report on staffing and organization of the property standards...

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Report on Staffing and Organization of the Property Standards Division Metropolitan Government of Nashville & Davidson County, Tennessee December 20, 2016

790FrontageRoadSuite110Northfield,Illinois60093(847)441-4175

www.fiscalchoice.com

MetropolitanGovernmentofNashvilleandDavidsonCounty,TennesseeReviewofPropertyStandardsDivisionStaffing

TableofContents

1. ExecutiveSummary......................................................................................................................3

2. PurposeoftheProject.................................................................................................................6a. CouncilRequest.............................................................................................................................6

b. Mayor’sResponsetoCouncilRequest....................................................................................7c. ScopeofReview..............................................................................................................................7

3. TheStatusQuo...............................................................................................................................8

a. MetroNashville’seffortsincomparisontopeers...........................................................114. ShortTermRentals....................................................................................................................12A. HOSTCompliance................................................................................................................................15B. Hotel/MotelTaxReceipts.................................................................................................................15

5. Councilcommentsonenforcementofpropertystandardscode...............................17

a. Differencesbetweengeographicareas...............................................................................19

b. Codes&BuildingSafetyJobDescriptions..........................................................................20c. CoordinationwithotherunitsofMetroGovernment....................................................21

d. StayingCurrentwithRuleChanges......................................................................................214. Nashville’sGoalsandLessonsfromPeers.........................................................................22

a. Howpeersaccomplishthesamegoals................................................................................23

5. Recommendations.....................................................................................................................24a. Staffsize(numberbyjobtitle)..............................................................................................24

i. Comparisonstoothercommunities......................................................................................24ii. Loanfund......................................................................................................................................24

iii. Operationalreviewandrecommendations.....................................................................25

b. Organizationstructure.............................................................................................................26c. Shifts...............................................................................................................................................27

d. Reports..........................................................................................................................................28

e. CustomerServiceOrientation................................................................................................28f. CodesOffenderSchool...............................................................................................................30

g. Training.........................................................................................................................................31h. CoordinationwithMetroPolice............................................................................................32


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i. Languageneeds(esp.Spanish)...............................................................................................33

j. Balancingreactive(complaint-driven)andproactiveefforts.....................................33k. ChangetheProcessforHighWeedsandGrassandAbandonedVehicles...............34

i. HighWeedsandGrass...............................................................................................................34ii. AbandonedVehicles..................................................................................................................34

l. EnactinganAdministrativeHearingOfficerinLieuofEnvironmentalCourt........35

m. PerformanceMetrics...............................................................................................................38AppendixI RequestsforServiceMapsAppendixII IndianapolisChartsAppendixIII ListofInterviewsAppendixIV PropertyStandardsDivision–FlowChartandComplaintProcessAppendixV DataManagementReportingElements


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1. ExecutiveSummaryPeoplewhodonotmaintainorusetheirpropertyaccordingtoestablishedordinancesmayinfringeontherightsofneighbors.InMetroNashville/DavidsonCounty,enforcementofrelevantordinancesisthedutyofseveralunitsofMetroGovernment,butprincipally,ofthePropertyStandardsDivision.TheDivisionisaunitoftheDepartmentofCodes&BuildingSafety.Neighborconflictsarealwaysasourceofconcern,butoneemergingissue–increasingimpactofshort-termrentalproperties–hasraisedthevisibilityofthisissue.ThisreportisoneelementofMetroGovernment’sattempttoreacheffectiveenforcementofpropertystandardscodesinawaythatisfairbothtopropertyownersandtotheirneighbors.Thereportmakesrecommendationsonstaffsize,organizationstructure,workshifts,processes,anduseoftechnology.Thepolicydebateaboutshort-termrentalpropertiesislively.Weareawareofbothactivelitigationandpendinglegislationaddressingshort-termrentals.Thisreport,however,isbasedonthecurrentsituation,asofNovember2016.Itisnotthepurposeofthisreporttoaddressorresolvethelegislativeorlitigationissues,norisshort-termpropertyrentalthesolefocusofthisreview.Insomecases,wedonotbelievethatthePropertyStandardsDivisioncanaddressalloftheissuesraisedinourresearch.WeidentifyproblemswherethesolutionwouldrequireotherfunctionsinMetroGovernmenttohelportakethelead.Astoshort-termrentalproperties,oncetheyarepermitted,neighborsmakingcomplaintswillfacealengthydueprocessperiodwherereliefisuncertain.KeyFindingsandRecommendationsThefollowingtablepresentskeyfindingsinthefollowingareas:

• Staffing• Operations• Automation• CoordinationwithOtherMetroAgencies• PerformanceManagement

Somefindingsoverlaptheseareas.Wealsosummarizerecommendationsrelatedtoeachfindingandsuggestwhoshouldberesponsibleforimplementingorservingastheleadoneachrecommendation.


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Table1–SummaryofFindingsandRecommendationsFindings Recommendations ResponsibilityStaffing PropertyStandardshadseveralstaffingvacanciesforInspectorsandCustomerServiceRepresentatives.

PropertyStandardsshouldpromptlyfillallvacanciesaswellasaddsevenmorepositions(5PropertyStandardsInspectors,1OfficeSupportRepresentativeand1DataAnalyst)

Director,Codes&BuildingSafetyAssistantDirectorforPropertyStandards

Automation PropertyStandardslacksthetechnologytoefficientlyidentifyunpermittedshort-termrentalpropertiesandtoestimatethehotel/moteltaxesduefrompermittedandunpermittedproperties.

MetroGovernmenthasidentifiedandshouldacquireasoftwaresolutiontoidentifyshort-termrentalpropertiesandthehoteltaxestheyowe.ThiswillalsopermitMetroGovernmenttoissuefinesforoperatingsuchfacilitieswithoutapermit.

FinanceInformationTechnologyPropertyStandards

PropertyStandardshasanonlineformtoreportrequestsforservice(i.e.,complaints),butthatformhasdeficiencies.Itdoesnotallowareportofallofthesuspectedcodeviolationsatanaddress.ItdoesnothavealookupfunctionthatprovidestheCouncildistrictnumberforgivenstreetaddresses.TheseconditionsmeanthatthefullnatureofcodeviolationsmaybeunderreportedandthatCouncilmemberscannoteasilyfindwhatissuesexistintheirdistricts.

PropertyStandardsshouldworkwithMetroInformationTechnologytoexpandthefunctionalityoftheonlinecomplaintformsothatmorecomplainttypescanbereportedinoneincidentreportandtheMetroCouncilDistrictcanbeidentified.

AssistantDirectorforPropertyStandardsInformationTechnology

Operations Afteracitizenfilesacomplaint,itisdifficulttolearnthestatusofthecomplaint.

EitherbypostingthestatusofresponsetorequeststotheWeborotherwisenotifyingthosewhobringproblemstoitsattention,theDivisionshouldkeepthesepeopleinformed.ThiswilladdressthecurrentsituationwheresomepeoplewonderiftheDivisioncaresaboutandtakesactioninresponsetotheircomplaints.Ingeneral,wefindthatthecurrentsystemisskewedmoretowardprotectingtherightsofpropertyownersagainstunjustifiedcomplaintsthanitistowardprovidingrelieftoneighbors.Weurgeabalanceofthosetwointerests.BroadcastingavailabilityofthisonlineupdateservicewillencouragemorecomplaintstobefiledthroughMetro’sonlinesystem

PropertyStandardsDivisionInformationTechnology

WhilePropertyStandardsreportsthatitrespondsto69%ofallRequestsforServicewithin3days,theseresponsesarereactiveandinitiatedthroughcitizencomplaints.AproactiveapproachofmonitoringDistrictsforviolationsrelatedtohighgrass/weeds,trash,abandonedcars,andillegalsignsmayreducethenumberofcitizencomplaints.

ThePropertyStandardsDivisionshoulddirectallinspectorstodedicate20percentoftheirworkyeartoproactiveinspections,insteadofthecurrentnearlyexclusiveeffortinresponsetoservicerequests.Thisisnotpossiblenowforlackofadequatestaff.TheFlexTeam,whichistaskedwithproactivework,neednotremainanindependentunit,butmaybefoldedintothegeographic-basedBlueandRedteams.Thiswillalloweachinspectortocoverasmallerterritory,buttoenforceordinancesmoreintensively.

AssistantDirectorforPropertyStandards

AconstructionboomplacesincreasingdemandsontheDirectorofCodes&BuildingSafety,particularlyforthelargestprojects.Itis,ofcourse,vitalthatthoseprojectsbebuiltaccordingtoBuildingCode,butthedemandsofthiseffortdiminishtheDirector’stimeavailableforoversightofthePropertyStandardsDivision.Inthenearterm,theremaynotbeasuccessfulremedy.

SinceakeycomponentofthepositionofDirectorofCodes&BuildingSafetyistofocusonpolicy-relatedmattersandexecutive-leveladministration,itmaybenecessarytoprovideadditionalproject-levelresourcesinbuildingpermitreviewandconstructionoversightsothattheDirectorcandelegateday-to-dayactivitiesandfunctionmoreinanoversightrolefortheentiredepartment.

MayorCodes&BuildingSafety

Onereasonforpoormaintenanceofapropertymaybefinancialdistressofthepropertyowner.

MetroGovernmentmightcapitalizeasmallpropertyrepairloanfund,withliensonpropertiesreceivingfinancing.

Mayor’sOfficeFinancePropertyStandards

Dependingonvehicleage,statusoflicenses,condition,andwherethevehicleisparked,responsibilityforthe

WherePropertyStandardsisresponsibleforthevehicle,developaprocess–mostlikelybyvendorcontracts-totowabandonedvehicles

FinancePropertyStandards


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Findings Recommendations ResponsibilityvehiclecanbewithPropertyStandardsorMetroPolice.

toastoragelot.Consistentwiththepracticeofmanyotherlocalgovernmentsnationally,ownersmayretrievetheirvehiclesbypayingfinesandtowingfees.Iftheydonotseekreturnoftheirvehicleswithinareasonabletimeperiod(e.g.,30days),MetroGovernmentshouldthendemolishthevehicle.

WhilethethreatofenforcementbyorderoftheEnvironmentalCourtisreal,inpractice,itisalmostneverused.Ofapproximately18,000annualrequestsforservice(2015)toPropertyStandards,fewerthan200caseswenttoEnvironmentalCourt.Evenfewerofthoseresultedinsanctionsforviolatingcode.MostcaseswentontheWarrantDocket.Byfar,themosteffectivetooltoresolveamatterispropertyownerresponsetoaNoticetoAbateacodeviolation.Astoshort-termrentalproperties,nopropertyownerhashadapermitrevokedforcodeviolations,whichdoesnothelptoincentivizethedesiredbehaviors.

PropertyStandardsshoulduseautomatedtoolsto:

• Identifyunpermittedshort-termrentals• Collectdataontheextentofthenon-compliance• Initiatefinesuntilthepropertyispermitted• Estimaterentalactivityforpermittedandunpermitted

properties• Compareestimatedrentalactivitywithhotel/moteltax

receiptsfromtheproperty• Supportlegalactiontorecoupunreportedtaxincome

LawDepartmentFinancePropertyStandards

In2015,CouncilauthorizedthecreationofaCodesOffenderSchool.Theprogramisnotyetinoperation.

Procurementforavendortooperatetheprogramisunderwayand,despitedelaysingettingtothispoint,isexpectedtoresultinacontractawardinFebruary2017.

PropertyStandardsLawDepartment

CoordinationwithOtherMetroAgencies MetroPolicewritesSafetyHazardNotificationcitationsfornoiseandillegalparking,butdoesnotprovidetheseinelectronicformtoPropertyStandards.ThiskeepsPropertyStandardsinthedarkaboutviolationsthatmightotherwisealloweffectiveenforcementofordinancesforshort-termrentalproperties.

• PropertyStandardsshouldcontactMetroPolicetodiscussmodifyingitsForm271toincludeNoiseandParkingasviolationtypesandprovideallsuchreportstoPropertyStandardsinelectronicformat.Thesechangesmayinvolvecomputersystemmodificationsandtrainingmaterials.

