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CINCINNATIInterdepartment Correspondence Sheet

March 17, 2014For Your Information

To: Mayor and Members of Council

From: Scott C. Stiles, Interim City Manager

Subject: Department of Public Services — Climate Assessment Update

This memo is to provide an update related to the status of the Department of Public Services ClimateAssessment process. In December 2013, the Human Resources Department initiated a climateassessment process as a result of issues and concerns raised by the Department Director, laborrepresentatives, and employees. The objective of the Climate Assessment was to assess the currentstate of the department, identify issues and potential areas of violation, and address any gaps thatmay exist.

There were several phases of the process: a) the creation and distribution of an employee survey thatwas cascaded to all employees related to federal, state, and local regulations; b) data collection andanalysis to determine the scope and range of employee issues and concerns; and c) employeeengagement activities and direct observations.

In an effort to ensure a fair and objective process, the Human Resources Department also on-boardedan Independent SBE Consultant Group, Make It Plain Consulting, that specializes in the areas ofcultural proficiency practices. This group guided the work associated with employee focus groupmeetings, direct observations, data review and analysis, and preparation of the final report findingsand recommendations.

The process has been completed and the findings identified critical areas of focus for theAdministration. As a result, meetings with labor representatives, the Director and Deputy were heldto capture some additional understanding of the current issues within the structure. TheAdministrations takes the report findings very seriously and values the hard work of its employees.

In moving forward, I will be integrally involved as the plan of action is implemented to ensure areasof deficiency are corrected in a timely manner.

Attached you will find a copy of the Climate Assessment Report Findings and the Plan of Action toimmediately begin to correct problem areas as identified.

cc: Georgetta Kelly, Director of Human ResourcesMichael Robinson, Director of Public Services

Attachments

Proposal

Department of Public ServicesClimate Assessment — Plan of Action

Implementation Strategy

Prepared For:

City of CincinnatiMike Robinson and Maraskeshia Smith

Department of Public Services

Georgetta KellyDirector of Human Resources

Scott StilesCity Manager

Submitted by:

Company Make It Plain Consulting, LLC Date March 17, 2014

Owner Tommie Lewis

Address 1212 Sycamore Street, Suite 21

Title President and CEO

Telephone 513-421-2300

Fax 513-541-5589

IMAKE IT PLAIN

Cincinnati, OH 45202

513-421-2300 PH www.MlPCLLC.com 513-541-5589 FAX

PROJECT ACTVITIES AND DELIVERABLES:Make It Plain Consulting will facilitate the implementation of a Plan of Action that will result in acomprehensive strategy utilizing work previously performed and the findings from the climateassessment. The strategy includes accountabilities, timetables and specific action plans.

PROJECT EXPECTED COMPLETION DATE: June 20, 2014

PLAN OF ACTION TIMELINE — MILESTONES

The following represent key project milestones, with estimated completion dates. These datesare contingent on the availability of leaders, managers, employees, union reps, officials, etc.

Milestone Launch Date Completion DatePhase I: Resolve Employee-Management IssuesClimate Assessment 01/22/2014 03/07/2014Climate Assessment Final Report & Recommendations 03/10/2014 03/13/2014Initial Plan of Action Scoping Meeting~ 03/17/2014 03/17/2014Onsite Interventions at NOD and TROD 03/17/2014 03/28/2014Climate Assessment Findings Meetings (city Manager, DPS Exec. Team) 03/18/2014 03/21/2014Plan of Action Rollout Meetings (DPS Sr. Team, Departments, Unions) 03/18/2014 03/21/2014Plan of Action Rollout Meetings (city council) 03/19/2014 03/21/2014Follow-up Executive Engagement Interviews 03/19/2014 03/28/2014Follow-up Employee Engagement Sessions 03/19/2014 03/28/2014Identii~’ Measurements 03/26/2014 04/11/2014

Phase II: Integrated PlanningCreate Task Force Subcommittees 03/27/2014 04/10/2014Develop Task Force Operational Guidelines 03/27/2014 03/27/2014Identify Task Force Subcommittee Members 03/24/2014 03/28/2014Create Task Force Communications Plan 03/27/2014 04/02/2014Work-along/Ride-along at NOD 03/17/2014 03/28/2014Work-along/Ride-along at TROD 03/17/2014 03/28/2014Work-along at Fleet Services 03/24/2014 04/04/2014Work-along at City Facilities Management 03/24/2014 04/04/2014Work-along at Director’s Office 03/24/2014 04/04/2014

