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Audit of the Stop Program

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DEPARTMENT OF PUBLICWORKS, BRANCH LIBRARY IMPROVEMENT PROGRAM:DPW Needs to Ensure Contract Terms Are Consistent With Actual Practices and ProceduresAugust 27, 2009City and County of San FranciscoOffice of the Controller – City Services AuditorxxxxxxxxCONTROLLER’S OFFICECITY SERVICES AUDITORThe City Services Auditor was created within the Controller’s Office through an amendment to the City Charter that was approved by voters in November 2003. Under Appendix F to the City Charter, the City Services Auditor has broad authority for:Reporting on the level and effectiveness of San Francisco’s public services and benchmarking the city to other public agencies and jurisdictions.Conducting financial and performance audits of city departments, contractors, and functions to assess efficiency and effectiveness of processes and services.Operating a whistleblower hotline and website and investigating reports of waste, fraud, and abuse of city resources.Ensuring the financial integrity and improving the overall performance and efficiency of city government.The audits unit conducts financial audits, attestation engagements, and performance audits. Financial audits address the financial integrity of both city departments and contractors and provide reasonable assurance about whether financial statements are presented fairly in all material aspects in conformity with generally accepted accounting principles. Attestation engagements examine, review, or ...
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DEPARTMENT OF PUBLIC
WORKS, BRANCH LIBRARY
IMPROVEMENT PROGRAM:
DPW Needs to Ensure Contract
Terms Are Consistent With Actual
Practices and Procedures
August 27, 2009
City and County of San Francisco
Office of the Controller – City Services Auditorx
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CONTROLLER’S OFFICE
CITY SERVICES AUDITOR
The City Services Auditor was created within the Controller’s Office through an amendment to the
City Charter that was approved by voters in November 2003. Under Appendix F to the City Charter,
the City Services Auditor has broad authority for:
Reporting on the level and effectiveness of San Francisco’s public services and
benchmarking the city to other public agencies and jurisdictions.
Conducting financial and performance audits of city departments, contractors, and functions
to assess efficiency and effectiveness of processes and services.
Operating a whistleblower hotline and website and investigating reports of waste, fraud, and
abuse of city resources.
Ensuring the financial integrity and improving the overall performance and efficiency of city
government.
The audits unit conducts financial audits, attestation engagements, and performance audits. Financial
audits address the financial integrity of both city departments and contractors and provide reasonable
assurance about whether financial statements are presented fairly in all material aspects in
conformity with generally accepted accounting principles. Attestation engagements examine, review,
or perform procedures on a broad range of subjects such as internal controls; compliance with
requirements of specified laws, regulations, rules, contracts, or grants; and the reliability of
performance measures. Performance audits focus primarily on assessment of city services and
processes, providing recommendations to improve department operations.
We conduct our audits in accordance with the Government Auditing Standards published by the U.S.
Government Accountability Office (GAO). These standards require:
Independence of audit staff and the audit organization.
Objectivity of the auditors performing the work.
Competent staff, including continuing professional education.
Quality control procedures to provide reasonable assurance of compliance with the auditing
standards.
Audit Team: Robert Tarsia, Deputy Audit Director
Sally Pearce, Audit Manager
Rob Malone, Associate Auditorx
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City and County of San Francisco
Office of the Controller – City Services Auditor
Department of Public Works, Branch Library Improvement Program: August 27, 2009
DPW Needs to Ensure Contract Terms Are Consistent With Actual
Practices and Procedures
Purpose of the Audit
The purpose of this audit was to determine if Huey Construction Management Co., Inc. (MHC) complied with
construction contract terms and conditions in its work on the West Portal Branch Library construction project,
and to evaluate the extent to which the Department of Public Works (DPW) provided sufficient project
management oversight in accordance with contract provisions. The audit period covered the time from receipt
of MHC’s bid documents on October 6, 2004, through the execution of final closeout documents and final
payment to MHC on June 20, 2008.
Highlights Recommendations
The renovation of the West Portal Branch Library is part of The audit report includes 27 recommendations
the City’s Branch Library Improvement Program (BLIP). for the DPW to improve administration of
The West Portal Branch Library closed for renovation on construction contracts for BLIP projects.