• PropertyStandardsshouldcompareallnoticestoitsshort-termrentalfileandtrackthenumberofviolationsbyaddresssoitcaninitiatepermitsuspensionproceedingswhenwarranted

MetroPolicePropertyStandardsInformationTechnology

PropertyStandardswritesNoticesofAbatementforhighgrassandweeds.PublicWorksisnotauthorizedtomowonprivateproperty.

PropertyStandardsshouldcontractwithcommerciallandscapingservicesandissueworkordersformowing.PropertyStandardsshouldcontacttheLawDepartmenttodeterminehowthecommercialservicescanaccessprivateproperty.PropertyStandardsshouldforwardtheinvoicetothepropertyowner.Ifunpaidafter90days,Metroshouldplacealienontheproperty.

PropertyStandardsLawDepartment

PerformanceManagement TheDivisionisnotcurrentlyreviewingitsowndatatoidentifytrendsandreporttotheMayorandCouncil.ThiswouldbeadutyoftheproposednewDataAnalystposition.ThatpositioncanalsoworkwithotherunitsofMetroGovernmentsothatdataflowsbetweenMetrodepartmentswillimprove

TheDivisionshouldassignafull-timeDataAnalysttomanagealldatareportingfunctionswithintheDivision,includingreportingtoelectedofficialsandthepublic.

PropertyStandardsDivisionInformationTechnology


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2. PurposeoftheProjectMetroGovernmentbalancestherightsofpropertyownersandneighborsthroughordinancesandenforcementefforts.Theimpetusforregulationiswhenapropertyowner’suseofprivatepropertyinfringesontherightsofadjacentpropertyownerstothequietandhealthyenjoymentoftheirownproperties.ThePropertyStandardsDivisionintheDepartmentofCodes&BuildingSafetyhasprincipalresponsibilityformanyoftheseefforts,includingmonitoringandenforcementofrequestsforservice.ThenumberofenforcementareashasexpandedinrecentyearstonowincludeHealthandShort-TermRentals.Previously,focusareaswere:

• EnforcementoftheMetroPropertyStandardsCode,including:o Highgrassandweedso Junk,debrisandtrasho Abandonedvehicleso Short-termrentalproperties

• InspectionsforenforcementoftheZoningCodeMetroNashville’sPoliceDepartmentalsoplaysakeyroleintheseactivities,beingprincipallyresponsibleforrespondingtocallsregardingnoise,trafficandparking.

a. CouncilRequestOnSeptember20,2016,28membersoftheMetroCouncilwrotetoMayorMeganBarryexpressingconcernaboutshort-termrentalpropertyenforcement.CouncilspecificallyaskedtheMayortoconsideroptionstoimprovetheenforcementofpropertystandardsordinancesandtodosoquickly.WeinterviewedseveralmembersoftheMetroCouncil(AppendixIII).Wepromisednottoattributecommentstoanyoneinawaythatwouldallowthereadertoidentifythespeaker.Theseinterviewsrevealedthata)propertystandardsconcernsarenotlimitedtoshort-termpropertyrentals,b)propertystandardsissuesarethesinglemostfrequentreasonthatcitizenscalltheirCouncilmembersandc)ofallpropertystandardsissues,short-termrentalpropertyconcernsarethemostcommonforsomeDistrictsinornearDowntownandLowerBroadway.Thefrequencyofrequestsforservicerelatedtoshort-termrentalshasincreasedtothepointwhereCouncilislookingtotheMayorforadditionalemphasisonenforcingtheordinances.


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b. Mayor’sResponsetoCouncilRequestMayorBarryrespondedtotheCouncilrequestwithaletterdatedOctober6,2016.TheresponseaddressednotonlytheMayor’sintenttorespondtoCouncil’surgentconcernaboutshort-termrentalpropertyenforcement,butalsotoreviewthePropertyStandardsDivisionaltogether.AstheDivisionhasmanyduties,itisimportantthatanyimprovementstoshort-termrentalpropertyenforcementbebalancedwithdiligentattentiontotheotherdutiesoftheDivision.

c. ScopeofReviewThisreviewisintendedtoproviderecommendationsforeffectiveenforcementofcodesrelatedtopropertystandards.Insomecases,thisalonemaynotsufficetoaddressallresidentconcerns.ThisreportaddressesallofthedutiesofthePropertyStandardsDivision,notjustshort-termrentalpropertyenforcement.Wereviewedtheworkloadforvariousactivitiesanddevelopedstaffingrecommendationsthataddress:

• ThenumberofpeopleneededintheDivision• Geographicandshiftassignments• Useofdatatoalignstaffwithworkload• Howtotransformfromacomplaint-drivenprocesstoonethatalsoincorporates

proactiveeffortsAllmembersofCouncil,citizensandMetrostaffthatweinterviewed–includingCodesofficialsandstaff-expressedabeliefthattheDivisiondoesnothaveenoughpeople.(Codeshadpreviouslydeclinedoffersforadditionalstaff.)Noneofthosewespokewithhadquantifiedhowmanyadditionalstaffwouldbenecessary.Thisreportisanattempttoanswerthatquestion,alongwithcommentsonhowtoimprovetheeffectivenessoftheDivision’sefforts.Thisreviewincludedinterviewswithpeoplefromthefollowingorganizations:

• PropertyStandardsDivisionstaffandsupervisors• CouncilMembers• FinanceDepartment• LawDepartment• Mayor’sOffice• EnvironmentalCourt• CommunityStakeholders• Airbnb.com• HomeAway• HOSTCompliance(softwareprovidertocitieswithshort-termrentalproperties)


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SeeAppendixIIIforacompletelistofinterviews.Metroidentifiedseveralpeercommunitiesandaskedustocontactthemtocollectdataontheirapproachestocommonproblems.WeinterviewedrepresentativesinAustin,TX:Chattanooga,TN;HamiltonCounty,TN;andIndianapolis,IN.WealsocontactedCharlotte,NC;Knoxville,TN;Louisville,KY;andMemphis,TNbutwewerenotabletointerviewrepresentativesfromthosecitieswithinthetimeframeallottedforthisstudy.

3. TheStatusQuoWhilethepopulationservicehasgrownrapidly,staffinghasnotkeptpace.Worse,authorizedpositionshavebeenvacantinbothPropertyStandardsaswellasCodes&BuildingSafety.FindingqualifiedpersonnelforthesepositionsisnotaproblemuniquetoNashville.Localgovernmentsinmanyregionshavedifficultyfillingsimilarpositions.TheGreatRecessionresultedinmanyqualifiedpeopleleavingthebuildingtrades.CombinedwithrecentincreasesinbuildingactivityinNashville,ithasbecomehardertofillthesepositionsandretainqualifiedpersonnel.InCodes&BuildingSafety,vacancieshaverangedfrom8(8%)to16(15%)inthepastyear(datafromMetroFinanceDepartment).

Table2Codes&BuildingSafetyStaffing

MonthBudgetedPositions Vacancies Percent

Jul-15 104 15 14.4%Aug-15 104 14 13.5%Sep-15 104 13 12.5%Oct-15 104 13 12.5%Nov-15 104 10 9.6%Dec-15 104 8 7.7%Jan-16 104 9 8.7%Feb-16 104 11 10.6%Mar-16 104 11 10.6%Apr-16 104 9 8.7%May-16 104 9 8.7%Jun-16 104 10 9.6%Jul-16 107 15 14.0%Aug-16 107 16 15.0%Sep-16 107 14 13.1%Oct-16 107 13 12.1%Nov-16 107 9 8.4%


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InPropertyStandards,asofOctober2016,therewerefourvacanciesoutof24authorizedpositions;Codesmovedtofillthesepositionswhileourreviewwasunderway.AsofearlyDecember,therewasonevacancy.ThefollowingchartdepictsthecurrentorganizationofthePropertyStandardsDivision.Highlightedboxesindicatevacantpositions.

Director,Codes&BuildingSafety AssistantDirector Chief,RedTeam Chief,BlueTeam Chief,FlexTeam Supervisor,CustomerService 1.Inspector 1.Inspector 1.Inspector 1.OfficeSupportRep2.Inspector 2.Inspector 2.Inspector 2.OfficeSupportRep3.Inspector 3.Inspector 3.Inspector 3.OfficeSupportRep4.Inspector 4.Inspector 4.Inspector 5.Inspector 5.Inspector 6.Inspector 6.Inspector Redshading=vacantposition Greyshading=vacanciesfilledOct--Dec2016VacancyrateasofDecember2016=4%

Sixteen(15filled)ofthe24authorizedpositionsareforInspectionstaff.Wenotethatwhenthisprojectbegan,thevacancyratewas17%,soitisclearthattheDivisionhassteppedupitshiringpace.TheinterviewsthatweheldacrossvariouslevelsofMetroGovernmentcreatedanimpressionofaDivisionthatisdominatedbyreactivework,withlittlestaffcapacitytoplanorreport.LaterintheRecommendationssectionofthisreport,wewillpresentthoughtsonhowtoincreasethestaffsizetogetabetterbalanceofreactiveandproactiveefforts.Recommendationsalsoaddresschangesinotherresourcesandworkmethods.


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Nashville’sconstructionboomimposesdemandsonthetimeofseniormanagementintheDepartmentofCodes&BuildingSafety,attheexpenseoftimeforPropertyStandardsmatters.SinceFY2010,permitactivityhasgrownasfollows:

Table3–BuildingPermitandConstructionValue

FY Permits ProjectValueAverageValue

PerPermit2010 10,980 $1,376,357,840 $125,3512011 7,660 $1,150,731,273 $150,2262012 11,051 $1,619,391,827 $146,5382013 9,710 $1,709,826,578 $176,0892014 11,027 $2,276,645,897 $206,4612015 12,389 $2,846,209,533 $229,7372016(est.) 12,779 $4,003,107,286 $313,257

ThegrowthinthenumberandsizeofprojectshasconsumedmoreseniormanagementtimeattheexpenseofPropertyStandards.SinceFY2010,thenumberofpermitshasincreasedby16percentwhiletotalprojectcostsjumped191percent.Theaveragecostperpermitincreased150percent.TemporaryservicesareavailableforplanreviewandinspectionbutthethesewillnotrelievetheCodesDirectorofthetimeneededtoworkwithelectedofficials,otherMetroagencies,anddevelopers.CouncilaskedtheDirectorofCodes&BuildingSafetyduringrecentbudgethearingsifhewantedmorestaff.TheDirectorrespondedthattheDivisioniscapableofdischargingitsdutieswithoutextrastaff.Thishassurprisedandfrustratedmanypeoplewhowantenforcementofpropertystandardstobeenhanced.Codeshassuccessfullyimplementedacommercialsoftwareapplicationtomanagethebuildingpermitprocess.ThisapplicationisalsousedtomanageRequestforService(RFS)andtheenforcementofthePropertyStandardsCode.Thisreducedpressuretoincreasestaffbecauseexistingstaffbecamemoreefficientthroughuseoftheapplication.However,therecentgrowthinlargeprojectscontinuestoraisethequestionabouttheneedforstaff.VacancieslimittheDivision’sabilitytomaintaintheservicesithasbeenproviding.Proactiveworkhasdwindledforlackofstaff.TheRedandBlueteamshavegeographicresponsibilitieswheretheirrespectiveregionsaredefinedbytheCumberlandRiver.TheFlexteamhandlesspecialsituations,includingshort-termpropertyrentalmatters.Laterinthisreport,wediscussaneedforadditionalpositions.ThisassumesthattheDivisionwillfillallvacanciesandtreatwithurgencytheneedtofillanyvacanciesthatmay


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occurduringtheyearinPropertyStandardsaswellasinotherpartsofCodes&BuildingSafety.Whileinspectorsoccasionallydrivewithtwotoacarforneighborhoodaudits,thebulkoftheworktheydorequiresthemtodrivetositesalone.Therefore,eachinspectorrequiresavehicle.Inspectorshavesubstantialofficetimeforphonecallsandemailsrelatedtothecasestheyareinvestigating.Theyareinthefieldapproximatelyfrom10:30AMuntil2:30PM.Thisisnotagreatdealoffieldtimeandwelookedforwaystoincreaseit.Inspectorshavenotebookcomputersandtabletswithembeddedaircards(i.e.,atechnologyallowingthedeviceaccesstotheInternetandemailatremotelocations).Webelievethatthismayallowmanagementtoexpectmorefieldtimeperinspector,althoughwhetherdataentryisdoneinthefieldorintheofficeisoflimitedsignificance.Webelievethatthecommunitywantsinspectorstobevisible,partlyfordeterrentvalue.Therefore,managementshouldurgeinspectorstospendmoretimeinthefieldthancurrentlyallotted.

a. MetroNashville’seffortsincomparisontopeers

Table4–ComparisonofInspectors

NumberofInspectors

Inspectorsper100,000population

Squaremilesperinspector

Nashville 16 2.35 32.88Austin,TX 65 6.97 4.18Chattanooga,TN 12 6.67 11.92Indianapolis,IN 30 3.97 12.4

Comparedtotheothercities,Nashvillehasfewerinspectorsonapopulationbasisandeachinspectorisresponsibleforagreatergeographicarea.Wedidnotpresentaveragesforthefourcommunitiesbecausethedutiesofeachofthepeersvaries,makingsucharatiolessrelevant.However,toreach6.5inspectorsper100,000population,Metrowouldneedtoaddmorethan20inspectors.Alltheadditionalpositionsthatwerecommendshouldbefilledassoonaspractical.