Phase III: Management & Employee DevelopmentComprehensive Performance and Culture Training 03/17/2014 05/02/2014

Phase IV: Succession PlanningConduct competency and skills meetings with department heads 04/14/2014 04/25/2014Develop Competency Models 05/05/2014 06/06/2014Create DPS Succession Plans Q6J02/2014 06/13/2014

Phase V: Renewing the WorkplaceSuccession Planning Strategy & Meetings 03/17/2014 06/20/2014DPS Renewal Progress Readout 06/02/2014 06/20/2014

513-421-2300 PH www.MIPCLLC.com 513-541-5589 FAX

Public Services Climate Assessment

cftyol

CINCINNATIPUI3L1CSERVIQES

March 2014

Prepared by:Make It Plain Consulting, LLC

1212 Sycamore Street, Suite 21Cincinnati, OH 45202

March 13, 2014

MAKE IT PLAIN

TABLE OF CONTENTS

I. EXECUTIVE SUMMARY 3

II. ASSESSMENT METHODOLOGY 3

III. KEY FINDINGS 4

IV. SUMMARIES and RECOMMENDATIONS 7

a. Culture

b. Workplace Environment

c. People

V. PLAN OFACTION 10

Public Services Climate Assessment 2014 Page 2

I. EXECUTIVE SUMMARY

The City of Cincinnati Division of Public Services engaged Make It Plain Consulting, LLC tocomplete an independent climate assessment as part of its ongoing efforts to assess the currentstate of the department, identify issues and potential areas of violation; and address any gapsthat may exist. The assessment concentrated on the division’s Culture, Workplace Environmentand People in relation to reported claims of discrimination.

The assessment was conducted in phases. Phase 1. — an internal employee Climate Assessmentsurvey was distributed, by the Human Resources Department, to all employees of PublicServices. Phase 2 — independent consultant collected and analyzed data to determine scope ofemployee issues and concerns. Phase 3 — consultant facilitated focus group meetings andindividual interviews to ascertain thoughts and concerns directly from employees andmanagers.

II. ASSESSMENT METHODOLOGY

Make It Plain Consulting designed and conducted a climate assessment approach using acombination of focus groups, interviews, and data analysis to develop an executive summary toprovide a high level overview of key themes, findings and recommendations for the City ofCincinnati, Division of Public Services.

The assessment consisted of ten focus groups (approximately 220 employees), thirteenindividual executive interviews, four staff interviews; analysis of grievance reports, surveyresults and performance evaluations; review of Human Resource Policies and Procedures,Collective Bargaining Agreement, Labor Management Agreement, Civil Service Rules,Ordinances, and Administrative Regulations related to Equal Employment Opportunity andWorkplace Behavior Policies.

EMPLOYEE CODE OF CONDUCT: Employees are required to conduct themselves in a professionals manner atall times. Professional behavior is defined as courteous and respectful treatment. Examples of unprofessionalbehavior include yelling, cursing, disparaging remarks about another, gossip, refusing to speak to someoneabout business matters, and emotional outbursts. In addition, employees are required to comply with allapplicable laws, regulations, policies, and procedures. This includes agency policies and procedures, as well asthe policies and procedures contained herein. Employees are also required to abide by AdministrativeRegulations No. 25, Sexual Harassment; No. 49, Workplace Violence; No. 52, Substance Abuse; and No. 55,Prohibiting Offensive or Derogatory Comments.

Source: City of Cincinnati Human Resources Policies and Procedures, section 2.8


III. KEY FINDINGS

1. The Division of Public Services is a culturally fractured organization with significantissues of distrust and miscommunication between senior management, linemanagement, employees, and union affiliations. The findings show that the issues oflack of communication, ineffective leadership, and exclusiveness have existed withinPublic Services, with periodic efforts to resolve the issues, for decades (source: February2004 Facilities Management “Team Building” Program and November 2007 “Essential Skills forTransformational Leadership” Program).

More recently, the Division of Public Services experienced an increase in reportedemployee grievances between 2010 through 2012. During this period, the majority ofgrievances were filed in the Neighborhood Operations Division (NOD) and Traffic andRoad Operations Division (TROD). However, in 2013, there was a 37% decrease inemployee grievances at NOD and a 58% decrease in grievances at TROD. Overall, from2012 to January 1, 2014, employee grievances in Public Services have decreased by 49%.

