Recommendations Report: Land Use and Construction Permitting

Recommendations Report
on
Land Use and Construction Permitting
submitted to
The City of Milford

Connecticut
December 2008 ©
RECOMMENDATIONS REPORT ON
LAND USE AND CONSTRUCTION PERMITTING
SUBMITTED TO
THE CITY OF MILFORD, CONNECTICUT
TABLE OF CONTENTS
1. EXECUTIVE SUMMARY ................................................................................................................................1

2. INTRODUCTION ..............................................................................................................................................3
3. SCOPE .................................................................................................................................................................4
4. LAND USE / BUILDING INSPECTION AND CONSTRUCTION PERMIT PROCESS
RECOMMENDATIONS ...................................................................................................................................5
4.1. DEFINING THE VISION AND MISSION .............................................................................................................5
4.1.1. Recommendations................................................................................................................................6
4.2. RESTRUCTURING DEPARTMENTS ..................................................................................................................6
4.2.1. Recommendations................................................................................................................................8
4.3. REALLOCATION OF PERSONNEL RESOURCES ................................................................................................9
4.3.1. Inspectors ............................................................................................................................................9
4.3.2. Administrative Personnel ....................................................................................................................9
4.3.3. Job Descriptions................................................................................................................................10
4.3.4. Recommendations..............................................................................................................................10
4.4. TECHNOLOGY .............................................................................................................................................10
4.4.1. Office Productivity ............................................................................................................................10
4.4.2. City Website.......................................................................................................................................11
4.4.3. Case / Permit Management ...............................................................................................................12
4.4.4. Geographic Information System (GIS) ..............................................................................................13
4.5. PROCESS .....................................................................................................................................................15
4.5.1. Subcontractor Permitting ..................................................................................................................17
4.5.2. Interagency Communication .............................................................................................................17
4.5.3. Environmental Factors......................................................................................................................17
5. CONCLUSION .................................................................................................................................................20
L. Robert Kimball & Associates, Inc., December 2008 © Page i

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1. EXECUTIVE SUMMARY
L. Robert Kimball & Associates (Kimball) is pleased to provide the City of Milford, Connecticut (City)
with this Recommendations Report on Land Use and Construction Permitting, based on findings
previously reported in the assessment report.
Having completed the assessment of the land use and construction permitting process in the City, Kimball
has identified numerous opportunities for improvement which we believe will make permitting more
user-friendly for applicants and more efficient for City personnel charged with providing the service.
As noted in the assessment report, Kimball identified fragmentation of the permitting process as the major
impediment to efficiency and a customer-friendly process for obtaining a land use / construction permit.
Accordingly, overcoming the fragmentation through a restructuring of the City departments playing
principal roles is addressed in this recommendation document. Because the potential for restructuring is
constrained by local ordinance and regulation, an assessment of local statutes and regulations that may
require amendment is integral to the recommendation.
Proposed restructuring includes incorporation of the Planning and Zoning Department and the Building
Inspection Department into a newly-formed Permitting Authority and an Applications Processing /
Customer Services Unit (Unit) within the Permitting Authority.
With a restructuring of departments comes the potential for a reallocation of staffing resources, the
greatest opportunity of which is found in the Building Inspection Department. Administrative staff
members within the consolidated departments are well-suited to provide support to components of the
permitting process that do not require professional certifications. With proper administrative support,
professional personnel can be more effectively deployed to perform the review and inspection duties they
currently perform on a part-time basis.
Process flow is an additional area representing an opportunity for improvement. Recommendations

include:
• Providing easily accessed and centralized information for applicants who are entering the process
• Single point of entry into the process and a continuing single point of contact for customer
interface throughout the process
• Reallocation of responsibilities of identified City staff.
• Facilitation of permit processing, i.e., movement through external agency reviews, by City staff
The remaining “high impact” recommendation concerns the implementation of technology tools. The
assessment reveals limited use of standard work productivity tools, an immediately available opportunity
for enhancing efficiency. Case management tools, web tools and expanded use of Geographic
Information Systems (GIS) technology are also recommended.
Other environmental and process improvements are included in this recommendations report to present
low cost, immediate improvement in providing customer service to permit applicants. Suggestions range
L. Robert Kimball & Associates, Inc., December 2008 © Page 1

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from improving access to office locations to team building for a customer-centric focus across the various
departments and offices.
Kimball offers the recommended actions for the City’s consideration and implementation with the belief
that true change can be accomplished with the commitment of the City leadership and stakeholders
working within the various departments. We offer our continuing support to the City to implement the
recommendations presented.