December 19, 2004, and re-opened on February 10, 2007.
DPW should:
Library patrons, staff, and other stakeholders have
indicated that they are satisfied with the results of the Either issue MHC a documented non-
renovation. compensatory time extension, or require
MHC to pay the City $405,000 in liquidated The audit found that certain DPW and MHC processes
damages.were not consistent with contract terms and conditions.
The audit team identified the following: Ensure that all procedures included in
construction contracts are followed by both
The final completion date approved by DPW was not
DPW and the contractors during the
granted in accordance with contract requirements, and
execution of a project.
it is unclear why the contractor was not assessed
$405,000 in liquidated damages. Ensure that all detailed procedures included
in contract specifications are applicable to
Approval of monthly applications for payment with no
the project.
or incomplete supporting documentation.
Document confirmation contractor insurers
Approval of incomplete certified payroll submissions
are registered in California.
Approval of change orders without detailed cost
Verify the financial stability of contractors’
information required by the contract.
bond surety companies is compliant with
Confirmation of the state registration of an MHC contract requirements.
insurer was not performed, and approval was given to
Consider setting agreed-upon criteria for
a noncompliant bond surety company.
defining a “small” project and creating a
contract template that is specific to these Compensation paid to certain subcontractor
employees was not in accordance with prevailing small projects, so that the task of
wage scheduled rates. customizing a contract for an individual
small project is not onerous.
Copies of the full report may be obtained at:
Controller’s Office ” $&FWW3”6FRFHQLVUOD)DQ D
or on the Internet at http://www.sfgov.org/controller
”&+DOW5RRLO\P&DUO'”RQUW*% RRGO HPage intentionally left blank.CITY AND COUNTY OF SAN FRANCISCO
OFFICE OF THE CONTROLLER Ben Rosenfield
Controller
Monique Zmuda
Deputy Controller
August 27, 2009
Edward D. Reiskin, Director
San Francisco Department of Public Works
City Hall, Room 348
1 Dr. Carlton B. Goodlett Place
San Francisco, CA 94102
Luis Herrera, City Librarian
San Francisco Public Library
100 Larkin Street
San Francisco, CA 94102
Dear Mr. Herrera and Mr. Reiskin:
The Controller's Office, City Services Auditor, presents its audit report regarding the construction
contract with Huey Construction Management Co, Inc. (MHC) for the completion of the West Portal
Branch Library renovation project. The construction contract was entered pursuant to an agreement
between the Department of Public Works (DPW) and the Library Commission for oversight and
management of projects that are part of the Branch Library Improvement Program (BLIP). The audit
evaluated compliance with the construction contract and established construction management
procedures by both DPW and MHC.
The audit found that certain DPW and MHC contract and construction management practices were
not consistent with contract terms and conditions or with DPW’s own established procedures. The
audit includes 27 recommendations for DPW to improve its contract administration and construction
management processes.
DPW’s response is included as Appendix A to this report. We appreciate the assistance and
cooperation that staff of DPW, BLIP, and MHC provided to us during the audit.
Respectfully submitted,
Tonia Lediju
Director of Audits
cc: Mayor
Board of Supervisors
Civil Grand Jury
Budget Analyst
Public Library
415-554-7500 City Hall 1 Dr. Carlton B. Goodlett Place Room 316 San Francisco CA 94102-4694 FAX 415-554-7466Page intentionally left blank.TABLE OF CONTENTS
Introduction .........................................................................................................................1
Audit Results.......................................................................................................................7
Finding 1. BCM and MHC used certain procedures that were not
compliant with the detailed requirements of the contract............................................8
Finding 2. The substantial and final completion dates approved by
BCM were not made in accordance with contract guidelines ...................................10
Finding 3. MHC did not submit required certified payroll reports and
BCM approved these incomplete submissions.........................................................13
Finding 4. Thirty-four of forty-one change order proposals prepared by
MHC and approved by BCM did not include required detail, and/or did
not have required documentation attached ..............................................................14
Finding 5. BCM did not approve change orders in a timely manner ........................15
Finding 6. BCM and MHC did not document adherence to the detailed
submittal, testing, and materials requirements outlined in the contract.....................16
Finding 7. The DPW Contract Administration Group did not confirm
whether one of MHC’s insurers was registered in California and
approved a noncompliant bond surety company......................................................18
Finding 8. MHC did not adequately monitor its subcontractors’
renewals of their insurance, contractor’s license, and City business
tax registration.........................................................................................................19
Finding 9. MHC overcharged the City by $1,078 due to improper
change order calculations........................................................................................20
Finding 10. MHC made changes to schedule of value line Item
amounts without notifying BCM................................................................................20
Finding 11. MHC did not provide sufficient oversight to ensure that its
subcontractors compensated employees at prevailing wage rates.