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4. ShortTermRentalsTherapidincreaseinthenumberofshort-termrentalpropertyunitshasreceivedmuchattention.Theopportunitytorentapropertyforincomeispotentiallylucrativeandhasincentivizedahugeincreaseinunitsavailableforrent–withandwithoutrequiredpermits.“Partyhouses”havehadasignificantnegativeimpactonsomeneighborhoods,effectivelyrezoningresidentialneighborhoodsintocommercialonesoutsideoftheestablishedrezoningprocess.ThesituationinNashvilleisprimarily,butnotexclusivelyintheurbancore(seeAppendixIformapsthatshowthenumberofRequestsforServicebyDistrictandyear;2016mapisthroughOctober).The“sharingeconomy”hasgrownrapidlyintheU.S.Short-termrentalpropertiesalonehaveincreaseddramatically.Datafromthetopfourshort-termrental-listingsitesshowsanincreasetonearly4millionunitsfromonly300,000in2008(HOSTCompliancepresentationtoMetroGovernment,page10,July2016).HOSTComplianceisaprivatelyheldSiliconValleybasedcompanythathasdevelopedasoftwaresolutionforshort-termrentalcompliancemonitoringforlocalgovernments.Itestimatesthatthereareabout4,600short-termrentalpropertiesinNashville/DavidsonCounty.Bycomparison,Metrohasissued2,051permitsandanother454applicationshavebeensubmitted(perPropertyStandardsDivisionreport,11/23/16).Ifthe4,600propertiesisareasonableestimate,thenthereareabout2,100propertiesoperatingoutsidethepermittingprocess.Ofthe2,051permits,Metroestimatesthat1,800areactiverenters.Somelandlordsarenotactiveenoughtomakeasignificantincomefromshort-termrentals,butothersearnthousandsortensofthousandsofdollarspermonth.Wesawevidenceofout-of-stateinvestorsexploringbuyingnon-owneroccupiedpropertiesinNashvillebecausetheopportunitycanbesolucrative.Inanefforttorestricttheimpactofshort-termrentalsonNashville’sneighborhoods,Councilimposedarestrictionofsupplythatlimitsnon-owneroccupiedunitpermitstothreepercentofthetotalhousingunitsinacensustract.Economicprinciplesteachusthatlimitingsupplyincreasespriceandthatincreasingpriceincreasesprofit.Whenprofitsincrease,sotoodoestheincentivetoenterthemarket–temptingsomepeopletooperateillegally.CombinedwithNashville’sreputationasa“fundestination”andthelimitednumberofexistinghotelrooms,thefinancialincentivetooperateashort-termrentalissignificant.Thereareapproximately27,100hotel/motelroomswithplansforanother12,110to12,448,short-termrentalsarefillingagapinvisitoraccommodations.AccordingtotheNashvilleConventionandVisitorsCorporation,thereare27,100hotelrooms-atotalof39,700intheNashvilleMSA.Metroestimatesthatthereare12,448hotelroomsunder


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constructionorintheplanningstage.TheNashvilleConventionandVisitorsCorporationestimateis12,110roomsunderconstructionorintheplanningstage.Short-termrentalpropertiesareclusteredclosertodowntownandlowerBroadway.CouncilDistrictsclosesttonightlifelocationshavemoreshort-termrentalappealtovisitors.However,in2013and2014therewerenospecific“STR”complaintsreported.In2015,therewereatotalof15.IfthecomplaintisrecordedasNoiseorTrashitmayberecordedassuch,whetherornotthepropertyisashort-termrental.Thiswouldrequirethatthecomplaintdatabasehavethecapabilitytomatchwiththeshort-termrentaldatabase.PropertyStandardshasincludedacodeforSTRcomplaintsintheCityWorkssystem;theKIVAsystemdidnotallowincludedasearchabledatafieldfortypeofviolation.Thereareapproximately2,000permittedshort-termrentalunitsinNashvillenow,ofwhichanestimated1,800havebeenactiveinrenting.AccordingtoareportprovidedbyPropertyStandards(11/23/16),thereare2,505short-termrentalunitsthatareauthorizedorhaveappliedforpermits.

Table5–Short-TermRentals:PermitsIssuedorAppliedForType Issued AppliedFor TotalShortTermRental–Multifamily 431 88 519ShortTermRental-Non-OwnerOccupied

916 176 1,092

ShortTermRental-OwnerOccupied

704 190 894

Total 2,051 454 2,505Estimatesofnon-permitted(unpermitted)unitsvaryfrom1,500to2,300,butsincetheyareoperatingwithoutproperpaperwork,thenumberofnon-permittedunitsissimplyanestimate.ThetablebelowusesHOST’sestimateof4,600,meaningthatthereare2,100short-termrentalsinMetrothatareneitherpermittedor“applicationpending.”WecomparedNashvilletoothermetroareasintermsofhowmanyshort-termrentalunits(permittedandnon-permitted)thereareineachcity.Theunitsbelowareestimatesbecausetherearenon-permittedunitsineverycity.(TheNashvilleestimatesrangedfrom4,200to4,600andcamefromseveralsources.TheAustinestimatesarefromtheCityofAustinandHomeAway.TheothersarefromHOSTCompliance.)


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Table6–Short-TermRentalsinNashvilleandOtherCities

City

EstimateofShort-termRentalUnits 2016Population

Unitsper1,000Population

Nashville 4,600 678,889 6.78Austin 1,200 931,830 1.29Ft.Lauderdale 7,000 165,521 42.29LosAngeles 26,000 4,011,000 6.48Toronto 5,000 2,790,000 1.79Vancouver 5,300 603,502 8.78

ThereasonwecomparedcitieswastolearnifNashville’ssituationdifferssignificantly.Onapercapitabasis(short-termrentalsper1,000population),NashvilleissimilartoLosAngelesandVancouver.HOSTestimatesthatFt.Lauderdalehasthemostunitsper1,000(onlyanestimated5%oftheunitsinFt.Lauderdalearepermitted).Nashvillecurrentlyhasapproximately27,100hotelrooms,butthereareanother12,448unitsinthepipeline.AccordingtoDavidsonCountyHotelDevelopmentPipelineReport(10/3/2016),thereare12,448roomseitherunderconstruction,inplanning,orunconfirmed.TheNashvilleConventionandVisitorsCorporationestimatesthenumberofnewroomsat12,110.ThenumberofexistinghotelroomsisfromtheNashvilleConventionandVisitorsCorporation.Atightsupplyofhotelroomsmayhaveincreasedthesupplyofshort-termrentalunits,asthemarketrespondedtoashortageoflodgingoptions.Asthenewhotelroomscomeonline,itwillbeinterestingtoobservetheimpactofthenewhotelroomsonthedemandforshort-termrentalunits.PropertyStandardsstaffalsoreviewsInternetadvertisementsforshort-termrentalpropertiesandattempttomatchtheinformationtopublicrecordstoseeiftheadsareforpropertieswithpermitstorent.Thisisaslowandpainstakingprocess,butitcanproduceresults.TheInternetadvertisers(e.g.,Airbnb,HomeAway)donotlistaddresses.(Duringourinterviews,theyindicatedtworeasonsfornotlistingaddresses:1)theydonotwantrentersgoingdirectlytothepropertyowner;2)theywanttohelpprotectthepropertybecausethepublicwillknowthatthepropertymaybevacantduringaspecifictimeperiod.)Advertisementsmaylistapropertyasbeingin“Nashville”wheninfactinmaybeinthemetropolitanarea,notinNashvilleitself.Thedivision’scurrentmanualsearchprocessinvolvesidentifyingadsonline,thentryingtodeterminetheaddress,andthencomparingtheaddresstoMetro’spermitfile.InSeptember2016,Codesreassignedastaffmembertoassistinthisprocess.Giventheshorttimeframe,therecouldnothavebeensignificantprogress.Inouropinion,withoutapropertyaddressorevenanexteriorphotoofthe


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property(short-termrentalservicestypicallyonlyshowinteriororrearyardpictures),thedivision’scurrentprocessisakinto“findingneedlesinhaystacks.”

A. HOSTComplianceHOSTCompliance(HOST),asoftwarevendorwithanapplicationforSTRenforcement,metwithMetroGovernmentinJulytopresentaprogramthatitisofferingtocitiesintheUSandCanadatoaddresstheissueofidentifyingshort-termrentalproperties.Thisprogramcouldalsohelpcitiesinmanagingcompliancewithlocalregulations.ThedivisionprovideduswithacopyoftheHOSTpresentationandwefollowedupwithaphoneinterviewwithHOST’sseniormanagement.HOSTisworkingwithcitiesofvarioussizesontheshort-termrentals,including:

Table7–Short-TermRentalsinOtherCitiesSupportedbyHOSTCity EstimateofSTRPsLosAngeles 26,000Vancouver 5,300Toronto 5,000FortLauderdale 7,000

HOSToffersseveralservicesincluding:

1. Trendmonitoring2. Addressidentification3. Compliancemonitoring4. Rentalactivitymonitoring5. 24/7dedicatedhotline

Thefirstfourservicesaboveareestimatedtocost$225,000peryear.WebelieveitwouldcostMetromuchmorethanthatinadditionalpersonneltoachievesimilarresults.Thededicatedhotlinewouldbringthetotalcostto$267,000.SeeourRecommendationssectionforadditionalinformation.