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2. INTRODUCTION
This recommendations report is the second and final deliverable in a project initiated by
Mayor James Richetelli, Jr. Mayor Richetelli has committed to making the permitting process within the
City more customer-friendly. Although the process has been reviewed informally in the past, no rigorous,
independent study has been conducted to examine the complete process and make recommendations for
improvements.
The first project deliverable, the assessment report, described the various procedures that make up the
permit application process in Milford. Each of the findings was addressed in detail. The report provided
insights to past performance, providing a baseline for improvement metrics and evaluating the potential
for successful process re-engineering.
The assessment revealed obtaining a construction permit in the City is not a single process but rather a
loosely-connected series of processes that includes up to 15 departments, agencies or offices. There is no
single entity responsible for permitting. There is no single source of information available to applicants
to help them prepare for the permitting processes or to guide them through the various steps they must
complete. Applicants must physically appear at various offices and walk their applications through the
numerous required steps. Access to the offices is complicated by limited parking, separate and
geographically-dispersed office locations, the manner of labeling of offices in the Parsons Government
Center, limited hours of operations and limited personal assistance. Technology tools are used minimally
to support the processes.
Many of the participating offices’ activities are built upon past practices, custom, regulatory or statutory
requirements and, accordingly, have not been seriously questioned in the past. From the perspective of
Kimball’s external review, potential is not limited by past practice, even those currently mandated by
local ordinance.
Kimball’s recommendations are derived from observations, interviews, industry research and analysis of
the processes currently practiced by the various organizational components involved in land use and
construction permitting and inspection in the City.
Kimball addresses recommendations for the permitting process as a whole, with the objective of
improving the capabilities of individuals and organizational components, increasing productivity,
increasing public satisfaction, producing results sooner, while reducing effort within City departments.

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3. SCOPE
In theory, process improvement is simple: Consistently apply the practices that yield good results and
modify the practices that cause problems. In practice it is more complex and requires planning and
discipline.
Process improvement should be addressed as a project, giving it structure, planning, resources, goals and
the commitment that any successful project requires. The future enhancement of the permitting process
requires a champion to drive the project forward, to bring resources together and ensure collaboration.
Use data developed through the

Do the new processes assessment to create findings
achieve the desired results? and recommendations.
Action Plan
New processes; results of
pilots; rollout experience
Figure 1: Process Improvement Cycle 1
Because there are more recommendations presented than can be addressed concurrently, process
improvement, following the method illustrated in Figure 1, should be focused to avoid spreading
resources too thin, making priorities unclear, and losing momentum. Accordingly, there may be many
iterations of the Process Improvement Cycle.
The recommendations report offers proposed actions; it does not “build” a new business model. To be
accepted, development of the new model must come from within, enlisting the participation of the process
owners.
1
Software Process Improvement Handbook, Wiegers, 2005

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4. LAND USE / BUILDING INSPECTION AND CONSTRUCTION

PERMIT PROCESS RECOMMENDATIONS
Kimball assessors heard recurring themes when speaking with City personnel about the land use and
construction permitting process in the City. Additional conditions were revealed through observation. All
are opportunities for improvement.
• The permitting process is a loosely-connected series of processes, operating independently.

• No single authority holds responsibility for the process as a whole.
• City personnel are not well-versed in the local ordinances affecting the responsibilities of their
departments or offices.
• There is a lack of accountability for poor performance by City personnel.
• Customers misunderstand the process.
• Comprehensive, easily accessible guidance for applicants is not available.
• City personnel engage with applicants in the application process only within the disparate
organizational components, leaving the applicants to navigate the rest of the process[es] on their
own.
• The Building Inspection Department work flow is not customer-oriented.
• The entire permitting process is cumbersome and not user friendly.
• Physical movement of applicants from office-to-office is hampered by limited parking, hard-to-
see building and office labeling / signing and limited hours.
• Technology is underutilized.
• Interoffice communication among the multiple departments and offices involved in the process is
limited.
Kimball’s recommendations are offered in a descending order of impact, ranging from restructuring the
City departments and creating a new Permitting Authority to improving the signing and labeling of
offices within the Parsons Government Center.
High impact recommendations represent the most challenging implementation and will likely require
statutory action, labor discussions and significant change management. Other recommendations are
simple and inexpensive to implement. True improvement can occur over time by implementing for quick
wins initially, while working for long-term benefits through the more challenging options.
4.1. DEFINING THE VISION AND MISSION
From a permit applicant perspective, the requirement to obtain a permit for a construction project is
reasonably viewed as single process. While applicants can appreciate the scope of a permit application