Interestingly, in 2010, 40% of grievances filed in NOD were accountable to one managerand 33% of grievances filed in TROD were accountable to one manager. In 2011 and2012, 57% and 21% of grievances filed in NOD were, again, accountable to the samemanager as in 2010. There was also an increase in grievances filed in Fleet Services from3 total grievances (2010) to 8 total grievances (2012). However, although the FleetServices grievances in 2011 and 2012 were accountable to one manager, all but twogrievance claims resulted in a withdrawn or denied resolution.

Based on review of related documentation, focus groups, interviews and survey results,the finding concludes that harassment, discrimination and retaliation are prevalentpractices throughout the Division of Public Services, with particularly high occurrencesin the Neighborhood Operations Division (NOD).

2. The process of making decisions within Public Services seldom includes employeeparticipation in an intentional or systemic way. There is a severe lack of accountabilityamongst management, employees and union representatives. The focus groups andexecutive interviews confirmed that employees believe that their recommendations forimproving the workplace climate and environment “rarely” or “never” result in anypositive changes. In fact, an overwhelming number of employees cited that theirparticipation in the Climate Assessment, itself, would result in retaliation from managersand no positive action for improving the culture, workplace environment or decisionmaking process at Public Services.


3. There is a strong perception by employees that workplace rules, policies and proceduresare not enforced equitably which substantially increases the potential for claims ofdiscriminatory treatment. There is no clear internal mechanism for employees toanonymously report allegations of discrimination, retaliation or other inappropriateconduct or wrong doing. Thus employees are more inclined to use external channelswhich minimize the ability for the issue to be resolved in-house at the lowest possibleremedial level.

4. Employees clearly articulated and recognized the need for a defined competency modeland associated leadership and employee development programs. Focus groups,interviews and surveys strongly indicated that there is no meaningful, adequatelydefined structure for career planning and development or employee mentoring.Moreover, Public Services does not have a management competency model and noformalized management development programs currently in existence; As a result:• There is an absence of a clearly defined vision, strategy and shared understanding ofthe desired organizational skills and competencies.

• It is difficult to conduct and access an employee skills gap analysis in the absence ofdefined competencies and skill sets to which Public Services expects its employees todevelop.

5. Public Services is operating with insufficient and inadequate financial, human andmechanical/technical resources. Both, management and employees confirmed thatbudget cut-backs and workforce reductions have negatively impacted the division,operations and staff morale. Furthermore, each department within Public Services hasa distinct culture and workplace environment. For example, City Facility Management(CFM) is described as a “very knowledgeable and close knit” group (reporting zeroemployee grievances since 2008). However, budget constraints, employee favoritismand workload distribution present current and potential challenges. Another example,Fleet Services has a workforce of 99.9% males who cited the department is“disconnected” from Public Services. The culture is heavily influenced by decisionsmade by people who “do not work at the location” or “don’t understand the work”.


Overall, the key findings show that there is an urgent need for an organizational renewal ofPublic Services. The renewal of Public Services can be categorized into five areas: (1) ResolveEmployee-Management Issues: Employees are on the verge of “implosion” and morespecifically “explosion” at NOD. Addressing the direct concerns and needs of the employeeswith real-time solutions will reduce conflict and disruption of operational services, (2)Integrated Planning: Planning is the foundation for management excellent and must beaccompanied by effective and efficient implementation and sound reporting on results. Thegoal is to align and integrate the human, as well as financial, asset and information resourcesrequired to deliver superior service to the public, (3) Management & Employee Development:It is critical for a high performing organization to develop all of its talent through a systematicand integrated approach to managing performance and growth, (4) Succession Planning:Targeted and coordinated planning initiatives aligned to division needs. This must takeadvantage of organizational strengths and efficiencies, with a view to developing a diverse andrepresentative Public Service workforce, and (5) Renewing the Workplace: Continuous andintentional improvement of Public Services capacity to deliver service requires a focus on howemployees work, where employees work, and the tools and skills with which employee work. Toachieve a renewed culture, Public Services must support collaboration, embrace newtechnologies, focus on innovation, reduce unnecessary employee conflicts and grievances, andmanage information and risk well.


IV. ASSESSMENT SUMMARIES and RECOMMENDATIONS

CU LTUREThe culture of Public Services is highly complex, disconnected and void of trust. From the onsetof this Climate Assessment, the culture of distrust was demonstrated by the frustration ofunion representatives, management, and employees with regards to the communication,purpose and desired outcome of the assessment.