B. Hotel/MotelTaxReceiptsIfMetroGovernmentadoptstheHOSTCompliancesoftware,itshouldidentifysignificantunderpaymentofhotel/moteltaxes.MetroGovernmentshouldprepareanaggressiveefforttocollectthesetaxesandwithholdpermitrenewalsfornonpaymentoftaxes.Failuretoenforcetheserequirementsmayundermineothercomplianceefforts.Nashvillecurrentlyreceivesabout$3.6millionperyearinhotel/moteltaxrevenuesforshort-termrentals,accordingtotheMetroTreasurer’sOffice.Thisisabout$1,750intax


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revenueforeachofthe2,051permittedproperties.Hotel/moteltaxrevenueconsistsofabasefeeof$2.50pernightplus6percentonthedailyrate.Usingthisaverageandadding500properties(fromunpermittedtopermitted)becauseofHOST’sresearchcapabilities,couldaddalmost$900,000intaxrevenue,morethanoffsettingthecostoftheHOSTcontract.However,changesineconomicactivityandtheimpactofnewhotelroomsinNashvillecouldimpactanyestimates.AsoneMetroemployeestated:“itwouldtakeanadditionaleightemployeestodowhatHOSTcando”.ItisimpossibletopredicttheadditionaltaxrevenuewithanycertaintybutwebelieveMetrocanestimatetherangeofthisrevenue.IfHOSThelpedMetroidentifyanadditional50,000occupancynightsatanaveragerateof$200pernight,theadditionaltaxrevenuewouldbeover$700,000,morethanthreetimesthefeepaidtoHOST((50,000x$2.50)+(6%x50,000x$200)).Theadditionalnightsshouldresultfromidentifyingunpermittedshort-termrentalsandincreasingthenumberofnightsreportedbypermittedproperties.Asanexample,thereare2,051permittedSTRs(another454haveappliedforapermit)plusanestimated2,100unpermittedproperties.Theaveragenumberofrentalnightsperlocationtoreachthe50,000additionalnightsis10.9(50,000nights/4,600properties).Dependingonthenumberofadditionalnightsandthedailyrate,theadditionalhotel/moteltaxrevenuecouldbe:

Table8–AdditionalHotel/MotelTaxRevenue:EstimatesforAdditionalNights AdditionalNightsDailyRate 50,000 75,000 100,000 150,000 200,000$200 $725,000 $1,087,500 $1,450,000 $2,175,000 $2,900,000$250 $875,000 $1,312,500 $1,750,000 $2,625,000 $3,500,000$300 $1,025,000 $1,537,500 $2,050,000 $3,075,000 $4,100,000$350 $1,175,000 $1,762,500 $2,350,000 $3,525,000 $4,700,000$400 $1,325,000 $1,987,500 $2,650,000 $3,975,000 $5,300,000$450 $1,475,000 $2,212,500 $2,950,000 $4,425,000 $5,900,000$500 $1,625,000 $2,437,500 $3,250,000 $4,875,000 $6,500,000

NashvillecouldalsoenterintoacontractwithAirbnb.comtohaveitcollectandremithotel/moteltaxesonpropertieswhereAirbnbactedastherentalagent.ItwouldapplyonlytorentalsarrangedthroughAirbnb.comsoMetrowouldstillhaveacollectionsissuewithotherrentals.Airbnbhasnotbeenwillingpreviouslytoprovidereportsoftheaddressesforwhichitcollectsthetaxes,butevenanunattributedprocesswouldincreasefundingforcompliance


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activities.AirbnbandtheCityofNewOrleanshavereachedanagreementtorentonlypropertiesthathavepermits,tocollectandremithotel/moteltaxesforthosepropertiesandtosharetheaddressesofthoseproperties.(“NewOrleansBecomesNewModelforAirbnbtoWorkWithCities,”NewYorkTimes,December8,2016,pageB1).ThiscouldbeasignificantasaprecedentifavailabletoNashvilleaswell,asitwouldreduceunpermittedrentalsandprovidethetaxrevenueowedforrentals.Thiswouldbea“levelplayingfield”forhotelscompetingwithSTRPsandwouldhelpgreatlyinweedingout“partyhouses”fromlaw-abidingrentalunits.

5. CouncilcommentsonenforcementofpropertystandardscodeAsnotedinAppendixIII,weinterviewedseveralCouncilmemberstogathertheircommentsonCodes&BuildingSafetyandPropertyStandards.RatherthancharacterizeCouncilcomments,welistthecommentsbelow.

WetriedtoofferthePropertyStandardsDivisionmorestaffduringthelatestbudgetcycleandwerequitesurprisedthatourofferwasrejected.WefelttheDivisionneededmorepeople.Wedonottypicallyknowifaconstituenthastriedotherchannelsbeforecallingus.Sometimes,identifyingwhomtocontactinMetroGovernmentisunclearandconstituentsknowwecangettheirrequeststotherightplace.Whilethereisalotofconcernbeingexpressed,itisnotclearthatthesituationitselfisdire.Weareconcernedaboutlackofsupportforpropertystandardsissuesduringnightsandweekends.WearealsooftheopinionthattheDivisiondoesnotalwayscaredeeplyaboutthecitizencomplaints.Enforcementisineffective.Legislationcannotremedythat.Justaddressingissuesofshort-termrentalpropertieswouldfrustratethosecitizenswithotherpropertystandardsissueswhofeelthattheirconcernsdeserveattentiontoo.TheDivisionmaynotbecurrentonwhatthelawwouldallowintermsofaggressiveenforcement.ItmayhelpforaMetroattorneytodeveloprefreshertrainingonthis.Wearealarmedthatvacancieshavenotbeenfilled.Wehavenotreceivedareportonhowmanyvacanciesthereareatpresentorhowlongthepositionshavebeenvacant.


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WerealizethatNashvillepatterneditsordinanceontheonefromAustin,Texas,butourconversationswithAustinsuggestthatAustinisnothappywithitsownapproach.Thatapproachposessignificantenforcementchallenges.WegetverylittleinthewayofusefulstatusreportsfromtheDivision.ThereisalotoffrustrationwithCodesaboutwhetheritcaresenough.Follow-upisweak.

Isresponseslow?AccordingtoPropertyStandards,in2015itmadeitsfirstsiteinvestigationvisitwithin3daysin69percentofnewcomplaintcases.Webelievethisisareasonableresponserateforinitialinvestigations.However,thisdoesnotmeanthatthecomplaintwasresolvedwithin3days.DueprocesscantakemonthsandfrustrationaboutthetimeinvolvedmaybeattributedunfairlytoPropertyStandards.ItispossiblethatcertainfactorscontributetotheimpressionthatPropertyStandardsdoesnotrespondquickly:

• TheDivisionisoftennottheprimarypointofcontactforcomplaints.ComplaintsaboutnoiseandparkinggotoMetroPolicewhileothercomplaintscanberoutedthroughCouncilmembers,theMayor’sOffice,orthe311systembeforereachingtheDivision.TheDivisionneedstorecordboththetimetheinitialcomplaintwasfiledANDthedateisenteredintotheDivision’strackingsystem.TheDivisioncanthenreportonelapsedtime.

• Manyresponsesarerelatedtohighweeds/grassandabandonedcars.Responsesintheseareasmayappearslowtothepublicforgoodreason.Metropersonnelarenotauthorizedtomowonprivateproperty.PublicWorkshastwomowingcrewsthatmowinthepublicright-of-wayandonvacantlotsforwhichMetroisresponsible.AccordingtoPublicWorks,thecrewscannotmowonprivatepropertyinresponsetoacomplaint.Abandonedcarsarenottowedimmediatelyuntiltheirconditionmeetscurrentguidelines(e.g.,twobrokenwindows–perMetroCodeofLaws,Section12.08.210,whichdefines“abandonedmotorvehicle”and“obviousstateofdisrepair.).WeaddressthesetypesofcomplaintsintheRecommendationssection.

Metroisimplementinganew311system(“HUB”).Whilethiscouldstreamlinetheprocessforhowthepublicsubmitscomplaints,howthecomplaintsareroutedtotheappropriateMetroagency,andtheschedulingofinitialinvestigations,thenewsystemisunlikelytoimprovethetimelinessofresolvingcomplaints.Whilecomplainantsmayprovidetheircontactinformation,thereisnoroutinepracticeforlettingthecomplainingpartyknowwhatactionsweretaken.AsMetroGovernmentadoptsthe“HUB”system,thatwillchange,astheHUBsystemtakesthatinformationandreportsresolutiontothecomplainant.


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Noiseandparkingissuesare,generally,theresponsibilityofMetroPolice,ratherthanPropertyStandards.MetroPolicerecordscomplaintsinitsdispatchsystemforeachtimeofficershaverespondedtoanoisecomplaintataparticularaddress.ItdoesnotcurrentlyhaveapracticeinplacewhereinitnotifiesPropertyStandardseachtimeitrespondstoanoisecomplaint.NoSTRpropertyhaslostitspermitbecauseofnoisecomplaints.PropertyStandardshaslimitedstaffavailabilityduringeveningsandweekends.Whetherthismakesitlesseffectiveisambiguous.After-hoursstaffingmighthelptocollectevidenceforEnvironmentalCourtandmightmaketheDivisionappearspeedier,butitisunclearhowthatwouldaffectoutcomes.Also,forworkersafetyreasons,theDivisiondoesnotwantitsstaffinspectingresidentyardsinthedark.

a. DifferencesbetweengeographicareasTheDivisionprovideduswithdataonvarioustypesofRequestsforService(RFS)byMetroCouncilDistrict.AppendixIincludesmapsforallRFSsbyCouncilDistrictandyear.Thefollowingtableliststhetop10DistrictsforeachtypeofcomplaintforFY2015.Forexample,District11hadthemostTotalRequestsforServicein2015whileDistrict7hadthemostforHighGrass/Weeds.

Table9–RankOrderofDistrictsforNumberofRequestsforServiceRankOrder

TotalReqforService

HighGrass/Weeds

AbandonedVehicles Trash Violations

DistrictNumbers1 11 7 6 11 72 7 21 28 16 113 21 11 21 9 214 28 5 33 21 285 16 13 5 13 66 5 16 17 5 57 6 9 19 28 168 13 6 29 30 129 9 28 31 26 1310 12 31 11 2 9

SomeDistrictsappearinthetop10multipletimes.Wepresentedthedataintheorderofcomplaints,nottheactualnumbers.Districts5,6,9,11,13,16,21and28appearintheTop10ineachcategoryatleastfourtimes.WebelievetherearereportingdifferencestransitioningfromtheoldKIVAsystemtoCityWorksthataffectaclearpictureoftheresults.Propertiesthatreceivecomplaintsmay


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haveviolationsinmorethanonecategory–wedonotknowhowmultipleviolationsatapropertyarerecorded.Also,wedonotbelievethattherearespecificcodetypes(e.g.,1fortrash,2forhighgrass,etc.)tologcomplaints.TheDivisionindicatedthatcomplaintsarerecordedintextfields,whichmakeitdifficulttotrackdetaileddatabytype.Fromtheabovetable,itisclearthatnotalldistrictsfacethesamelevelofissues.ThiswasalsoborneoutduringourinterviewswithCouncilmembers.WeaskedseveralCouncilmembersaboutthefrequencyofcallsrelatedtocertaintypesofcomplaints.Thepercentageofcomplaintsaboutshort-termrentalsrangedfrom0to33percentofallcalls.Callsrelatedtotrashanddebriswere10percentforonedistrictand50%foranother.

b. Codes&BuildingSafetyJobDescriptionsWereviewedthefollowingpositionswiththeCodes&BuildingSafetyarea:

• Director,Codes&BuildingSafety• AssistantDirectorforPropertyStandards• PropertyStandardsInspector1• PropertyStandardsInspector2• OfficeSupportRep

WebelievetheMajorJobResponsibilitiesineachjobdescriptionareappropriate.TheDirectorischargedwithresponsibilitiesforcoordinatingwithoutsideprofessionals,policy-relatedmatters,executive-leveladministration,andlong-rangeplanning.TheAssistantDirectorisresponsibleforday-to-daydivisionmanagement,includinginterpretationandapplicationofordinancesandregulations.Thispositionisalsochargedwithevaluatingworkmethods,evaluatingoperationprocedures,improvingoperatingefficiency,andformulatinganddirectingpreparationofreports.WebelievetheselatterresponsibilitieswouldbeperformedbetterbytheAssistantDirectorcoordinatingwithadedicateddataanalysis/managementspecialist.OneofourrecommendationsaddressestheneedtocreatethistypeofpositionwithintheDepartment.