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may vary in complexity depending on the type of project, logic and expediency suggest the distinctions
between a simple and a complex project can be addressed by a single, inclusive permitting agency. Within
such an agency, the knowledge and capability to process an application through the appropriate steps
should function with an overarching mission of service to the community.
Consideration of the mission of service to the community, within the context of the planning, zoning and
construction permitting process, begins with understanding why the numerous departments that
participate in the process exist. The role of all the departments is to protect the health, safety, quality of
life and the environment, within the parameters established by the community through their governance
structure. While each department may have its own unique focus, the mission, or end purpose, is the
same.
Stephen Covey, in his book The 7 Habits of Highly Effective People, provides insights relevant to the
permitting process when he discussed interdependence in the Maturity Continuum and the habit of
“Beginning with the End in Mind”. 2
Just as interdependent people combine their efforts with the efforts of other interdependent people to
achieve success, organizational success is achieved when interdependent organizational components
combine their efforts. Covey asserts interdependence is a far more mature, more advanced concept than
independence. The synergy of interacting people and organizations is a well known phenomenon in
modern business.
To begin with the end in mind means to start with a clear understanding of desired final result. It means
each action taken along the way contributes to achieving that final result (Covey). Without the
understanding and commitment to the mission, organizations may be busy and even very efficient, but not
effective in achieving the desired objective.
4.1.1. Recommendations
• Define the vision and mission of the permitting process with a commitment to service to the
community, to be achieved through the interactive efforts of the various City departments, offices
and agencies.
• Provide executive leadership to the task of defining the mission and vision; ensure the
participation of the service providers in the process of determining how the mission can be
achieved.
• Provide continuous emphasis to ensure understanding and assimilation of the vision into the
culture of the service providers.
4.2. RESTRUCTURING DEPARTMENTS
Overcoming the fragmentation of the permitting process through a realignment of the City departments
playing principal roles is important to accomplish.
2
The 7 Habits of Highly Effective People; Covey; Simon & Schuster; 1989.

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Proposed restructuring includes combining the Planning and Zoning Department and the Building
Inspection Department into a newly-established Permitting Authority (Authority) and an Application
Processing and Customer Services Unit within the Authority.
The consolidation may be formal, wherein official statutory action establishes the Authority and its
component parts, or functional, wherein the activities of the two principal departments become tightly
integrated but not formally established. Kimball recommends the formal, statutorily-mandated approach.
Because the potential for restructuring is constrained by local ordinance and regulation, an assessment of
local statutes and regulations that may require amendment is integral to the proposal 3 . Assessing and
updating the relevant ordinances and regulations also prompts a total review of ordinances and
regulations, facilitating an overall update of local legislation. Engaging the legislative (Board of
Aldermen) and executive branches (Mayor) of the City governance structure demonstrates a high level of
commitment and leadership, lending impetus to the proposal.
The latest Plan of Conservation and Development was enacted by the City in September 2002. These
policies, goals and objectives intended to guide Milford as a sustainable community over the next ten
years and beyond. 4 The plan listed 56 items in the action agenda to be completed. At least one-third of
the agenda items concerned Planning and Zoning Board recommendations or changes to current City
ordinances or regulations. Some of the action items have already been completed, while others are in
various stages of completion. Actions taken to improve the permit process legislatively will impact the
future of Milford and will require participation of the affected commissions and boards. This project
presents an additional opportunity to update the Plan of Conservation and Development and address the
issues of renovations and use of current land space and buildings that may be nonconforming under
current regulations.
Recognizing the proposed restructuring will be difficult to achieve; Kimball believes it may represent the
greatest opportunity to upgrade the effectiveness of the permitting process within the City.
3
Local ordinances have not been codified; do not exist in electronic format; and are not readily available for
review. Efforts to obtain the ordinances for review within the project assessment phase were not successful.
4
Planning and Zoning Board, City of Milford, CT, Plan of Conservation and Development; September 2002.

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Permitting Authority External

Departments,
Offices
Application Processing - Inland Water

Customer Service Unit
Sewer
Building Inspections
Planning and Zoning
& Construction Health
Department
Permits
Department
Fire
Tax Collector
Figure 2 : Proposed Table of Organization

Police
City Engineer
Figure 2 illustrates the Planning and Zoning Department and the Building Inspection Department
combined within the Permitting Authority.
The movement of the two departments under a single authority establishes a means to coordinate all
activities related to permitting, creating ownership and accountability. The Permitting Authority makes
citizen / applicant interface much easier for the customer. It eliminates a source of uncertainty for
applicants who are not familiar with the routine of the application process. It presents an approach that is
positive, customer-focused, and supportive of community growth.
The external agencies operate independently of the Permitting Authority, as they do in the current
structure. The differences in the proposed model concerning the external departments relate to a modified
process. Process modifications are addressed later in this report.
• Formally establish a Permitting Authority for land use/zone and building inspection/construction
permitting by action of local statutory authority.
• Maintain the Departments of Planning and Zoning and Building Inspection as components of the
Permitting Authority.
• Establish an administrative unit within the Permitting Authority to receive and process
applications and provide applicant support throughout the phases of the application process.

