltles lnvolved 1n comb~ned superv1s1on over
adm~nlstrat~ve and managerlal functlons has been shown to be
unwleldly.
22
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Functlonal responsibllltles of the Director's Office would
be focused upon: long-range planning; grantsmanshlp; grants
managementi public relatlons and community llalson; 11alson on
POllCY
Council,
with other Clty departments,
Southern Californla ASSoclation
the City Manager, City
of Governments (SCAG),
Los Angeles County Transportatlon Commlssion (LACTC), and Urban
Mass Transportatlon Administatlon (UMTA); monltoring and
evaluatlng Departmental performancei and admlnlstrativejprogram
pollcy-maklng. Through the Asslstant Dlrector, the offlce would
manage the followlng functlons: short-range operatlonal planning;
promotlon; maJor purchasing declslonsi rlsk management; labor
relatlons; employee disciplinei management staff development;
performance monltorlng and data analyslsi lnterdlvisional
coordlnatlon; and llalson wlth other City departments on
administrative concerns.
Functional responslbilltles of the Malntenance Dlvlslon
would continue to lnclude: inventory controli vendor contact and
prlce estlmatlon; purchaslng decls10ns within limlts; the full
scope of preventive and remedial vehlcle malntenance actlvltlesi
cleanlng buses; and documentation of vehlcle malntenance work.
Functional resonSlbllltles of the Operatlons D1V1Slon would
contlnue to lnclude: dispatchlng; schedullngi driver asslgnments;
performance data collectlon; charter serVlces; difficult customer
complalnts;
divlS10nal
employee
supervision;
and routine
communlty llalson.
23
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Staffing
It
lS
recommended
that a pos1tion of
Administrative
Serv1ces Off1cer (ASO) be
establ1shed to manage the new Div1s1on.
G1ven the complexity and scope of functions asslgned to the
Dlvls1on, it is anticipated that the 1ncumbent w1ll serve 1n a
lead role among div1510n managers.
To function w1th full
eff1c1ency 1n
knowledge of
federal grant
budget1ng,
the position, the 1ncumbent would need to apply
trans1t operat1ons
financial account1ng
managerial plann1ng,
and maintenance funct1ons,
and report1ng requ1rements,
organizational
analYS1s
techniques, local government adm1n1strat1ve systems, contract
administration and staff supervis1on. It 15 expected that the
incumbent could eventually prov1de back-up support to the
Assistant D1rector and the other D1vislon heads. Since such a
broad range of knowledge, skills and ab11ities are desired 1n the
incumbent, 1t is suggested that fleXlb1l1ty be prov1ded in the
selection cr1ter1a to allow apPo1ntment of 1ndividuals with clear
potentlal for growth. This pos1t1on could facil1tate the
retent10n of Transportat1on Spec1allsts who are prepared for
movement into a line management role 1n the transportation
lndustry.
It 1S recommended that a pos1tlon of
Ass1stant Adm1n1strat1ve Service Officer be
establlshed
to provide staff support 1n
24
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managing the new
~mplementation of
~nformat~on systems.
d1vision
and in
automated
management
The Southern Californ1a Assoclation of Governments (SCAG)
has approved grant fund~ng for the SMMBL to util1ze consultant
services to des~gn, develop and install a management ~nformat1on
system
1n
1983-84.
The proJect 1S ~ntended to
support
~n the
have key
1mplementat~on of
recent performance
the LACTC recommendat1on presented
aud~t. The Ass~stant ASa would
respons~bll~ty for providing the departmental support to data
process~ng experts WhlCh 1S necessary to ensure optlmal systems
des1gn/enhancement. The incumbent need not be a data process1ng
expert, but rather would need to develop the Skllls to
effect1vely identlfy and commun1cate management needs and to
generally become the most soph1sticated system user. Th~s is an
entirely new functlonal responsibl1lty with1n the Department and
it is expected that the Asa would not have the t~me aval1able to
focus on th1S relatively technical actlvity. Indeed, the scope
of the ASa's dut1e5 are so broad lt is felt that an Assistant 1S
necessary
to
mitigate the workload.
The Assistant would
supervise the seven staff ass1stants 1n the diviSlon prov1dlng
customer serV1ces and personnel records as well as
secretarlal/typing services. This posltlon would be on par wlth
the recommended Senior Admlnistratlve Analysts and could provlde
an lmportant opportunlty for lateral movement and Job enrichment.