MHC also did not ensure adherence by two subcontractors to significant
administrative requirements of the contract .............................................................21
Finding 12. BCM’s internal payment records for the project are not accurate..........22
Appendix A – Department Response.............................................................................A-1LIST OF ACRONYMS
BCM Department of Public Works’ Bureau of Construction Management
BLIP Branch Library Improvement Program
CSA City Services Auditor
DBI Department of Building Inspection
DPW Department of Public Works
FY Fiscal Year
MHC Huey Construction Management, Inc.
MOU Memorandum of UnderstandingOffice of the Controller, City Services Auditor
DPW Needs to Ensure Contract Terms Are Consistent With Actual Practices and Procedures
INTRODUCTION
Audit Authority This audit was conducted under the authority of the Charter
of the City and County of San Francisco (City), which
requires that the City Services Auditor conduct periodic,
comprehensive financial and performance audits of City
departments, services, and activities.
Background The Branch Library Improvement Program (BLIP) is a bond
program established to upgrade and restore the City’s
Branch Library Improvement branch libraries. Upgrades include seismic safety, customer
Program accessibility, technological advances, and facility
restoration for code compliance. In November 2000, San
Francisco voters authorized $106 million for the BLIP by
passing Proposition A. In November 2007, voters
authorized Proposition D, which extended the existing
Library Preservation Fund authorized in the City Charter
through fiscal year (FY) 2022-23. Proposition D authorized
the City to issue additional bonds to help fund branch
library improvements.
The City’s Administrative Code requires that the
Department of Public Works (DPW) contract for the
completion of BLIP construction projects because the San
Francisco Public Library (Library) is not authorized to
contract independently for this type of work. The working
relationship between the Library and DPW is codified in a
memorandum of understanding (MOU) between both
departments. The main purpose of the MOU is to establish
a baseline management plan by which the budget, revenue,
schedule, and scopes of work of BLIP projects are to be
managed. The initial MOU was operative during the West
Portal Branch Library Renovation and approved in June
2002. A revised MOU was adopted in May 2008 to
incorporate the CSA’s September 2007 audit
recommendations concerning BLIP’s program management
procedures.
DPW’s program management team consisted of three full-
time employees led by a program manager who is
responsible for oversight of the entire BLIP, which consists
of five new libraries, 19 branch renovations, and a support
services center. The program manager reports to the
bureau manager of DPW’s Bureau of Project Management
(BPM). To initiate a project, the DPW Contract
1Office of the Controller, City Services Auditor
DPW Needs to Ensure Contract Terms Are Consistent With Actual Practices and Procedures
Administration Group prepares contract documents,
confirms adherence to bid requirements, and issues the
official notice to proceed to a project’s contractor. Once a
contract is awarded, DPW assigns a construction manager
from the Bureau of Construction Management, assisted by
a resident engineer, to oversee the construction phase. The
resident engineer is responsible for ensuring adherence to
both the terms of the contract and to DPW’s established
procedures.
EXHIBIT 1 West Portal Branch Library
Source: CSA original photo.
West Portal Branch Library This audit addresses the detailed project management
renovation activities of the West Portal Branch Library renovation
(West Portal) project, as these activities relate to the MOU
and the construction contract for a specific BLIP project.
After discussion with BLIP regarding all library renovation
2

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