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• Evaluate all local ordinances and regulations relating to the permitting process and update as
appropriate.
4.3. REALLOCATION OF PERSONNEL RESOURCES
A benefit to implementing the proposed consolidation of the principal departments engaged in permitting
is the opportunity to reallocate personnel resources to activities where their productivity and effectiveness
can be maximized. The proposed creation of an Application Processing / Customer Service Unit
(AP/CSU) does not necessarily require additional staff. Deploying staff for efficiency and effectiveness
will better meet the needs of the applicants who currently wait in line in the hallway to submit
applications or to simply request assistance.
Efficiencies realized by adding additional technology, standard office productivity tools, or GIS-related
technology should make staff time available to support the AP/CSU functions, at least in part if not
completely.
Efficiencies realized by more effective processes should make additional professional and administrative
staffing resources available, creating greater capacity for service activities.
The reallocation of personnel is tightly aligned with re-engineering business processes and organizational
restructuring. As the processes and structure are simplified, personnel are logically assigned to modified
roles and responsibilities.
4.3.1. Inspectors
Certified Building Inspectors perform tasks that do not require certification or technical expertise.
Current practice includes applicants submitting their permit application and plans at a counter in the
Building Inspection Department between the hours of 8 a.m. and 11 a.m. At initial intake, the
applications are given a cursory review to determine if all required documents are present. The intake
review responsibilities by building inspectors prevent them from performing compliance reviews of
applications and from performing inspections in the field.
To optimize the effectiveness of the inspectors’ efforts, they should only perform work requiring their
technical skills, abilities and professional certifications.
4.3.2. Administrative Personnel

In the proposed Permitting Authority structure, current administrative personnel may be available to staff
the AP/CSU without negatively affecting the work flow within their formerly assigned role. They will
review application content to ensure the submission requirements are satisfied. Administrative personnel
function as the initial contact with the permit application process and continue as a point of contact for
applicants seeking assistance with any component of the process.
Customer service provided in the Planning and Zoning Department by the zoning enforcement officer
models the vision for building inspection. The enforcement officer assists and facilitates processing for

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applicants coming into the office. Technology discussed later in this report will enhance the zoning
enforcement officer’s efficiency and effectiveness, potentially freeing time to provide additional support
in other activities.
4.3.3. Job Descriptions

Job descriptions require review and updates to meet current standards. Job descriptions must include
essential functions that are critical or specialized to the job and include any skills, knowledge and abilities
that are required for the position. A summary of the position and to whom the position is accountable are
also items to be included.
Job descriptions must conform with laws and regulations enforced by the Equal Employment Opportunity
Commission (EEOC), including the Age Discrimination in Employment Act (ADEA), Title VII of the
Civil Rights Act, Rehabilitation Act, Americans with Disabilities Act (ADA) and the Federal Labor
Standards Act (FLSA) in defining the status of the job as exempt or non-exempt. Job descriptions cannot
be discriminatory in violation of any of the state or federal laws.
A job task analysis should be completed by current job holders on at least a three-year cycle. Changes in
legislation or regulations should prompt a review of the job descriptions to identify any impact the change
may have on that job. All job descriptions need to be reviewed by legal counsel to determine all legal
standards are met.
• Perform job task analysis for all City employees engaged in the permitting process.
• Update job descriptions as appropriate for current requirements and revised business processes.
• Ensure professional staff members perform only tasks requiring professional stamps,
certifications, and/or seals.
• Assign application processing and customer service tasks to administrative personnel.
• Provide cross-training for administrative personnel to support rotation among a variety of
assignments.
4.4. TECHNOLOGY
4.4.1. Office Productivity

Technology currently available to City departments is underutilized. Training offered to personnel by the
Management Information Systems Department has not been widely attended. Staff members expressed
interest in implementing standard office productivity tools that have been available to them for some time
but are not in use. The same persons told interviewers they did not have time to develop templates and
learn how to use new technology tools.
Use of technology tools varies within the departments, not only in the principal permitting departments
but also in the external departments that participate in the permitting processes. Reviewing numerous

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documents and processes within the departments, Kimball observed many uses for spreadsheet and data
base functionality.
Beyond the desirability of standard office productivity tools, a specialized application for documenting,
logging, processing and maintaining permit application and related data is needed. Kimball anticipates
the capability to share data across a common platform, the capability to designate required sign-offs by
external departments, the ability to transport documents electronically, and to monitor the progress of the
applications.
To properly leverage the benefits of the technology, the Permitting Authority should mandate
implementation within the Planning and Zoning and Building Inspection Departments. City leadership
should encourage external departments to use the software.
4.4.2. City Website