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c. CoordinationwithotherunitsofMetroGovernmentAcitizenreportinganissueofnoise,trafficorparkingshouldcalltheMetroNashvillePoliceDepartment.ThisdoesnotnecessarilyrequirethePropertyStandardsDivisiontobeinvolved,exceptthatiftherearethreedocumentedviolationsinayear,theDivisionmayrevokeapermittooperateashort-termrentalproperty.However,theDivisionhasneversuspendedorrevokedapermit.MetroPolicesendstheDivisionapapercopyofthecomplaintnotice(SafetyHazardNotification,Form271).However,NoiseisnotlistedasatypeofcomplaintsotheDivisioncannottracknoisecomplaintsbyaddress.Also,theDistrictnumberisnotrecordedandthiscomplicatesreportingtoCouncil.PropertyStandardsshould1)askPolicetoaddNoiseasaviolationcodetoForm271,2)trainstafftouseit,3)submitanelectronicfilesummarizingtheformsgeneratedtoPropertyStandardstoallowformatchingofnoiseviolationstoaddressesofshort-termrentalproperties.PropertyStandardswillhavetopayforthechanges,buttheywillmakeenforcementandcompliancemonitoringofshort-termrentalpropertiesmuchmoreeffective.IfthePropertyStandardsDivisionisinvestigatingwhatappearstobeanabandonedproperty,itwilloftenseekPoliceassistanceinenteringthepropertytoensurethatthepremisesaresafeforinspection.Onoccasion,theoccupantofapropertyunderinvestigationmaynotappeartobeofsoundmindorbody.Inthesecases,PropertyStandardsstaffmayreferthemattertotheappropriatehumanservicesagencyofMetroGovernment.PropertyStandardsmuststillenforcecodecomplianceinthesecases,butcoordinationwithanappropriatesocialservicesprofessionalmaymaketheeffortmoreeffective.

d. StayingCurrentwithRuleChangesThePropertyStandardsDivisionneedstostaycurrentwithrulechangesthataffecthowitworks.Outsideoftheshort-termrentalissue,theotherordinanceshavenotbeenchangingrapidly.Whileshort-termrentalpropertyregulationinNashvilleonlydatesto2014,thematterisofsufficientinterestthatseveralamendmentstothecurrentordinanceareunderconsideration.ThisisachallengetoPropertyStandards,notonlytolearnthatordinanceshavechanged,butalsotoadaptstaffingandprocesstomeetchangingrequirements.TheDirectorofCodes&BuildingSafetyandhisimmediatestaffshouldtracklegislativeandregulatorychangesandcommunicatechangestostaff,stakeholdersincludingelectedofficialsandotherMetrodepartments.Forexample,weareawarethatthereareseveralproposedamendmentstoMetro’sordinancesregardingshort-termrentals.Councilseeksstaffinputonalllegislativechanges,soCodeswillhaveadvancenoticeofpossiblechanges.


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TheDirectorandAssistantDirectorshouldrefineaninternalprocesstoreviewandreviseprocessesaffectedbyrelevantregulationssothattheDivisionwillbeabletoenforcecodesrapidlyupontheiradoption.Inthisvein,wesuggestthatthe2015establishmentofacodesoffenderschoolordinance–notyetimplemented–isevidenceoftheneedforattentiontotimelyadaptationtonewordinances.

4. Nashville’sGoalsandLessonsfromPeersDuringthisproject,weheardmanystatementsfromNashville’sleadersaboutwhattheseeasNashville’svalues.Theseincluded:

• NeighborhoodsarevitaltothequalityoflifeintheCity• Therightsofpropertyownersareimportantbutneedtobebalancedwiththerights

ofneighbors• Thepublicright-of-wayisconsideredfreelyavailable,withlimitedexceptions.

Additionalregulationofparkingisunpopular.• SmallCouncilDistrictsenhancecontactbetweenresidentsandtheirelected

representativesDuringourphoneinterviewswithAustin,ChattanoogaandIndianapolis,wediscussedhowthesecitiesaddressissuessimilartothosefacingNashville,withoutinfringingontheabovevalues.WebelievethatNashvilleshouldconsidersomeoftheirapproachesas“bestpractices”intheareasofin-takeprocessing,enforcement,dataanalyticsandwaystobeproactiveinanticipatingproblems.SeniorMetromanagementhastoldusofthewillingnesstoinvestinimprovingtheDepartment’scapabilities.OurpeerinterviewsidentifiedseveralapproachesthatNashvilleshouldconsider.


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a. HowpeersaccomplishthesamegoalsWeshowbelowcommentswereceivedfromothercities.Wehavehighlightedtheareasthatwebelieverepresent“bestpractices”thatNashvillecouldconsider:

Table10–ResultsofPeerCityInterviewsCity Observation/Finding BestPracticeAustin • Policedonotregularly

respondtonoisecomplaints• Short-termrentalproperties

donotgeneratemanycomplaints

• Short-termrentalordinancesareunderreviewandmaychange

• Short-termrentalsdonotpayhotel/moteltax

• AllcomplaintscomethroughtheAustin311systemwith311routingappropriateissuestotheDepartmentofCodeCompliance

• TheyuseanAdministrativeHearingOfficerandMunicipalCourt.Finesareauthorizedupto$2,000,butaretypicallyintherangeof$200-$300

Chattanooga • Short-termrentalpropertiesdonotgeneratemanycomplaints

• Nobusinesslicenseisrequiredandthecitydoesnotregulateshort-termrentalsperse

• Inspectorsdrivestreetsproactivelytoscanneighborhoodsforviolationsofpropertymaintenancecodes

• ThecityusesanAdministrativeHearingOfficerinlieuofEnvironmentalCourt.Itisfaster,easierandfinesaremorealignedwiththegravityoftheoffensethanfinesleviedbyEnvironmentalCourt.

Indianapolis • Short-termrentalpropertiesarenotregulatedanddonotgeneratemanycomplaints

• Finesforcodeviolationsareauthorizedupto$5,000

• Vendorsareonretainertocuthighgrass.Thepropertyownermustpaythechargeof$363percutting.

• Thecityusessalesforce.comtomanageitscallcenter

• Thecityhasstrongperformancemetricreports

WehaveincludedsampleperformancereportsforIndianapolisinAppendixII.


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5. Recommendations

a. Staffsize(numberbyjobtitle)WebelievethereareseveralapproachestoestimatinghowmanypositionstheDivisionshouldaddtothecurrent16authorizedInspection-relatedpositions.

i. ComparisonstoothercommunitiesAsnotedinaprevioussection,ourinterviewswithpeercommunitiesindicatedthatNashvillehasfewerinspectorsper100,000populationandpersquaremile(seeTable4).ComparisonstoothercommunitiesareusefulbutarenottheabsoluteindicatorforguidingNashvillebecauseeachcommunityisdifferent.ForexampleIndianapolisdoesnotlicenseshort-termrentalswhiletheChattanoogainspectorscoordinatemorewiththelocalpolicedepartment.Therefore,staffingratiosarejustonewaytoevaluatestaffingrequirements.ForNashvilletoincreaseitsinspectionteamtothelevelofAustinorChattanooga,Nashvillewouldneedtoaddmorethan20inspectors.Sixinspectorsper100,000inNashvillewouldbeapproximately40inspectorsfewerthanthe16currentlyauthorized.

ii. LoanfundAmongthereasonsthatpeopledonotmaintaintheirpropertiesistheirfinancialinabilitytodoso.Tothisend,MetroGovernmentmaywishtoconsidercapitalizingandoperatingasmallloanfund.Eligibilityforloanswouldrequireanoticeofabatementforaviolationofcodeandproofoffiscalneed.Metromaysecuretheloanswithalienontheproperty.Thetypicalloanvaluewouldverylikelybemuchsmallerthanacommercialbankcouldconsiderandthedefaultratewouldlikelybehigher.MetroGovernmentwouldneedtoconfirmthattheloanfundswerespenttoremedythecodeviolation.


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iii. OperationalreviewandrecommendationsSincethestartofthisproject,PropertyStandardsfilledthreeofitsfourvacantpositions,includingthevacantPropertyStandardsInspectorpositions.Wesupportthat.Atthistime,wealsorecommendthatMetroGovernmentincreasetheDivision’sstaffingwithanadditionalsevenpositionsaboveandbeyondtherecentfillingofthreevacancies:

Table11–RecommendedStaffingIncreasesJobTitle NumberDataAnalyst • MaintainCityWorksdatabases,monitor

Divisionactivitiesandprepareinternalandexternalreports

1

NewPropertyStandardsInspectorpositionsforproactiveauditing(seetablebelow)

• Increaseproactiveefforts• Developdeeperteaminanticipationof

staffturnover

5

NewCustomerServiceRepresentative

• AdditionalCustomerServiceRepresentativebecauseofnewInspectorpositions

1

Total 7TheadditionalinspectorswouldallowtheDivisiontofocusmoreattentiononproactivemonitoringofpotentialviolations,notonreducingresponsetimeforcomplaints.Codes&BuildingSafetyprovidedananalysisofthetimeneededfortheinitialinspectionofPropertyStandardsViolations.Nashvillehasabout2.35inspectorsper100,000population–evenaddingall5newinspectorstoenhanceproactiveauditeffortswouldstillhaveNashvilleatastafflevelbelowthatofAustinorChattanooga(bothhave6to7inspectorsper100,000).Webasedourestimateof5additionalInspectorpositionsontheneedtoinspect240,000Metroparcelseachyearatarateof2,000perweek.Usingtwopersoncrews,weestimatetheneedfor5positions.Webelievethattheadditionalinspectorsshouldhavethesamedutiesarecurrentinspectors.Thiswillreducetheimpactofturnoverandprovidealargerpoolofcandidatestoreplacecurrentteamleaders/managersconsideringretirement.Inspectorswouldconductproactivedutiesaspartoftheirregularassignments,notasdedicatedproactiveinspectors.Ourrecommendationaddressestheneedformoreproactiveeffortsbyauditingparcelsforcodecompliance.Ifproblemsareidentifiedearlier,itmayreducethenumberofcomplaints.IncreasingtheinspectorsbyfiveshouldprovidePropertyStandardswiththecapacitytoreducethecycletimeforauditingmostMetroareasthathavethemostcomplaints.Shouldtheseproactiveeffortsnotresultinreductionsincomplaints,Metrocanrevisitthestaffinglevelandaddmoreinspectorsinthefuture.


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During2015,therewere12,995newcaseswithinitialinvestigationsasfollows:

Table12–PropertyStandards:ComplaintResponsivenessInitialInvestigation Number PercentWithin3days 8,892 69%Within5days 10,939 84%Within10days 12,955 100%

Almost70%ofcaseswereinvestigatedwithinthreedays.Webelievetheseresponsetimesareacceptableanddonotrequireadditionalstaffatthistimetoreduceresponsetimes.Werecommendthatallinspectors(BlueandRedteams,aswellastheFlexteam)shoulddevoteatleasttwodaysamonthtoproactivereviewoftheirterritoriestoidentifyviolationsrelatingtobuildingconditions,abandonedvehicles,highgrass/weeds,trash,signs,graffiti,andotherCodeviolationssothatPropertyStandardscaninitiateabatementactionsbeforethereisacomplaint.TheFlexteamisassignedtoperformneighborhood“audits,”meaningproactiveneighborhoodpatrolstolookforcodeviolationspriortocitizensreportingthem.Anaudittypicallysurveysapproximately2,000parcelsandtakesateamoftwopeopleapproximatelyaweektoperform.Atthispace,currentstaffingdoesnotallowauditstohappenatasufficientlyaggressiveinterval.ThiscontributestoourrecommendationtoaddinspectorstotheDivision.AuditsarecurrentlyaFlexTeamresponsibility.However,thegeographic-basedteams(RedandBlue)arealreadyinneighborhoodsregularlyandarefamiliarwithchronicproblemaddresses.OneoptionistofoldtheFlexTeamstaffintotheRedandBlueteams,drawthegeographicresponsibilitiesofeachinspectorinsmallerareasandmakeeachinspectorresponsiblenotonlyforresponsetocomplaints,butalso,forproactiveinspection

b. OrganizationstructureCurrently,PropertyStandardsisstaffedatalevelthatlimitsproactiveinspectionswork.TheDivisiondoesnothavetheresourcestopermitittoreflectonhowitseffortsdriveresults.Itneedssomeonetoorganizeandpresentdatathatwillallowmanagementtoalignresourceswithneeds.WerecommendthatthenewpositionofDataAnalystreporttotheDepartmentDirectorandtheAssistantDirectorforPropertyStandards.ThispersonshouldreviewmonthlyreportswiththemandpreparereportstotheMayorandCouncil.ThispersonwouldalsodeveloprecommendationsaboutimprovingtheuseofCityWorks(e.g.,codestoidentifyindividualcomplainttypes)andprocessesfortransferringdatafromMetroPolice.AkeyaspectofthispositionwillbetoincorporatetheHOSTCompliancesystemintotheidentificationofunpermittedproperties.ThiswillhelptoclosedownSTRPsoperatingwithoutpermitsandwillaidincollectingunremittedhotel/moteltax


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revenues.Thatrevenueisanimportantcontributiontofundingtheenforcementofrelatedcodes.

c. ShiftsAllDivisionpersonnelhaveastandardMonday–Fridaydaytimeworkschedule.Somepeoplehavesuggestedthatstaffingothershiftsmightmakeenforcementmoreeffective.Therearecaseswherethismaybetrue.Forexample:

• Confirmingthatcarsparkedonlawnswhenoccupantsreturnhomefortheevening.IfacomplaintisfiledonMondayat7:00pm,theDivisioncouldmonitorthataddressonotherdaysatthattime.

