ࡱ> (ce g x j j jjjjjO@ bjbjFF  ,,Q]BBBF>>>*>I >I >I J tRR t*"nq .u u u u 7 R  imkmkmkmkmkmkm$oRrjm>) ۔ \7 ) ) mu u m6 ) `u >u im ) im :n> c u q Zܳ_>I P,wtmH"nRrM VrXcBD%,ND,c\r>qc  ~  F mm*VDX *V PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION EVALUATING THE IMPLEMENTATION OF SELECTED RECOMMENDATIONS FROM THE JANUARY 2001 STRATIFIED MANAGEMENT AND OPERATIONS AUDIT Prepared By The Pennsylvania Public Utility Commission Bureau Of Audits Issued May 2005 Docket No. D-03MEI020 PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION TABLE OF CONTENTS Chapter PageI.INTRODUCTION  A. Background1 B. Objective and Scope1 C. Approach2II.SUMMARY OF MANAGEMENT EFFECTIVENESS AND4OPERATING EFFICIENCYIII.CORPORATE PLANNING22IV.STAFFING LEVELS24V.SUPPORT SERVICES28VI.ONGOING OR PLANNED EFFORTS32VII.CORPORATE GOVERNANCE34VIII.CUSTOMER SERVICE, BILLING AND COLLECTION46IX.GAS DISTRIBUTION AND SUPPLY MANAGEMENT67X.FINANCIAL MANAGEMENT78 XI. INFORMATION TECHNOLOGY 94XII.HUMAN RESOURCE MANAGEMENT102XIII.DIVERSITY AND EQUAL EMPLOYMENT OPPORTUNITY114XIV.PROPOSED WORK MANAGEMENT AND MANPOWER PLANNING PROGRAM125XV.ACKNOWLEDGEMENTS127 PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION LIST OF EXHIBITS Exhibit PageI-1Philadelphia Gas Works Organization Chart as of July 10, 20033II-1Summary of January 2001Management Audit Recommendations and Staffs Follow-up Findings, Conclusions, and Recommendations7III-1Preferred Practices Checklist: Corporate Planning22IV-1Span of Control Analysis25V-1Workers Compensation Expenses29V-2Calendar Year Safety Record30VII-1Responsibilities for Oversight35VII-2Philadelphia Gas Commission Expenses37VII-3Philadelphia Gas Works Organization as of July 10, 200341VIII-1Customer Bills Based on Estimated and Actual Meter Readings47VIII-2Meters by Type and Customer Classification49VIII-3Aging of Delinquent Accounts Receivable51VIII-4Bad Debt Write-offs 1995-199951VIII-5Bad Debt Write-offs 2001-200352VIII-6Aging of Delinquent Accounts Receivable53VIII-7Steps Required to Shut Off Residential Service and Timeline Year 200054VIII-8Steps Required to Shut Off Residential Service and Timeline Year 200355 PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION LIST OF EXHIBITS CONTINUED Exhibit  PageVIII-9Customer Service Field Appointments Made and Completed58VIII-10Customer Responsibility Program Costs to Customers63VIII-11Customer Responsibility Program Design66IX-1Historical Cast Iron Main Replacements68IX-2Bare Steel Service Replacements69IX-3Coated-but-not-Cathodically Protected Steel Main Replacements70IX-4Engineering Staffing Levels71IX-5Contractor Utilization Levels73IX-6Inventory Turnover Data75X-1Comparison of Selective Cash Flow Indicators81X-2Comparison of Selective Balance Sheet Categories82X-3Comparison of Selective Income Statement Categories82X-4Latest Revisions Made to the Controllers Procedural Manual 90XI-1IT Functions Costs96XI-2IT Components Costs97XI-3Estimated Fiscal Year Project Costs and Cost Savings for ADP Payroll/HIRS System99XI-4IT Costs Per Customer101 PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION LIST OF EXHIBITS CONTINUED Exhibit  PageXII-1Comparative Sales Employees Salaries Examples103XII-2 XII-3 XII-4 XII-5 XIII-1 XIII-2 XIII-3 XIII-4Rate of Annual Wage Increases/Estimated Savings Realized Safety Results Comparison of Lost Time to Accidents per 100 Employees to Panel Companies Fringe Benefit Costs Number of Employees by EEO Category 2003 Job Group Utilization Analysis New Hires Summary for 2001 through 2003 Total Utility Purchases for Minority, Women, and Disabled Person Businesses for the Years 1999 - 2002 106 109 109 113 116 119 121 124  I. INTRODUCTION A. Background On April 27, 2000 the Pennsylvania Public Utility Commission (PUC or Commission) accepted the Barrington-Wellesley Group, Incs. (BWG or Consultant) proposal to perform a stratified management and operations audit of the Philadelphia Gas Works (PGW). BWG subsequently completed its work, and in January 2001, issued a final report containing 76 recommendations for improvement. PGW submitted its Implementation Plan in response to the audit, in March 2001, classifying 68 recommendations as accepted, 5 as accepted in part, and three as rejected. On April 5, 2001, at D-0099M038, the Commission made the audit report public and directed PGW to: Proceed with its March 2001 Implementation Plan. Submit progress reports on the implementation semiannually for the next three years, with the first report to be submitted by October 1, 2001. From April 2001 to January 2004, PGW had submitted five semiannual Implementation Plan updates as required by the Commission to ascertain the Companys progress in implementing recommendations from the management audit report. Based on a review of these updates, the Management Audit Division elected to conduct a Management Efficiency Investigation (MEI) of PGWs progress in implementing 48 of the original 76 recommendations. Specific items of management effectiveness and operational efficiency may be investigated pursuant to Title 66 Pa. C.S. 516(b). B. Objective and Scope The objective of this MEI was to review and evaluate the effectiveness of PGWs efforts to implement certain recommendations