There is a great deal of information on the current City website that would be of interest to residents and
others. Information on the various boards, commissions and departments, including the members and
schedule of meeting, is on the website. While each of the departments provides basic information, some
departments also offer forms available online. Some forms can be completed and submitted electronically
online, and others have downloadable forms in a .pdf format.
The Planning and Zoning Department and the Building Inspection Department have no downloadable
forms. Some general permitting information is provided by both departments, including what is needed
to obtain a permit. The Planning and Zoning Department provides access to the Zoning Regulations and
the Zoning Subdivision Regulations.
The Building Inspection Department provides information concerning purchase of the Connecticut 2005
State Building Code. Someone who is not versed in how the permitting process works would be
challenged to find the information they need on the website. They would need to visit multiple sites for
multiple agencies; however, directions to the various sites are not provided.
The process for gaining a building permit should be described in detail in at least at one location on the
City webpage. It should include the entire process, not just portions for particular departments. If the
process description is available in more than one location, it must be consistent in each site. If multiple
applications are needed for the process, consideration should be given to combine the necessary
information into a single application form.
Standards for respective departments to follow in establishing their department websites would help
manage citizen expectations and create consistency in how the City represents itself on the World Wide
Web. Format and completion and submission guidance standards should be set for the forms that will be
available on the website.
Many local governments in Connecticut and other states have websites and permitting information
available online. In most cases, the permitting process is explained in detail; and contacts are available for
assistance if needed. Many municipalities include regulations that may affect the permitting process.
One of the most thorough websites reviewed was the Town of Farmington, Connecticut. All applications
for zoning, wetlands and public works are listed. An entire booklet (see insert) for public works building

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permits that includes the processes to be followed, application to be completed and additional information
that may be needed is available in .pdf format. 5
Customers of the Milford permitting process who were interviewed by Kimball discussed their familiarity
with other local governments that accept applications electronically from licensed subcontractors working
under another, permitted prime contractor. Reportedly, the subcontractors are able to obtain permits for
their work very simply and quickly by piggy-backing on the prime contractor’s permit.
The City can improve the use of their website to better assist and educate their users. Keeping
information fresh and up-to-date can be a challenge but is necessary. The website can provide a wide
range of City information, as well as links to the City ordinances and Connecticut state websites.
Checklists and forms can be utilized and updated. A “Frequently Asked Questions” section may be of
great assistance to users of the website. The website represents a potential business portal for the City
that benefits the community and the service providers.
4.4.3. Case / Permit Management

At the initial intake of a permit application, case
management software should log the application
and assign a tracking number to the “case.” The
software accesses various data bases and provides
direction for processing the application. The
application can be forwarded through the software
to the departments and offices where processing is
required. Progress can easily be tracked
throughout the process, and notifications are easily
made to interested parties.
A custom GIS / mapping application can be built in

the short term to provide easy access to the
mapping used in the permit process. This system
would replace hardcopy mapping and other sources
that are not very user friendly. The application
would be on the desktop in the Planning and
Zoning Department or with the person serving as
the entry point to the permit process. The user
would enter an address, name or parcel number to
locate the applicant’s tax parcel. The application
would create a map of the parcel showing zoning,
parcels, coastal management area, sewage and any
other information available that is useful in the
permit process. The information needed for the
permit applications will be readily available, and
the map can be printed out and included in the
permit application for future reference.
5
Town of Farmington, “Forms and Permits”, (2005),<http://www.farmington-ct.org/Forms>(20 October 2008).

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The Cartegraph software should be evaluated to determine its effectiveness as a permit management
system. The module that has been built for the health inspections is very similar to a permit and
inspections workflow, and it is very possible that the Cartegraph system could be extended to address
permitting. This would be the most desirable solution since the software is already in place and
supported.
4.4.4. Geographic Information System (GIS)

The City has reached the point where a move to a more advanced GIS model should be considered. The
file-based data/thick client software model in use by the City is a very common model and is an adequate
way to do GIS. Most organizations use this model as a starting point and implement it successfully for a
long time. However, as the user base grows and demand for data and applications increases, a more
advanced enterprise GIS implementation may be a better option.
The advantages of enterprise GIS are typically increased efficiency and more effective distribution of
data. Data redundancy is eliminated, resulting in less data management effort. A single point of
management is created, which also increases efficiency. Centralized applications make it easier to bring
new users online. Thin client applications eliminate the need for each user to have an additional GIS
software license.
An enterprise GIS typically incorporates the following elements:
• The GIS server

• ArcGIS Server enterprise software
• A centralized spatial data warehouse
• Centralized management of the spatial data, GIS applications and system security
• Distribution of GIS applications and data to all users from a central location
• Integration of GIS functionality with other information systems
Kimball recommends an upgrade to the technology used in the City’s existing GIS implementation. The
basic organizational structure is effective and would remain intact, but the GIS processes would be based
upon enterprise-level technology. The proposed solution is built around ArcGIS Server Enterprise,
ESRI’s server-based enterprise GIS software product. This software package functions as the core of the
GIS and publishes data to users, as well as manages the data store. Most users will not require additional
software to access the GIS. Additional server technology upgrades may be necessary to best utilize the
features of this package.
Although a detailed implementation would be premature at this time, a general outline of the elements of
enterprise GIS and how they are typically implemented can be helpful in making the decision to move
forward.
4.4.4.1. ArcGIS Server Enterprise Software