• Confirmingthatthenumberofvehiclesatanaddressisconsistentwiththeoccupancylimit.

Optionsinvolvingnightshiftsandweekendswerediscussedduringinterviews.WedonotrecommendthatDivisionstaffbeassignedtonightorweekenddutybecause:

• Divisionstaffarenotdeputized.• Webelievethatnightandweekendcomplaintswouldtendtoinvolveissuesover

noise.NoisecomplaintsaretheresponsibilityoftheNashvillePoliceDepartment.TheDivisioncouldusePolicereportsforgeneratingnoticestopropertyownersandforcreatingdocumentationthatcanbeusedininitiatingadministrativehearings.

• DivisionstaffcouldbeoncallsothattheycanrespondtorequestsfromthePoliceDepartment.Divisionstaffcouldthenrespondonanas-neededbasis.ThisistheapproachusedinChattanooga.

• ComplaintsaboutnoisecouldalsobereportedtotheHOSTcallcenterorMetro’s311callcenter.

Wealsonotedthatinspectionpersonnelareinthefieldfromabout4to5hoursperday,fromabout10.15amto2.30pm.Theotherhoursaredevotedtophonecallsandpaperwork.Fieldstaffshouldhaveagoalof80percentoutsidetheoffice,or6to6.5hoursperday.Thiscanbeaccomplishedbyimprovingtheuseoftechnologyandmobiledevices,andreducingsomeofthetimespentintheofficeatthestartandendofeachshift.


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d. ReportsThePropertyStandardsDivisiondevelopedareportformatthatcouldbesenttoCouncilmembers.Thisreportcanbemodifiedtoreflectotherdataelementsthatwerecommendbecollected(seeAppendixV).However,thewaytheDivisionmaintainsdataintheCityWorkssystemneedstobemodifiedtoreflectthefollowing:

• CouncilDistrictisnotcurrentlycollectedintheon-linecomplaintsystemsoaddressesinformationisconvertedtoDistrictnumber.ThisrequiresthesupportofMetro’sinformationservicesdepartment.

• ReportedViolationcoversmanytypesofviolations.EachviolationrelatedtoanRFSandaddressshouldbeidentified,codedandreportedindividually.

PropertyStandardsRFSActivityReport

Date: CouncilDistrict: DateRangeofReport: NewRFSCases: NumberofRFS

Cases(Previousyear):

RFSCasesClosed(duringthisreportingperiod):

NumberofCourtCases(duringthisreportingperiod–initiated/closed):

RFSCasesActivityByCategory

AbateNoticesIssued: CaseswithNoViolationFound:

OpenRFSCasesByAddress

PropertyAddress ReportedViolation DateInitiated Status

e. CustomerServiceOrientationPeoplewhoreportissuestotheDivisionpresumablyexperiencesomedegreeoffrustrationbeforetakingaction.Aneffectivecustomerserviceapproachwillrecognizenotonlythefactsinplay,butalso,theemotionalsituation.Wehighlightthisherebecauseviolationsoflawaresubjecttotheinvestigativeandremedialeffortsgovernedbydueprocess.Havingastrongcustomerserviceorientationinvolvespromptcommunicationtoletthepartyknowthatthecomplainthasbeenrecordedandtoprovideupdatesonthestatusofthecomplaint.Theonlineandphonecomplaintsystemsallowsforinclusionofanemail


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address.Therequestforservicenumberisprovidedtothepartysubmittingthecomplaintsotheycanreturntothesystemandinquirelateraboutthestatus.AcustomerserviceorientationshouldincludesendingstatusupdatestothecomplainingpartysoMetroisinformingthemofchangesinthestatus.Theonlineandphonecomplaintsystemsshouldencourageenteringeitheremailaddressorcellphonenumberstoallowforsendingofstatusupdatesaseitheremailsortextmessages.Rarelyisdueprocessspeedy,whichmayleadsomewhocomplaintobelievethatMetroGovernmentdoesnotcare.Weheardsomepeopleexpressthatthismaybethecase.ThefirstelementintimelinessishowfasttheDivisionrespondstoaRequestforService.Divisionrecordsshowthat69%ofcomplaintsareinvestigatedwithinthreedays.Webelievethatthisisreasonable.Neighborswantimmediaterelief,butthedemandsofdueprocesstaketime,whichcontributestoanimpressionthatPropertyStandardsisslow.Thatseemsunfair.Inadditiontospeedistheconcernthattheservicebecustomerfriendly.Whilecurrentuseofautomatedcalltakingisefficient,itdoesnotcreateacustomer-friendlyimpression.AdoptionoftheHUB(asa311callcentersolution)willprovideamorehumantouch.Movingatleastsomeofthetelephonetraffictoacallcentermayhelp.MetroGovernmentisevaluatingtheHOSTCompliancesoftwareapplicationtoassistwithshort-termrentalproperties,whichispairedwithacallcenterforthispurpose.Webelievethishasmerit.WerecommendthatMetrocontinuetoencourageresidentstofilecomplaintsviatheInternet.Theapplicationalsoworksonmobiledevices.ComplaintsfiledwithCouncilmembersarealsoroutedtoMetro’swebsiteforfiling.However,allpersonswishingtofileacomplaintdonothaveaccesstotheInternet.Metroshouldinstruct311operatorstoalsorecordcomplaintsreceivedviaphonetoentertheseintothecomplaintsystem.Wemakethefollowingrecommendationsrelatedtothefilingofcomplaints:

• Thewebsitecontainsadrop-downlistwith26typesofcomplaintoptions.Theusercanonlyselectone.Werecommendthatthispagebedesignedsothatthepersoncompletingtheon-lineformcanselectmorethanoneviolationtype.

• Thedrop-downlistdoesnotinclude“Noise”.WhileMetroPoliceisgenerallyresponsiblefornoisecomplaints,PropertyStandardsshouldaskPolicetoaddthiscategorybeonthelistsothatPropertyStandardsmaydocumentviolationsthatmayaffectsomeone’sabilitytoretainapermitforshort-termrentalofaproperty.

• Districtnumberisnotincludedonthepageasadataentryfield.Werecognizethatmostpeoplewillnotknowthedistrictnumber;theapplicationshouldhavealook-upfunctionwhereitcanmatchthestreetandaddresstoaspecificdistrict.ThiswillhelpinreportingtoCouncilmembers.


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• ThePropertyStandardsDivisionshoulddevelopaprotocolforexplainingbothtothosewhocomplainandtothosewhoownthesubjectpropertieswhattheprocesswillinvolve.Manypeoplewillnotknowwhattoexpectfromtheprocessorhowlongitmaytake.Eveniftheymaybeabletolookupthestatusoftheitemonline,manydonotknowwhereorhowtodothatandnoteveryonehasInternetaccess.

f. CodesOffenderSchoolThegoalofenforcementisnotonlytheswiftresolutionofcodeviolations,butalsotocreateincentivestoavoidbeingarepeatoffender.Tothatend,MetroGovernmenthasauthorized(buthasyettoimplement)aschoolforcodeviolators.SimilartoTrafficSchool,thegoalistoavoidaharsherandlengthierenforcementprocessbyeducatingviolatorsabouttheirresponsibilities.PropertyStandardsisseekingacontractor(RFP960630)whocancreate,craft,andprovideongoingteaching/trainingservicesforpropertystandardscodesviolators.AcontractawardisanticipatedinFebruary2017.TheDivisionhasissuedarequestforqualificationsandwillsoonreviewresponses.Theclasswouldfollowthetrafficschoolmodel.PropertyStandardshasnotyetworkedoutthecriteriaforattendancebutitwouldfocusonviolatorswhowouldnormallyendupinEnvironmentalCourt.Council’sanalysisofthenewordinance(Ord.BL2015-1129§1,2015),16.24.185–CodesOffenderschool-provided:

ThisordinanceamendstheMetrocodetoestablishacodesoffenderschool.Thisschool,whichwouldbesimilartothetrafficschool,DUIschool,andtheanimaloffenderschoolcurrentlyinexistence,wouldbeoperatedunderthesupervisionofthecodesdepartment.Thisordinancewouldgivetheenvironmentalcourtthediscretiontoorderapersonfoundtobeinviolationofthepropertystandardscodetoattendthecodesoffenderschoolinadditionto,orinlieuof,anymonetaryfine.Thepurposeoftheschoolwouldbetoprovideeducationaboutthepurposeofthepropertystandardscodeandtheimpactofviolationsonthehealth,safety,andwelfareofthecommunity.Personsorderedtoattendtheschoolwouldberesponsibleforpayingafeeupto$90,whichwouldbeusedtocovertheexpensesoftheschool.Theordinancewouldgivethecodesdepartmenttheauthoritytoselectanonprofitorganizationororganizationstooperatethecodesoffenderschoolsubjecttoapprovalofthecouncilbyresolution.TheDirectorofFinancedidnotsigntheordinanceastoavailabilityoffundsasaresultofalackofinformationregardingwhethertherevenuegeneratedfromtheclasswouldoffsetthecostsoftheprogram.However,arecentletterfromassistantcodesdirectorBillPennstatesthatthe$90perattendeefeeshouldbesufficienttocoverthecosts,especiallyifeachclasshas12ormoreattendees.


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Thissendsamessagethatkinder,gentlerenforcementisavailableinexchangeformoreefforttoavoidfutureviolations.However,academicevidencethattrafficschoolreducescrashesandmovingviolationsisverythin,sopredictinghowapropertystandardsviolatorprogrammightreducefutureviolationsinNashvilleisverydifficult.Whetheritwouldachieveitsaimsornot,failuretoimplementalegislativelyauthorizedsolutioncreatestheimpressionthattheDivisionisnotfullycommittedtoCouncil’sgoalofenhancinganenforcementeffort.Itunderminescredibility.

g. TrainingCodes&BuildingSafetyandPropertyStandardsmanagementshouldcommunicateexpectationstoallInspectorsastotheoverallgoaloftheDivision:enforcingpropertystandardsaggressively,subjecttotheprotectionsofdueprocess.Itshouldalsodevelopmetricsforinspectoreffectivenessandmonitorthattheyaremet.Thesestandardsshould,ataminimum,addressthenumberofsitesinspectedperweekandtheexpecteddispositionofthosevisits.Individualresultsmaybeaffectedbyparticularcases.Thegoalisnot“gotcha,”butrather,identifyinghowconsistentlypeoplewiththesamejobareperforming,ratherthantrustingtochance.WhileDivisionstaffarepromptinrespondingtocomplaints,webelievetheDivisionshouldalsoemphasize:

• Identifyingpotentialissuesbeforethereisacomplaint• Identifyingpropertiesthatdonotcomplywithexistingordinancesrelatedtoshort-

termrentals• Beingaggressiveinpropertieswithsubstandardbuildingconditionsinreturningto

standardWhilethelattermaybedifficultbecauseoftheowner’sageorfinancialsituation,notaddressingthesituationwillnothelpresolvethesituation.WebelievethatPropertyStandardswouldbenefitfromadditionaltrainingin:

• Currentstatutesandordinances• Howtocategorizecomplaintsandviolations• Howtoemploycomputersandremotedevices• Optionsforpropertiesthatneedrenovationassistance

Trainingonordinancesandcodingwouldprovideconsistencyinhowviolationsarerecorded.Again,webelievepartoftheproblemisbecauseofhowviolationsarecodedinCityWorks.InspectorsandtheDataAnalystshoulddefineuniquenumericcodesfor


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violationsandincorporatetheuniquecodesintoallformsandcomputerscreens.PropertyStandardsshouldnotusealphacharacterstocombinemultipleviolationsasitcomplicatesreportingandanalysis.Asaresult,manycomplaintsarecombinedas“violations”.Improveduseofelectronictoolscouldhelpinreducingtimespentintheoffice.Wedidnotreviewformsusedbytheinspectorsbutwebelievethatimproveduseofelectronictemplatesandtransferofpaperworkfunctionstoin-officeadministratorscouldexpediteworkflow.

h. CoordinationwithMetroPoliceNoiseandparkingissuesare,generally,theresponsibilityofMetroPolice,ratherthanPropertyStandards.MetroPoliceusesaSafetyHazardNotification(Form271)forcertainhazardsandfornoisecomplaints.ThisisapaperformandMetroPolicesendscopiestoPropertyStandards.Thefollowingisanexamplefromacomplaintaboutnoise.Eventhoughtthedescriptionfielddescribesthecomplaintaboutnoise,thereisn’ta“type”categoryfornoisecomplaints.