Eventually, the ASslstant ASa would be expected to provide
back-up support to the Asa in hls/her absence.
25
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It
is
recommended
that
one
Transportation Program Spec1al1st (TPS) be
shifted
to
ilie
Admlnlstrative Services
DivlSlon
reviewed.
and that the clasSlficatlon be
An lncumbent Transportatlon Program Spec1alist
(TPS) 15
currently spendlng most of hlS tlme monltor1ng construction of
the new facllities, provld1ng technlcal aSSlstance ln preparatlon
of vehlcle and equ1pment spec1f1catlons, and attemptlng to
resolve warranty claims problems. The latter two actlvlt1es are
areas in WhlCh additional lnvestment of staff time would pay for
itself,
in the opin1on of the D1rector. Therefore,
as the
expanS10n proJect nears completion ln February 1984, increased
emphasls could be placed upon those other actlvltles. ThlS need
for and organizational assignment of the posltlon should be
reevaluated after the fac2lities expans10n proJects are
completed.
The classiflcat20n of this positlon as a Transportation
Program Speclallst may not be appropr1ate. It lS suggested that
the Job be analyzed by the Personnel Department. It may be
des1rable to schedule the Job analysis to be conducted several
months after the ASO 16 appolnted.
It lS recommended that a new position of
Admlnlstrative Staff ASSlstant be established
26
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~n the Admln~strat~ve Services Divlslon to
provide customer relations services support.
Workload problems ln the Operations Divlsion and the
~nappropriate ass~gnment of cler~cal tasks to the Translt
Operations Superv~sor could be corrected by the lntroductlon of
an Adm~nistrat~ve Staff Assistant in the Adm~nistratlve SerVlces
Divls~on. The poslt~on duties could ~nclude handl~ng most
wr~tten, phone and in-person compla~nts, processing charter
requests, and general admln~stratlve assistance to the Tranlst
Operatlons Supervlsor.
It 16 consistent wlth the role of the
Admln~stratlve SerVlces Dlvlsion that th~s support functlon be
provlded laterally between divls~ons. Routlne adm~n~stratlve
tasks could include updatlng employee records, preparation for
fleld surveys and back-up processlng of dlvislonal payroll. W~th
proper schedullng, the establishment of th~s positlon could
substantially reduce overtlme requlred of the Motor Coach
Supervlsor/Schedule Supervlsor. It lS expected that this would
free up the dlvislon head and one Motor Coach Supervlsor/Road
Supervlsor for increased operatlons monitoring, schedullng and
short-term planning.
It
is
recommended that the vacant
Transportation
Cashler Clerk posltlon be
reclassif1ed to Staff A6s1stant I.
A Motor Coach Operator currently assists two days per week
counting farebox revenues. These dutles plus staff assistance 1n
records updatlng for the Malntenance Dlvision could comprlse a
27
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full-t~me workload for a Staff Ass~stant I.
The two types of
assignments
are s~milar ~n that they requ~re accuracy ~n
repet~t~ve, rote tasks deal~ng with numbers and ne~ther work
locat~on ~s aesthetlcally pleas~ng. Two part-t~me posltions
could be establ~shed 1f preferred. However, it lS not
cost-effect1ve to cont1nue llslng a Motor Coach Operator as
supplemental office staff.
It lS recommended that cons1deration be
glven to expanding the department's scope of
serVlces and establlshing a Senior
Adm1nlstrative Analyst pos1t1on to perform
commun1ty llaisonjpubl1c relat~ons speciallst
funct1ons.
Community lla~sonjpublic relations functions rece~ve
v1rtually no staff resources at the present t~me and the Director
perce~ves th~s as a fundamental organizat~onal weakness. He has
requested establ~shment of another pos~tion which may be
princ1pally ded1cated to these efforts. Posltlon dutles would
focus Upon: lla1son w1th elected off~c1als, developers, comrnunlty
organ1zations, area colleges~ market surveys and needs analys1s~
mon1tor1ng existing employer SUbS1dy programs: develop1ng new
employer subsidy programs~ and related efforts. Top-level
lialson should probably be handled by the D1rector. Therefore,
1t 1S recommended that the pos1t~on report to the Director to
ensure clear communicat1ons linkages. ThlS would also permlt
28
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some flex~b1l1ty of ass1gnments and provlde back-up capaclty at
th1s staff support level.