ArcGIS Server software complements the ESRI desktop products by publishing GIS maps and functions
and making them available over the network or internet. Enterprise GIS users connect to the central GIS
server using either traditional desktop GIS software, such as ArcView, or other clients, such as standard

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web browsers. Serving GIS capabilities from a central location reduces cost by limiting the need for
expensive client software and centralizing management tasks.
ArcGIS Server runs as a service on a central server and publishes maps and other GIS functions. It uses
GIS data stored in a central database created and managed using Spatial Database Engine (SDE)
technology. SDE technology manages GIS data within an enterprise DBMS. SDE is no longer sold as a
distinct product as it is integrated into all ESRI products. The server software can publish data in a
variety of ways, from sending raw data to ArcEditor to publishing complete browser-based mapping
applications.
4.4.4.2. Distribution of GIS Applications

A variety of client software packages are used to access data and applications on the GIS server. The
packages have different levels of GIS capabilities and vary widely in cost. Users also have a wide variety
of needs. Correctly matching the client software to the needs of the users will minimize software costs.
The highest level client will be the ArcGIS Desktop software at the ArcEditor or ArcInfo level. Users
who will edit and manage data that is stored in the central data store need this client. This level of client
license is the most costly, but only one license is necessary to manage the data store.
ArcView is the next level of GIS client. While ArcView is much less expensive then ArcEditor, it does
not have the geodatabase editing capabilities. It does have extensive query capabilities and may be useful
in some situations.
The term thin client refers to client software, such as a web browser, that is not a GIS application like
ArcGIS Desktop. Serving maps and GIS functions to these clients greatly reduces the cost of extending
GIS throughout an organization. Once the server application is configured, new users can access the
system through a web browser with no additional cost and without installing software on the client
computer.
A general purpose map viewer can be built on the GIS server using a simple wizard. This application can
deliver maps and basic GIS tools, such as identify and search, to client web browsers. The maps to be
served can be configured and easily changed using ArcView or ArcEditor. The viewer can be made
available to any users who are on the same network as the GIS server and can be published to users in
other departments as network access is established.
Most clients will access the mapping through a web browser and view maps served from the GIS server,
while one or two users will edit the data directly. This strategy will minimize the need for additional GIS
client software licenses, minimize network traffic and improve application performance.
4.4.4.3. Integration
ArcGIS Server is highly-customizable and can serve applications that integrate with other data stores.
The applications are based on ASP.NET. The default applications can be customized using the wizards or
further customized by writing code. Other applications can even be customized to consume maps served
by ArcGIS Server.

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The Pictometry data is an excellent resource, especially for public safety. It represents the cutting edge in
aerial photography data and greatly enhances the City’s GIS catalog. The data is currently deployed
using the ArcGIS Pictometry extension. Pictometry is planning to release an extension to ArcGIS Server.
This product should be evaluated to see how it can be used to integrate the Pictometry data into ArcGIS
Server applications.
• Fully utilize the City website to provide comprehensive instructions to permit applicants.
Maintain comprehensive information for permit applicants in hard copy that is identical to web-
based data, including application documents.
• Provide permit-related forms available online for electronic completion and submission, or
downloadable forms for completion and submission of hard copies.
• Fully utilize office productivity tools to promote efficiency and accuracy of data and forms.
• Require mandatory technology training, specific to the trainees’ job task requirements.
• Implement use of mobile data devices for field use (laptops, notebook, PDA)
• Implement total case/permit management software, shared data, and interactive processing
between various City departments; evaluate the currently-owned Cartegraph software as the
permit management system.
• Identify specific technology requirements to enable the electronic capture of images and plans
submitted with permit applications for entry to the case management system and application
processing.
• Upgrade existing GIS technology to enterprise level.
• Create a centralized spatial data warehouse.
4.5. PROCESS
The proposed process flow, as shown in Figure 3, is one continuous progression of the permitting
application from origin to completion. The proposed workflow can move applications along in a more
timely manner than the current process.