Theproblemswiththisprocessare:• Noiseandparkingarenotlistedasoptionsunder“TypeofHazard.”Verifiable

complaintsmayultimatelyallowrevocationofapermitforashort-termrentalproperty,butthislackofcodingmakesithardertodocumentthat.

• PropertyStandardsgetsthephysicalnotices,notanelectronicfile.Thismakesitpainfullydifficulttomatchtheoffensestoaddressesinawaythatwouldsupportappropriateremediesagainstachronicoffender.


33

SinceMetroPoliceisgenerallyresponsibleforrespondingtonoisecomplaints,webelievethatPropertyStandardsshould:

• ContactMetroPoliceaskingittomodifyForm271toincludeNoiseandParkingasviolationtypesand

• ProvideallsuchreportstoPropertyStandardsinelectronicformat.ThesechangesmayinvolvePolicecomputersystemmodificationsandtrainingmaterials.PropertyStandardsshouldcompareallnoticestoitsshort-termrentalfileandtrackthenumberofviolationsbyaddresssoitcaninitiatepermitsuspensionproceedingswhenwarranted.

i. Languageneeds(esp.Spanish)Approximatelyone-thirdofthechildreninNashville’spublicschoolsdonotspeakEnglishasafirstlanguage.(TheTennessean,NashvilleSchoolshaveThousandsofELLStudents,November14,2015)Two-thirdsofthisgrouparrivesatschoolwithSpanishasaprimarylanguage.WhiletheschoolsworktodevelopEnglishfluency,thereisstillaneedforservicesinlanguagesthatstudentscanunderstandsothattheycanbecomesuccessfulinlearningEnglish.ThissuggeststhatforservicesofMetroGovernmenttobeavailabletoallresidents,thereisaneedforMetroemployeestobeabletocommunicatewithresidents.TheDivisionhasoneemployeefluentinSpanishandanotherwithconversationalskills.TheDivisionshouldhaveatleastoneCustomerServiceRepresentativeandoneInspectoronstaffthatisfluentinSpanish.

j. Balancingreactive(complaint-driven)andproactiveeffortsPropertyStandardsDivisionreceivesRequestsforServiceinanumberofways.TheDivisionthenlogstheRFSintoCityWorksandassignstheincidenttooneofitsthreeteamsforfollow-up.WerecommendthattheDivisiondesignateatleasttwodaysamonthforeachfieldstafftodrivethroughtwoDistricts(1dayperDistrict)toidentifypropertyissuesthatshouldbeloggedinandaddressed.Weanticipatethatthisprocesswouldidentifypropertieswithhighgrassandweeds;junk,debrisandtrash;abandonedvehicles;graffiti;andotherobservableissues.Webelievethisprocesscanhaveseveraladvantages:


34

• TheDivisioncanproactivelyidentifyproblems,insteadofwaitingforacitizencomplaint

• TheDivisionwillbevisibletothepublic

k. ChangetheProcessforHighWeedsandGrassandAbandonedVehicles

i. HighWeedsandGrassDuringourinterviews,DivisionstaffindicateditaskstheDepartmentofPublicWorkstomowlotsthathaveviolatedthestandardforhighgrass/weeds.PublicWorkshastwocrewsthatmowinthepublicright-of-wayandonlotsforwhichMetroisresponsible.ThePublicWorkscrewswillnotnormallymowonprivateproperty.AccordingtoMetroProcurement,MetrohasacontractwithalandscapingvendortomowMetroproperty,typicallylargetractsofland.Thevendorhassubcontractors.Dependingonsatisfyinglegalstandards,Metroshouldconsiderhavingthisvendoravailabletomowpropertiesthatarethesubjectofhighweed/grasscomplaints.WerecommendthatPropertyStandardsimplementaworkorderprocesswithinCityWorksorHub/311wherebyitrequeststhatPublicWorkscoordinatemowingwithinaspecifictimeframe.TheworkorderscouldbeinitiatedthroughHub/311orbytheInspectoridentificationofneighborhoodsduringtheMarch–Novembergrowingseason.IfPublicWorkscanuseitsowncrewtomeetthestandarditshouldperformtheworkbyMetrostaff.IfPublicWorkscannotmeetthedeadline,itshouldrefertheworkordertooneofitsvendors.Ifavendordoesthework,PublicWorksshouldforwardtheinvoicetoPropertyStandardsforpayment.PropertyStandardswouldthenplacealienonthepropertyiftheinvoicewereunpaidafter90days.

ii. AbandonedVehiclesHandlingofparkedvehiclesistheresponsibilityofMetroPoliceorPropertyStandards,dependingonthecircumstances.TheauthorizingruleisintheMetroCodeasTitle12.08.210,OrdinanceNo.BL2002-1128.Codedefinesan“abandonedvehicle”asmorethanfouryearsoldandleftunattendedonpublicpropertyformorethantendays,orinanobviousstateofdisrepairandleftunattendedonpublicpropertyformorethanthreedays.PropertyStandards(Codes&BuildingSafety)isresponsibleforcarsparkedillegallyonprivateproperty(eveniftagsarevalid)andthetowingofabandonedvehicles.Weunderstandthattheprocessinvolvesseveralweeks,ifnotmonths,forPropertyStandardstoremoveavehicle.Aprivatefirmthentowsthevehicleandthevehicleisimmediatelycrushedandsoldasscrap.InMetro,therewerealmost800complaintsaboutabandonedvehiclesin2015.


35

MetroPoliceisauthorizedtotowvehiclesinthepublicright-of-wayifthevehicletagshaveexpired.Absentaparkingviolationorregistrationissue,allothervehiclesconsidered“abandoned”areamatterforPropertyStandards.WerecommendthatMetrostreamlinethisprocessbyauthorizingremovalofavehiclewithinoneweekofthecomplaintbeingfiledandMetrosatisfyingthewaitingperiods.Metrowouldretainafirmtostore(asopposedtodemolishing)thevehicleforupto90days.Metrowouldnotifytheregisteredownerofthevehicleofthetowandwherethevehiclewasstored.After90daysinstorage,thetowcompanycoulddisposeofthevehicle.Metroshouldestablishstandardsforhowitdeterminesifthevehicleisinan“obviousstateofdisrepair”(e.g.,burned,notires,brokenwindows,outofdateregistrations,etc.).AccordingtoMetroPurchasing,MetrocurrentlyhasacontractinplacewithUnitedTowingformanagementofthetow-in-lot.CodesshouldinitiatecontactwithPurchasingtoinvestigatewhetherthisisafeasibleoptionunderthatcontract.

l. EnactinganAdministrativeHearingOfficerinLieuofEnvironmentalCourt

TennesseelawpermitsEnvironmentalCourttolevyafineofonly$50,whichismeaninglesswhencomparedtotherevenuealandlordcanearnfromashort-termpropertyrental.Thereisapossibilityofafineof$50perday(limitedbystatelaw),buttherulesofevidencearedaunting.Forexample,togetafineforeachdayapropertyisadvertisedasavailable,theplaintiffmustprovethatthepropertywasadvertisedforeachday.Demonstratingthatitwasadvertisedonlyonthefirstandlastdaysofaperioddoesnotmeettheevidencestandardofproofofeachdayadvertised.AccordingtotheDepartmentofLaw,however,theevidentiarystandardsneededforacourtproceedingaregenerallymorestringentthanthosenormallyneededinanadministrativeremedy.


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Codes&BuildingSafetyprovidedthefollowing2015dataoncomplaintsbytype:

Table13–PropertyStandards:ComplaintsbyTypeType NumberViolations 10,431Short-TermRentals 13HighGrass 3,222AbandonedVehicles 782Graffiti 61Junk,Trash,Debris 3,570DemoCase 75RepairCase 30IllegalUse 63Total 18,247

Veryfewofthecomplaintsaboutviolationsresultinhearings(citations)beforetheEnvironmentalCourt.Forcomparison,theCircuitCourtClerkprovidedareportofcitationswrittenforcodeviolationsin2016(throughOctober31st).Itincludescitationsforthefollowingviolations:10.26.010HighWeedsandDebris 16.24.330ExteriorPropertyAreas10.28.010ExcessiveGrowth/DebrisProhib 16.24.340ExteriorofBldgandStructure10.32.120StorageandDisposalofGarbage 16.24.440WaterSystemRequirements10.32.130AccumulationofGarbage 16.28.010BuildingPermitReq.10.32.140BuildingMaterialsonPremises 17.32.050ProhibitedSign10.32.160StagnantWater 20-01-141AccumulationofTrash-Nolongeravalidcode)16.24.320UnsafeVacantBuilding Thenumberofcitationsispresentedinthefollowingtable:

Table14–EnvironmentalCourt:CitationsFirstTenMonthsof2016

Dismissed

Dismissed

with

cost

Dismissed

–no

service

Exterio

rProp

erty

Area

Failu

reto

Ap

pear

Guilty

Retired

Blan

k

Total

16.24.330Exterior 20 22 32 5 12 3 7 10116.24.340Exterior 1 1 2 416.28.010Buildingpermitrequired

1 1

17.32.050Prohibitedsign 3 320.01.141Accumulationoftrash 1 116.24.330Blank 1 1Total 21 23 34 1 5 16 3 8 111


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Therewere111totalcitations.Ofthese,101wereforviolationsfallingundersection16.24.330,“ExteriorPropertyAreas.”DuringourmeetingswithCouncilmembers,severalmentionedresidentcomplaintsconcerningtrashandweeds.TheRefereeindicatedthatthemajorityofcasesfromPropertyStandardsinvolvemattersrelatedtotrash,highgrass/weeds,improperusage,andparking.Hecommentedthatthecasesaredocumentedandthatinspectorsdoagoodjobofpreparingcases.TheCircuitCourtClerkprovidedtheWarrantandCitationdocketsforarecentsession.TheWarrantdockethad57casesbutthereportdidnotincludeacomplainttype(cause).TheCitationsdockethad128cases.Thecomplaintswere:

Table15–CitationsDocket–RecentSessionType NumberAnimalrelated 60Alarmrelated 47Noise 17Certificateofcompliance 12Marijuanaandparaphernalia 8Exterior 6Causeslistedoncitation 5Total 155

WebelievethatthelargedifferencebetweenthenumbersofRequestsforServicecomparedtoCasesmaybeattributableto:

• EffectivenessofabatementnoticeprocesswithinPropertyStandards,and/or• Reluctanceofinspectorstoissuewarrants

WelearnedoftheAdministrativeHearingOfficer(“AHO”)optionfromChattanooga.WhenwementionedittoMetroNashvillestaff,welearnedthatNashvillehastwosuchpositionsauthorizedinitsMetropolitanCodeofLaws,Section2.20.130.B.Metro’sLawDepartmentadvisesthataccordingtoSection2.20.130.A,theoptiontoutilizetheAHOprocessisatthediscretionofCodes&PropertyStandards.TheDirectorofCodes&BuildingSafetysupportstheAdministrativeHearingOfficeroption.ThiswillrequirethesupportofMetropolicymakers.ARefereehearsmostPropertyStandardscasesbroughttoEnvironmentalCourt.TheJudgehearscasestoobuttheseareprimarilyappealsoftheReferee’srulingsandinvolveanimals,notbuildingviolations.)TheRefereehearscasesrelatedtohealthissuesandtaxis,aswellasthosebroughtbyPropertyStandards.AccordingtotheDepartmentofLaw,theEnvironmentalCourtJudgecurrentlyholdsasessioneachmonthtohearEnvironmentalCourtcasesonappealfromtheReferee.Whilethissessionhas,generally,beenlimitedto


38

threecasespersession,theJudgehasexpressedawillingnesstohearmorecasespersession,asneeded.

m. PerformanceMetricsProblemschangeovertimeanditisimportanttoidentifytrendsintypesandlocationstoallowtheDivisiontoreactbyadjustingtraining,stafflevels,assignments,andprocesses.Fromourinterviewswithdivisionmanagement,webelievethatitiscurrentlydifficulttoreportoncomplaintsbytypeofincidentbecausesomeofthedataisenteredastextfields,soitisnotsortablebycomplainttype.InAppendixII,wehaveincludeddashboardreportsfromtheCityofIndianapolis.Thesereportsarereleasedweeklytoshowthenumberofincidentreportsbysource(e.g.,311,mobiledevice,department),andcomplainttype(e.g.,trash).WerecommendthatMetrohavehigh-levelsummaryreportslikethesebutmorerobustreportsthatwillprovidemanagementtoolstotrackstaffeffort,timetofirstinvestigation,Districtandstatusasshort-termrentals.HavingtheabovedataelementsresidentinCityWorkswillgivethedivisiongreatercapabilitytoreportonitsactivitiesandmanageitsoperations.AppendixVcontainsalistoftheelementswerecommendPropertyStandardsDivisionrecord.TheDivisioncanthenusetheabovedataelementstodevelopstandardweeklyormonthlyreportsthatcanbesenttoappropriateCouncilmembers,theMayor’sOfficeandpublicwebsitestoreportonactivitiesinindividualDistricts.ThedatacanbeusedwithintheDivisiontomonitorstaffactivity,elapseddaysfromcreationofasystemrecordtoinitialinvestigation,andtypeofcomplaints.