The Climate Assessment results suggest that the allegations of hostile work environment andretaliation are confirmed and validated. There is a clear communication rift betweenmanagement and employees. There is also an unwillingness or incapacity to directly addressthe issues of race, classification, gender, educational status, favoritism, and bias with regards tomanaging and developing a culturally diverse workforce. The findings strongly suggest that theclimate within NOD and TROD is plagued by a lack of trust, lack of confidence in managementand lack of communication between management and employees. More specifically, theemployees at NOD often described the culture as “slavery” or “prison”.

Although there were few reported grievances within Fleet Services, City Facilities Managementand the Director’s Office, the focus groups indicated that a significant number of employeeshave experienced or witnessed incidents of discrimination and retaliation throughout everydepartment of Public Services. Employee and managers’ surveys confirmed that the top issueswithin Public Services are: (1) lack of effective and consistent communication, (2) perceptions ofunresolved and unfairly managed personnel issues have created a divisive environment, and (3)employees are unsatisfied with how decisions are made in the department.

The Climate Assessment identifies four categories the Public Services Culture and workenvironment fall under:

1. Fear of Retaliation — Employees cited numerous incidents of violations in protectionsagainst retaliation. These incidents are, both, documented and undocumented.

2. I..ow Trust — Employees are experiencing low trust in the Public Services leadership,structure and process of managing workplace climate and safety. This low trust isexhibited in the form of outrage (particularly at NOD) and disconnection (Fleet Services).

3. Ambiguity — Employee and Managers are uncertain of the vision, direction and plan forPublic Services. This uncertainty has divided and paralyzed the workforce.

4. Ineffective Leadership — Managers have limited education and training in core managerialcompetencies such as interpersonal skills, the ability to handle change, and effectivecommunication.

Recommendation:• The Senior Leadership Team should take immediate and decisive action to restore

employees’ trust and confidence in the credibility of key members of Leadership Teamand Operations Managers.


WORKPlACE ENVIRONMENTThe workplace environment varied from each department. City Facility Management and Fleetservices have the least amount of workplace environment issues. The teams work considerablywell together. Most of the issues within the department are (1) budget, (2) equipment andtechnology and (3) lack of communication with other departments.

Traffic and Road Operations Division (TROD) workplace environment has improved since 2012.Although, employees provide input with regards to workplace environment and otherdecisions, there is no formal process for collecting, analyzing and implementing suggestedchanges to improve the workplace environment. Employees recognize the lack ofcommunication and, at times, lack of support from senior leadership.

Director’s Office has an open-door policy. However, employees have been physically separatedby the construction of a glass wall. This has created a “fish bowl” perception of the Directorand Deputy Director. Employees cited a “fear of doing wrong” environment. Managers andemployees recognize conflicts between unions (ASCFME and CODE) as well as a need for overallorganizational structure.

Neighborhood Operations Division (NOD) is a volatile workplace environment. The employeesare highly experienced in their respective jobs, however, unfair and inconsistent treatment haspolarized the environment. Management is working, operationally, to meet the demands ofthe business. Unfortunately, deep-rooted and historic workplace policies, conflictingmanagement styles and employee expectations are at a tipping point.

The climate assessment found the following three issues with the workplace environment:1. 92% employees rated the overall Public Service workplace environment a three (3) or

below (on a scale of 1 to 10 — 10 being excellent)2. Sabotage, retaliation and discrimination are common practices with NOD.3. Lack of communication, workload demands, lack of trust and accountability are driving

the workplace environment across Public Services

Recommendations• Immediately address the management and employee issues at NOD.• Develop competency models for senior leaders, superintendents, managers, employees

and support staff and align Human Resources processes such as selection, testing &evaluation, development and performance management to the desired competencies.

• Deploy a comprehensive communication strategy to inform and educate the workforceon the division’s mission, business strategy and workplace environment expectations.

• Provide performance improvement coaching for superintendents and managers as wellas development coaching for employees.


PEOPLEThe perceptions and associated behaviors of “educated versus uneducated” people working inPublic Services must be eradicated from the culture and mindset of every public serviceemployee. This perception has contributed to the superiority and inferiority complex impactingmany employees. Comments such as “if they wanted a job better than picking up trash, theyshould have stayed in school” or “the only reason he/she has their position is because of theirfamily name” or “as much education that they say they have, they are the dumbest person Iknow”. These comments, thoughts and behavior are incredibly destructive to a productiveworkforce.

Focus groups and interviewed confirmed that 87% of all surveyed in the Climate Assessmentprocess believed that the work of Public Services is important. The obvious opportunity forPublic Services is to create a culture and workplace environment whereby the PEOPLE arevalued, respected and important to the success of the division and the City.