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Figure 3:Proposed Permitting Process Flow
Waiver? Waiver Granted

Variance ?
Variance Granted
Administrative processing
Applicant Submits Application Reviewed for
Application Online Content & Tax Pymt for “Preapproval” Signoff Building Inspector Permit Issued
Content OK from External Departments ; Signoff-YES Reviews Approves-YES
w/Electronic Pymt Verfication
Planning & Zoning
Applicant visits Web Site

Signoff-NO
Approves-NO
Content Applicant
Applicant Resubmits Applicant Resubmits
Not OK Resubmits
Applicant Submits
Application In-person
Applicant obtains w/Payment
information for Application Returned to
Application Returned to Application Returned to Applicant with
application process
Applicant with Instructions Applicant with Instructions Instructions for
Applicant completes for Corrections for Corrections Corrections
application forms online
Work flow begins with applicants seeking guidance for the process by accessing the City website. With
one click, the applicant can view complete instructions for the planning and zoning, the building
construction and inspection, and all related reviews and sign-offs needed to complete their application.
Forms are available to download, complete and print for submission with plans, or where appropriate, to
submit directly online.
Applicants who appear at the Permitting Authority office are received by administrative staff persons
whose responsibilities include reviewing the application package against a checklist of required content.
The checklist is the same checklist provided on the Permitting Authority website. In the proposed
structure, AP/CSU staff members are the single point of contact for persons who are submitting or
seeking assistance with permit applications. The Unit facilitates processing of applications by external
departments. The AP/CSU is available during regular business hours (ex.8-4, 9-5).
Complete packages are logged into the case management system with a unique tracking number. Based
on the application content, administrative staff members determine which internal and external pre-
approvals or sign-offs are needed. Using the technology, all reviewers receive the application
simultaneously.
When applications encounter a roadblock to progress, the organizational component that identifies the
deficiency contacts the applicant, describes the concern and provides direction for corrective action. The
corrected application reenters the flow at the same point where it was redirected to the applicant, through
the AP/CSU. The AP/CSU directs the corrected application package to the proper department or office.

SUBMITTED TO
Each step of the process is logged and tracked using case management software. Each station along the
process path has access to all applicable data associated with the application or required from external
departments to successfully complete the application and issue the permit.
4.5.1. Subcontractor Permitting

Using technology, subcontractors should be able to obtain permits without appearing in person to apply.
Once a building permit has been issued, subcontractors (such as HVAC, plumbers, and electricians) can
add themselves to a project. Applications can be filed, and fees can be paid online. The practice is
supported by maintaining subcontractor data, such as licenses and certifications, worker’s compensation,
licenses, and insurance to be on file with the City.
4.5.2. Interagency Communication

Communication between the City departments and offices is limited. Comments from several
departments indicated they are not copied on input from other departments and are often unaware of their
comments. Additionally, they are unaware of the final approval of the project and what recommendations
or restrictions are included.
Kimball personnel observed duplication and wasted effort in some review activities because well-defined
guidelines for the reviewing departments are not always provided. For example, the police department is
not only conducting a traffic study for a proposed business but also reviewing the parking area, the signs
used and the project from a crime prevention perspective. Meanwhile, the City engineer is reviewing the
parking and lighting to confirm it meets the necessary standards. The fire marshal may also be reviewing
the parking area to confirm the apparatus can enter and exit the area and if the appropriate fire lanes have
been provided around the building. The Planning and Zoning Department does not need or use most of
the review data generated in this scenario.
Communication, both written and verbal, could alleviate these situations. Team meetings could be used
for forming the written guidelines that participating groups utilize. Once the team is aware of how the
participation of each affects the project review, they can go about their tasks and be able to communicate
with each other as to the impact of changes on another group.
The final approved plan should be available to all departments and offices that provide input to the
approval for a project. A central repository for final approved plans can provide such availability. If
supported by technology, such as an enterprise GIS system and case management software, the
departments can have the approved final plans available for future reference.
4.5.3. Environmental Factors

A majority of the City departments are located in the Parsons Government Center in downtown Milford.
City offices are located on both floors of the building, which has multiple entry/exit points that are open
to the public, although there is not one identified as a main entrance. There is a receptionist area near one
entrance that is staffed on a part-time basis. There is an outdated directory near the receptionist area, and
occupants are also identified by plaques placed on the wall near their respective offices. The building is
left unlocked a majority of the time as an apparent concession to the heavy access and use of the building.