It is recommended that one eXlsting
Transportatlon
posltion be
Program Speclal1st (TPS)
reclassifled to Senlor
Admlnistratlve Analyst.
The eXlstlng TPS poslt1on WhlCh performs legislat1ve(grants
speclallst functlons 15 recommended for reclasslficatlon to
Senlor Adm1n1strative Analyst. The Personnel Department has
reviewed the posltion dutles of the Job and has concurred wlth
this recommendation. It is not antlcipated that the poslt1on
dutles would change. The organizatlonal assignment of thlS
pos1t1on would change, however. It is recommended that the two
Senior Adm~nistrat1ve Analyst positlons report to the Dlrector.
It
is
recommended
that a Trans1t
Ma1ntenance Manager posltion be establlshed
to manage the Maintenance D1V1Slon.
The large workload and a need for more lndependent
management of the Maintenance D1Vls~on support the establishment
of a Transit Malntenance Manager posltion. The Trans1t
Malntenance Superintendent posltlon would contlnue to functlon as
a line supervlsor over the Mechan1c Supervlsors In a foreman
capacity. The Manager poslt1on would mitlgate the workload
pressure upon the Supervisor and would allow more focus upon
managerlal functlons of program planning, preparat10n of bid
29
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speclflcations and contract admlnlstration. The Manager would
have key responsibllity for the vehicle replacement, lnventory
control and scheduled preventatlve maintenance programs. It 1S
not expected that th1S pos1t1on would serve as a career ladder
opportunity for malntenance personnel Slnce broad managerial
Skllls are essentlal. Other translt systems tYPlcally provlde
for th1S level of management posit1on over malntenance funct1ons.
Work Systems
It
1S
reconunended
that
the
Dlrector
restructure communlcation systems to 11ffilt
his
1nvolvement
1n
adm1n1strative
decls1on-maklng.
Extrlcating the Dlrector from lnvolvement In day-to-day
adm1nlstratlve matters wlll be a difficult and perhaps palnful
process for all 1nvolved. However, lt 1S essentlal If he lS to
successfully allocate more tlme and energy to POllCY development,
grantsmansh1p and llalson functions. Changlng famillar patterns
of unrestricted access and frequent consultation w1th staff,
partlcularly the Asslstant Director, will requlre very conSClOUS
and concerted act1ons.
It is suggested that for a trlal perlod of at least SlX
months after the ASO lS h1red daily meetings of not more than,
say, one hour be held to deal with admlnlStratlve matters. The
Asslstant Dlrector and other staff of hlS cholce would set the
agenda
and
be
expected
to
outline lssues and present
30
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recommendat~ons w~th~n the time allocated.
If more than one hour
were required, the meet~ng could be cont~nued to the next day.
If the Director or Ass~stant were unable to meet on a g~ven day,
that t~me would not be rescheduled.
It would be the Ass~stant
Director's responsibll~ty to either act independently or to
postpone a flnal decislon. Exceptlons should not be made even
for maJor proJects such as budget prepratlon.
Other steps to support full delegation of adminlstrat~ve
dec1sion-making could ~nclude authorlz~ng the ASslstant to 61gn
for the Dlrector 10 matters of employee dlsclpllne, purchasing
and all personnel transactions ~ncludlng payroll. Only
exceptlonal matters would be referred to the Dlrector after
review and recommendation.
It ~s recommended that the Dlrector
convene management staff meetings weekly.
The three dlvislon heads, the ASslstant Dlrector, two staff
analysts ~n the Dlrector's offlce and the Asslstant ASO would
partlcipate. The agenda would be determ1ned by the Dlrector ln
advance, preferably with opportunit~es for input by partlclpants.
Crlteria for agenda development could lnclude rnld-management
development,
status reports on special
proJects or system
general updates on
changes,
lnterdlv~slonal coord~natlon needs,
the Dlrector's off~ce activlties and adrninistratlve or program
POllCY items.
It is suggested that the meeting be held at a set
tlme for no more than two hours.
31
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It 1S recommended that mid-management
staff training and development be given
h1gher pr1or1ty.