MetropolitanGovernmentofNashvilleandDavidsonCounty,TennesseeReviewofPropertyStandardsDivisionStaffing-DRAFT

AppendixI

RequestsforServiceMaps

MetropolitanGovernmentofNashvilleandDavidsonCounty,TennesseeReviewofPropertyStandardsDivisionStaffing-DRAFT

AppendixII

IndianapolisCharts

1

Madison, Brian D.

From: Ortman, AmandaSent: Monday, October 17, 2016 7:05 AMTo: Kelty, Stephanie; Rowland, Michael; Ortman, Amanda; Robinson, KatieSubject: Dashboard: Prior Week Report As of 10/17/2016 7:04 AM

Follow Up Flag: Follow upFlag Status: Flagged

Prior Week Report

As of 10/17/2016 7:04 AM

1

Madison, Brian D.

From: Ortman, AmandaSent: Monday, October 17, 2016 2:30 AMTo: Ortman, AmandaSubject: Dashboard: BNS Dashboard As of 10/17/2016 2:29 AM

Follow Up Flag: Follow upFlag Status: Flagged

BNS Dashboard

As of 10/17/2016 2:29 AM


AppendixIII

ListofInterviews


ListofInterviews

MetroMayorMeganBarryRickyRooker–CircuitCourtClerkJosephWoodson–Mayor’sOffice,MetroCouncilLiaisonTaliaLomax-O'dneal–FinanceDirectorTerryCobb–DirectorofCodes&BuildingSafetyBillPenn–AssistantDirectorofPropertyStandardsDivisionTomEddlemon–FinanceDepartment,TreasurerPiperJones–FinanceDepartment,CollectionsOfficeSupervisorMargaretDarby-DepartmentofLawSusanT.Jones-DepartmentofLawBillHerbert–ZoningAdministratorGregStiles–PropertyStandardsChristineGibson–PropertyStandardsWayneDenton–PropertyStandardsRonMitchell–PropertyStandardsHon.AllegraWalker,JudgeEnvironmentalCourt–GeneralSessionsCourtDonnaLiles–PropertyStandardsSgt.MichaelFisher–MetroNashvillePoliceDepartmentJimTodd,EnvironmentalCourtReferee–GeneralSessionsCourtSharonWahlstrom,DepartmentofPublicWorks-FinanceJeffGossage,DepartmentofFinance-ProcurementMetroCouncilMembersandStaffBurkleyAllenFreddieO’ConnellColbySledgeNancyVanReeceBobMendesBrettWithersSamColemanSuzanneAbelBrandonBurnette


OtherNashvilleNeighborhoodAlliance(5representatives)TerryClements,VPGovernment&CommunityRelationsNashville

ConventionandVisitorsCorporationUlrikBlazer,CEOHOSTComplianceJillianIrvin,AirbnbPublicPolicyDirectorChrisLehane,AirbnbGovernmentRelationsforSoutheastRegionMatthewCurtis-HomeAwaySeniorDirector,GlobalGovernmentAffairsandPublicPolicyAshleyHodgini-HomeAwayGovernmentAffairsManager,SoutheastRegionIndianapolis:BrianWilson–BusinessandNeighborhoodServicesChattanooga:DonnaCasteel,DivisiondirectorforInspectionsHamiltonCounty:GregJones,CodeInspectorAustin:DonaldBirkner–CodeEnforcementDivision


AppendixIV

PropertyStandardsDivisionComplaintProcesses


PropertyStandardsDivision

ComplaintProcesses

TheinvestigationofpotentialviolationsoftheMetroCodebeginswithreportsfromvarioussources.Sincethereisnocentralizedprocessfortheintakeofcomplaints,wedonothavedataonhoweachcomplaintcameintothesystem.ComplaintsareroutedthroughCouncilmembers,thePoliceDepartment,311calls,theCodes&BuildingSafetywebsite,andemailstotheMayorandPropertyStandardsDivision.OncePropertyStandardsreceivesacomplaint,thesequenceofeventsinthisprocessisbelow.RequestforService:Someone(citizen,Councilmember,MetroemployeeormemberofPropertyStandardsDivision)noteswhatheorshebelievestobeaviolationandreportsit.TheexistenceofmultiplechannelsisachallengethatourstaffhasbroughttoMetroGovernment’sattentionbefore.Requestsmayinitiatefrom:

1. Directcitizenrequest2. CouncilMemberrequest,ofteninitiatedbycitizens3. ReferralsfromotherMetrostaff4. FieldobservationsbyPropertyStandardsstaff

TherequestsmayreachPropertyStandardsthroughthefollowingchannels:

1. PhonecallstoPropertyStandards2. ReportsonlinetothePropertyStandardscustomerservicedesk,locatedat

https://www.nashville.gov/Codes-Administration/Property-Standards/Code-Enforcement/Report-A-Codes-Violation.aspx

3. Emailsorhandwrittennotes4. 311requestsreferredtoPropertyStandards

Whileitmayseemappealingtooffermanywaystogethelp,itisalsoconfusing.WeaskedCouncilMembersiftheyknewifcitizenstriedtogettheirproblemssolveddirectlywithPropertyStandardsbeforecallingCouncil.Theysaidthattheydonotalwaysknow,butthatitcanbeconfusingtoknowhowtoaskforhelpandthatcitizensassumethataCouncilMemberwillbeabletocutthroughtheredtape.PropertyStandardsmighttakethisasausefulpieceofadviceonhowtostreamlinethecustomerserviceexperience.Assignment:ThePropertyStandardsDivisionCustomerServiceDivisionlogstheRequestforServiceinCityWorks(avendor-suppliedplatformthatmanages,assignsandtracks


workorders).CityWorksusestheaddressoftheRequestforServicetoassignthemattertoaninspectorwithgeographicresponsibilityforthelocationofthecomplaint.Beforeproceedingtoaninspection,theremaybeadditionalresearchrequired.Areportofanunregisteredshort-termrentalpropertyrequiressomeonetoverifyifthepropertyisregistered.Ifso,thecomplaintwouldbeunfoundedanditwouldnotbeappropriatetovisitthesite.Forahighweeds/grasscomplainttobevalidthevegetationhastoexceedacertainheight.Abandonedvehiclesmustmeetspecificcriteria,suchasthenumberofbrokenwindows.FieldInspection:Aninspectorvisitsthesitetoassessifthereisacodeviolation.Ifnot,theallegationisclassifiedas“unfounded”andthematterisdocumentedasresolved.Ifso,theinspectorissuesaNoticetoCorrectViolation.TheNoticedescribesthefindingandindicatesadatebywhichtheviolationmustbeabated,eitherbyceasingthebehavior,cleaningorrepairingthepropertyorexplainingwhytheownerbelievestheNoticetobeinerror.TheDivisionprovideddataonhowlongittakesbeforethereisaninitialinvestigationofacomplaint:

PercentofNewCasesInvestigatedwithin 2013 2014 20153days 67% 67% 69%5days 83% 84% 84%10days 100% 100% 100%NumberofNewCases 13,342 11,923 12,955

TherehavebeensuggestionstoincreasestaffingofthePropertyStandardsDivisiontorespondtorequestsforserviceoutsideofstandarddaytimebusinesshours.PropertyStandardshascoverageforweekendsandevenings,buttheissuewouldbewhetherthatisenough.Insomecases,thiswouldnotprovideimmediaterelieftoapartyseekingit,sincethedueprocessassociatedwiththeCodeisnotonewhereremediesarereachedonthespot.However,itmaybehelpfulincollectingevidenceofviolationstoimprovethechanceofprevailingincourt.Thiswouldbeahitandmissproposition,sincenoiseandbehavioralcomplaintsaretheresponsibilityofMetroPolice.Otherviolationswould,inmostcases(e.g.,highgrass,abandonedvehicles,junk,trashanddebris)stillbevisiblethenextday.Iftheseconditionswerenotvisiblethenextday,itmaywellbethatthecomplaintwasunfoundedorresolvedwithoutinterventionbyMetrostaff.Hearing:ViolationsarereferredtoEnvironmentalCourtforadjudication.Eachpartymakesitscaseandthejudgeorrefereedeterminesthedisposition.


Tennesseelawpermitsafinefornon-compliance,butonlyfor$50perincidentperday.Itmaybepossibletodefineanincidentaseachdaythattheviolationexists,butthecourthasheldtheremedytoahighstandardofevidence.Forexample,ifMetroGovernmentcanproveaviolationineffectonthefirstandlastdaysofaperiod,thecourtswillnotpresumeaviolationexistedintheinterveningdays.ItwouldbefairtosaythatMetroGovernmentdoesnotseektocollectsignificantfines,butonlytohaveremediesthatwillincentivizedesiredbehaviors.Thatdoesnotappeartobethecase.Someproblemshaveabatedovertime,suchasabandonedvehicles,whichhappenmuchlessfrequentlythantheyoncedid.However,forshort-termrentalproperties(includingthosenotauthorizedtorentatall),therentalmarketissolucrativethatthefinesdonothavemuchimpactonbehavior.Ourinterviewsrevealedreportsoflandlordschargingasmuchas$10,000perweekendforashort-termrental.Inthatsituation,a$50fineisnotmeaningful.


AppendixV

DataManagementReportingElements


DataManagementReportingElementsWerecommendthatPropertyStandardsseektorecordthefollowingdataintheCityWorkssystem.Thisdatawillallowforimprovementstomanagementreportingandperformancemonitoring.

• DatecomplaintorincidententeredintoCityWorks• DatecomplaintorincidentreportedtoanotherMetroagency(e.g.,Councilmember,

Mayor’sOffice,311systemPoliceDepartment,etc.)• Datecomplaintorincidentreportedtoanotheragency• Reason(s)forcomplaint(codesneedtobeestablishedforeachtypeofcode

reported)• DateassignedforDivisioninvestigation• Determinationofstatusasashort-termrentalproperty

o Isthispropertypermittedasashort-termrentalo Isthispropertyoperatingasashort-termrental

• Address(number,street,unit)• District• Teamassignedtoinvestigate(e.g.,Red,Blue,Flex,other)• Personassignedtoinvestigate• Dateofinitialinvestigation• Investigatorsfindings(checkboxesfor):

o Typeofcomplainto Complaintvalid(yesorno)o Ifcomplaintvalid:

§ Recommendedforfollow-up(describetypeofactivity)§ RecommendedforEnvironmentalCourt§ RecommendedforAdministrativeHearing

• Reinspectionsrequired(Yes/No)o Dateo Inspectoro Codeforreinspection(e.g.,anothercomplaint,30-dayfollow-up,etc.)

• ReferralstoEnvironmentalCourtorAdministrateHearingo Casenumbero Datereferredo Result(e.g.,abatement,fine,etc.)

report on staffing and organization of the property standards...

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