SUBMITTED TO
Parking near the Parsons Government Center is at a premium and consists for the most part of two- or
three-hour designated spaces.
To better utilize the receptionist, a main entrance could be established. The main entrance could be
coordinated with parking at the Parsons Government Center. If a main entrance were to be established,
other entrances could be secured as exit only. The receptionist area could be used as a security point for
visitors during normal business hours.
Identification of the offices can be improved. Instead of plaques placed on the wall, overhead signs
perpendicular to the wall would be an asset. If a color code system was implemented with the directory,
the overhead signs could also use the same colors. If possible, lettering should be large enough to read
from a distance within the hallway, allowing visitors to quickly determine if they are at or near the proper
location.
• Provide the ability to complete application forms online and transmit to the Permitting Authority.
• Provide the ability to download forms and submit in hard copy to the Permitting Authority.
• Implement process to review permit applications received by the AP/CSU by administrative staff.
Deficiencies in content are resolved by administrative staff.
• Enable subcontractors to obtain permits using an expedited application process based on an
existing prime contractor permit.
• Implement practice establishing responsibility for application processing with the Permit
Authority once an application is accepted by the Application Processing Unit. Administrative
staff facilitates reviews by external offices or departments, such as Tax Collector, Inland
Wetlands, Sewer, Fire, Police, etc.
• Ensure Inspectors only perform technical reviews of permit applications (not content) and field
inspections.
• Ensure professional staff members only perform tasks requiring professional stamps,
certifications, and/or seals.
• Establish practice to receive, review, plan and permit large projects by appointment.
• Establish practice to ensure an application returned for correction or additional information re-
enters the process at the point it left the process. It does not start over. Physical point of re-entry
is the AP/CSU.
• Institute the capability to share permit application data and approval status with all participating
departments for active and completed reviews.
• Once appropriate amendments are made to local ordinances and regulations are achieved, issue
permit administrative approvals of applications by certified professional staff meeting defined
criteria without requiring a commission / board review and approval process.

SUBMITTED TO
• Inspectors conducting inspections should complete the inspection from a standardized worksheet;
notate deficiencies and direct corrective action for all noted deficiencies. On return visits, only
the areas of noted deficiency should be inspected.
• Establish periodic meetings of representatives of all departments and offices engaged in the
permitting process for the purpose of identifying issues and roadblocks and developing solutions.
• Clearly define task requirements for external agencies for the permit application review. Ensure
regular communications to maintain effective process completion.
• Upgrade building access to improve parking for building visitors.
• Modify building access to limit public entry to a single entrance.
• Relocate the building information desk for easy access at the newly-designated public entrance
and extend hours to staff the desk during the full business day.
• Upgrade office signage to number department locations and modify sign placement to be visible
from the hall view.

SUBMITTED TO
5. CONCLUSION
Recommendations made in this report are based on Kimball’s analysis of current practice and practices in
other municipalities. Taking guidance from Mayor Richetelli to make the application process customer-
friendly, Kimball has addressed the project from organizational, technology, process and environmental
perspectives, compiling 41 recommendations ranging from organizational restructuring to improving
access to the Parsons Government Center.
Kimball’s recommendations range from the complex, such as organizational restructuring, to simplistic,
such as improving signage at the Parsons Government Center.
Implementation of the recommendations will present many challenges. There may be resistance from City
employees who have performed their jobs for a significant amount of time. New levels of accountability
have also been suggested which will likely meet with resistance.
Management of the change, prioritizing the approach and achieving early, measurable successes will
contribute to the City’s ability to implement the recommendations presented in this report.
Addressing the changes following the continuous process improvement model will help focus and assure
steady progress without overwhelming the affected City personnel.
Kimball looks forward to providing additional support to the City to accomplish the goal of making the
land use and building construction and inspection permitting effective, efficient and customer friendly.

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Recommendations Report

Land Use and Construction Permitting

The City of Milford

1. EXECUTIVE SUMMARY ................................................................................................................................1

L. Robert Kimball & Associates, Inc., December 2008 © Page i

Process flow is an additional area representing an opportunity for improvement. Recommendations

L. Robert Kimball & Associates, Inc., December 2008 © Page 1

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Use data developed through the

Figure 1: Process Improvement Cycle 1

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4. LAND USE / BUILDING INSPECTION AND CONSTRUCTION

• The permitting process is a loosely-connected series of processes, operating independently.

4.1. DEFINING THE VISION AND MISSION

L. Robert Kimball & Associates, Inc., December 2008 © Page 5

4.2. RESTRUCTURING DEPARTMENTS

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Permitting Authority External

Application Processing - Inland Water

Figure 2 : Proposed Table of Organization

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4.3. REALLOCATION OF PERSONNEL RESOURCES

4.3.2. Administrative Personnel

L. Robert Kimball & Associates, Inc., December 2008 © Page 9

4.3.3. Job Descriptions

4.4.1. Office Productivity

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4.4.2. City Website

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4.4.3. Case / Permit Management

A custom GIS / mapping application can be built in

L. Robert Kimball & Associates, Inc., December 2008 © Page 12

4.4.4. Geographic Information System (GIS)

An enterprise GIS typically incorporates the following elements:

• The GIS server

4.4.4.1. ArcGIS Server Enterprise Software

L. Robert Kimball & Associates, Inc., December 2008 © Page 13

4.4.4.2. Distribution of GIS Applications

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Figure 3:Proposed Permitting Process Flow

Waiver? Waiver Granted

Applicant visits Web Site

L. Robert Kimball & Associates, Inc., December 2008 © Page 16

4.5.1. Subcontractor Permitting

4.5.2. Interagency Communication

4.5.3. Environmental Factors

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