As support staff 1S 1ntroduced to allow managers more t1me
to manage, they may benefit from attendance at training sem1nars,
conferences or college courses. It 1S important to clar1fy and
re1nforce the new expectations which are being placed upon
managers. It may also be essent1al to provide job-specific
train1ng opportun1t1es.
It is recommended that a revised system
for back-up support be developed.
Implementation of such a rev1sed system may be infeas1ble 1n
the short run, but it should be an explicit departmental
obJective. Such a system should be designed to support career
development as well as relieve pressure upon the Director and
Assistant Dlrector.
It 1S recommended that Motor Coach
Superv1sors not be ass1gned "go-for" service
tasks.
Wlth a larger complement of staff asslstants, lt should not
be necessary to rout1nely assign road supervlsors to "go-for"
dutles. Such ass1gnments should be made with great reluctance
and only after approval of the Trans1t Operations Superv1sor.
32
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Areas for Futher Study
It 1S recommended that the new ASO
analyze off1ce f1l1ng and basic work systems
for effic1ency improvements and potentlal
word processing and EDP appllcatlons.
It
15
recommended that a detailed
classif1cat1on and compensation study be
conducted by Personnel regard1ng the Motor
Coach Superv1sors, Transportat1on Program
Special1sts, and Assistant Director.
It 15 recommended that a systemat1c
review of decis1on-making processes by other
C1ty departments lmpacting short and
long-range transportat1on plann1ng be
conducted and efforts be made to increase
teamwork
and
to
clarlfy
coord2nat1on
requlrements as needed.
33
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IMPLEMENTATION PLAN
The proposed 1983-84
L1nesjTransportat1on Department
the study recommendat~ons.
budget
for the Mun~cipa1 Bus
provldes for ~mplementat~on of
Given the extent of ex~stlng
administrat~ve
workload
problems, steps
fill~ng of the
have
been
taken
to
faci11tate
expedit10uS
The
Personnel
Department has prepared
proposed new pos~t~ons.
new class spec1ficat~ons
and conducted compensation surveys.
In order to minimize the budgetary impact of these actions,
the 1983-84 budget includes the reductlon of seven Motor Coach
Operator posltlons. The expected savlngs in 1984-84 is $170,610
1n salaries and fringe beneflts. These pos~t~on deletlons are
not expected to reduce serV1ce levels as there have been a
comparable level of vacancies h1storically. The net cost of the
proposed changes ~n 1983-84 is estlmated to total $4,266 for
salarles and fr~nge benef1ts. Th~s estlmate assumes new
appo~ntments at the A step. If all appo~ntments were made at the
E step, of the salary ranges, the net cost would increase to
$44,560. It 1S more 11kely that appointments would be made at an
1ntermedlate level; however, over t~me, the net cost would
~ncrease
to the h~gher level.
Future recommendatlons for
adJustment of the classlf~cat~onsjcompensation rates for the
Ass~stant Dlrector, Motor Coach Supervisor and Transit Program
Spec1alist pos1tions may result in relatively modest addltlonal
costs.
34
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S~nce the SMMBL budget is not supported by general revenues
to the Clty, there is l~ttle or no opportun~ty cost assoc~ated
w1th these recommendations. Assuming that the C~ty lS provlded
with Proposltion A Fare Subsidy funds ln 1983-84, the lrnpact of
not lmplernent~ng study recommendat1ons would be to return an
equivalent amount of funds to LACTC. This would result from a
provls1on ln the Proposltion A program WhlCh requlres transit
systems to return any "unused" Subsldies. Of course,
reorganization declsions should not be based solely on the costs
local taxpayersjcit~zens would reallze.
Implementation
ensure
that
SMMBL
of the study recornrnendatlons lS necessary to
has the capacity to sUstaln its flue
Santa Monlca's Big Blue Buses would contlnue
of the most cost-effective systems In the
performance record.
to operate as one
country. Credit for these accomplishments of the past and
present should be given to the exceptlonally competent and
dedicated personnel of the Department. These ~ndlviduals will
not be able to stay with the organ1zat1on forever: retirements
are lnevltable and talented people may be attracted by other
opportunltles. Implementation of the recommendat1ons presented
ln thlS report is necessary to establlsh the organlzatlonal
capac~ty needed at the present and essent~al for the future.