The Climate Assessment found the following four issues with regards to people:1. People skills, such as interpersonal, communication, and relationship management, are

desperately needed at all levels within Public Services.2. Develop talent management systems and develop succession plans for the

organization.3. Evaluate and address individuals of concern.4. Recognize and support behaviors and performance that meet or exceed organizational

expectations.

Recommendations:• Define job competencies• Conduct a talent/skills gap assessment.• Address the “people skills” and managerial competencies of all managers.• Develop talent management systems and develop succession plans for the organization.• Evaluate and address individuals of concern.• Recognize and support behaviors and performance that meet or exceed organizational

expectations.• Conduct personality assessment and management training for senior leadership and SACs

with a focus on (1) effective communication, (2) cultural competence, (3) emotionalintelligence and (4) relationship management.


PLAN OF ACTION

Embedding Renewal in the Division of Public Services

Senior Leadership and Managers shall implement a renewal of responsibilities and work toembed the five renewal pillars into their organizational cultures.

• Resolve Employee-Management Issues: Schedule “Employee Engagement” meetings todiffuse explosive or destructive behaviors and feelings with the environment. Directlyaddress the concerns and needs of the employees with empathy and the intention toresolve issues and minimize management-employee conflict and disruption ofoperational services.

• Integrated Planning: Planning is the foundation for management excellent and must beaccompanied by effective and efficient implementation and sound reporting on results.The goal is to align and integrate the human, as well as financial, asset and informationresources required to deliver superior service to the public.

• Management & Employee Development: It is critical for a high performing organizationto develop all of its talent through a systematic and integrated approach to managingperformance and growth.

• Succession Planning: Targeted and coordinated planning initiatives aligned to divisionneeds. This must take advantage of organizational strengths and efficiencies, with aview to developing a diverse and representative Public Service workforce.

• Renewing the Workplace: Continuous and intentional improvement of Public Servicescapacity to deliver service requires a focus on how employees work, where employeeswork, and the tools and skills with which employee work. To achieve a renewed culture,Public Services must support collaboration, embrace new technologies, focus oninnovation, reduce unnecessary employee conflicts and grievances, and manageinformation and risk well.

In addition to embedding renewal across their organizations, superintendents will alsoadvance renewal in four specific areas to support Renewing the Workplace:

1. Supporting Managers - Managers are the creators and carriers of organizational culture.They translate the principles and goals of renewal into the realities of daily work.

o Superintendents will engage their managers and foster their managers’departments. They will enable managers to better manage people andperformance by equipping them with the tools, skills and support they require.

o Superintendents will work to develop and draw on a City of Cincinnati PublicServices (CCPS) Learning Roadmap for Managers and align departmental learningactivities for managers with CCPS offerings.


2. Knowledge Management - Our knowledge and information are important governmentassets that should be systematically captured and shared among individuals and acrossorganizations.

o Superintendents will assess and improve their approaches to managingknowledge and information as agency assets.

o Superintendents will build knowledge transfer considerations into their talentmanagement and succession planning strategies for superintendents, SACs andother critical positions.

3. Innovation - Innovation is about doing things differently in ways that are more effectiveand efficient. There is a great need for new ideas and ways of doing things, greaterflexibility, more experimentation and better implementation.

o Superintendents will foster a culture of innovation, both in the way they managetheir departments and in the way they serve and engage Cincinnatians, throughactivities such as:

a building strong employee and managers’ networks;

a developing collaborative and engaging work environments;

a creating a system for employee and managers’ feedback; and

• further reducing the frequency of miscommunications.

4. Public Service Values - Values matter. They underpin public service renewal. In servingCincinnatians, our agency will continue to be guided by the values of public service.

o Superintendents will draw on and seek to apply best practices from theWorkplace and Workforce Taskforce.

o The Director of Human Resources will finalize the Values and Ethics Code for thePublic Services by May 2014 and Superintendents will develop and implementtheir departmental codes by June 2014.

o Superintendents will encourage dialogue among employees on values and ethics.

By June 15, 2014, superintendents and operations managers are to report to the Director ontheir progress on all four renewal pillars: Integrated Planning, Recruitment, EmployeeDevelopment, and Renewing the Workplace. For each of the first four pillars, they are to reporton their overall progress. For the fifth pillar, they are required to report on overall progress aswell as on each of the specific objectives set for 2014-15.


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