35
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Exhibit D
KEY FU~IONS WHICH SHOULD BE PER~ED BY/FOR
THE TRANSPORTATION DEPARTMENT
I. MANAGERIAL
Transportatlon/Ogranlzatlon Plannlng
Long-range market research/needs analysls
Multl-year budgetlng
Pollcy-maklng
Scope and level of serVlces
Organlzatlonal obJectives
CoordlnatLon/Llaison
Admlnlstrat20n revelW and dec2slon-maklng
(between Clty departments)
policy rev~ew and decision-maklng (w~th
Clty Manager, Clty Cauncll, BCAG, LACTC, UMTA)
Grantsmanshlp/Leglslatlve LobbYlng
IdentlfYlng potential funding sources
Prepar~ng applications and leglslatlve reports
LobbYlng
II. OPERATIONAL
Promotlon/Marketlng
Advertlslng - preparat~on and dlstrlbutlon schedules
and brochures; other promot~on
Communlty L1alson - schools, senlors, etc.
Customer SerVlces
PubllC lnqulrles - telephone and In-person
Sale of student cards and tokens
Control of student, handlcapped and elderly cards
Lost and Found
Complaints
Operatlons
-Dlspatchlng
Driver asslgnments
Performance MonLtorlnq and Evaluatlon
Quallty assurance -rrlde checkersj surveys
Data collectlon - ridership; efficlency - ~anagement lnformatlon
Transportation Plannins
Short-range - establlsh routesj schedule serVlcej speclal programs
III. V~INTENANCE
Preventive lnsprectlon and vehicle serv~c~ng
Repalrs - veh~cles, seats, etc.
MaJor mechan~cal overhauls
Equlpment servlc~ng
Cleaning buses
BUlld1ng and grounds malntenance
.
IV. ADMINISTRATIVE/SUPERVISORY
Budget Preparatlon, Mon~toring and Report~ng
Grants
Operating
Cap~tal
Data processing
Input system(s) des~gn/enhancement
F2nanClal Systems and Control
Accounts Payable
Payroll
Revenue collectlon
Internal control and auditlng
Grants Management
Contract preparatlon/revlew
Compliance mon~tor~ng
Payment processlng
L2a1S0n wlth funders
Reporting
Offlce Management
Personnel
Recrultment and testlng
Selectlon
Labor relatlons
Employee compla~nts
Superv2s1on
Evaluatlon
Trainlng
Dlsclpl~ne
Purchaslng Procurement and Invento~~ Control
Preparation of Specificatlons
Vendor contact and price estlrnates
Regu~sltion and purchase order processlng
Rece2vlng
D1strlbut~on
Warranty admlnlstration
Inventory control
R1Sk Management
Safety
Workers' Compensatlon
Cl.vll liabillty
e
ll-F: Transmission {-,f reFOrt of or<<;lanizat.ional.:.._!ev~,=-., of
Transportation Depar~ent:
The City Ma~ager presen~~~ the slaff re~~~t. Jack
Hutchison, Director of Transportatio~ and Lynne Barrette,
De~uty City Manag'-"rtpresented addit~,')T 51 infOt-mdtion on the
'natter. CouncJ.lmember Reed moved, i': ~~"jr Pro Tempore Press
seconded to approve the restructurint ;,,-f the organization of
the San~a Monica Municipal Bus Lin~~. As a substitute
motion, Councilmember "Epstein move~~ ....) : "knowledge receipt
of the report. After discussion, ~~ .'~~lmember Epstein
withdrew the substitute motion. ~e ,tion was approved by
the following roll call vote:
Affirmative: Councilmembers: ('(t'"1., Epstein, Jennings,
Press, Reed, Zane ""7" J. !1ayor Edwards
Negative:
Councilmemhers: r" 1.-
Absent:
Councilmembers: i.io:~...'
1:: ,,~H: Discussion of City options regarding County
over-payment of $5,100,000 in tax funds from 1978-82.
The City Manager presented the staff report. Discussion
followed. The CouncIl accepted the staff report.
At 10:35 P.M., Councilmember Conn moved, Mayor Pro Tempore
Press seconded to extend the meeting past 11:00 P.M. The
motion failed by the following roll call vote:
Affirmative: Councilmembers: Conn, Press and Zane
Negative: Councilmembers: Epstein, Jennings, Reed
and Edwards
Absent: Councilmembers: None
CITY COUNCIL MINUTES
May 24, 1983