contained in the previous BWG Stratified Management and Operations Audit Report. The scope of this evaluation was limited to PGWs efforts in implementing 48 prior management audit recommendations in the functional areas of: Corporate Planning Staffing Levels Support Services Ongoing or Planned Efforts Corporate Governance Customer Service, Billing and Collection Gas Distribution and Supply Management Financial Management Information Technology Human Resource Management Diversity and Equal Employment Opportunity Proposed Work Management and Manpower Planning Program C. Approach This MEI was performed by the Management Audit Staff of the PUCs Bureau of Audits (Audit Staff). Actual fieldwork began on October 6, 2003, and continued through January 21, 2004. The fact gathering process included: Interviews with key PGW personnel. Analysis of selected PGW records, documents, reports, and other information for the period 1999 through 2003 and selected 2004 as available; including the Companys organization chart as shown on Exhibit I-1. Visits to select Company facilities.  II. SUMMARY OF MANAGEMENT EFFECTIVENESS AND OPERATING EFFICIENCY The Audit Staff found that Philadelphia Gas Works (PGW) has effectively or substantially implemented 19 of the 48 prior management audit recommendations reviewed and has taken some action on the remaining 29 recommendations. Among the more notable improvements achieved by the management of PGW are: Salary and wage increases for union and non-union employees for the period 2000 to 2004 occurred at a rate less than the Consumer Price Index resulting in estimated savings of $24.0 million for the period 2000 to 2003 and continuing estimated annual savings beginning in 2004 of approximately $9.4 million. The implementation of a labor relations strategy that promotes productivity improvement and reductions in labor costs. The reduction of employee absenteeism from an average of 16 days to an average of 7.5 days, which resulted in estimated annual savings of $3.4 million. The increase in inventory turnover from 2.0 to 2.6 resulted in one-time savings of $2.7 million and annual carrying cost savings of $405,000. The partial closing of two district Customer Service Centers resulted in annual savings of approximately $876,000. The development of corporate planning documents that more accurately reflects the current realities of the Companys operating environment. The reduction in the Companys workers compensation expenses and rate of accidents has resulted in annual savings of approximately $456,000. The reduction of monthly disability payouts resulted in annual savings of approximately $80,000. The provision of timely information and improvement initiatives to the Companys stakeholders. The implementation of a new organization structure and encourage managers to communicate policies on a departmental and Company-wide basis. The establishment of an ethics hotline and an Ethics Officer to manage the program. The acceleration of the Companys cost iron main replacement program to reasonable levels. The use of engineering firms to augment staffing needs to reduce the engineering work backlog has resulted in a one-time savings of $200,000. The development and implementation of a formal information technology planning process. Taken appropriate steps to reduce and control IT costs resulting in annual savings of $4.2 million. The annual preparation and filing of an Affirmative Action Plan. The implementation of a vehicle management information system that allowed PGW to identify and implement operational improvements resulting in estimated annual savings of $300,000. Phased-out the Senior Citizens Discount Program resulting in estimated annual savings of approximately $850,000 over the next 16 years. While these accomplishments are commendable, the Audit Staff has identified further improvement opportunities in certain areas. In particular, PGW needs to: Reduce the accounts receivable write-off rate to industry averages which would result in annual savings of $29.0 million. Reduce the number of accounts that have not been read for at least six months and complete the installation of AMR meters which would result in $44.0 million of net present value savings over the next eleven years and estimated annual savings of $14.0 million during 2004. Increase inventory turnover from 2.6 to 3.0 which will result in estimated one-time savings of $633,000 million and annual carrying cost savings of $95,000. Reduce the meter read to bill mailing cycle down to one day which would result in a one-time savings of $22.0 million and annual savings of approximately $883,000. Reevaluate closing the six district Customer Service Centers which would result in annual savings of approximately $1.25 million. Continue efforts to eliminate the Senior Citizens Discount program which would result in estimated annual savings of approximately $19.3 million ($20.2 million current SCD cost less $850,000 savings from modifications addressed above) offset by the cost of senior citizens who would be eligible for universal service fund assistance. Reduce fringe benefit costs for current and retired employees which would result in annual savings of approximately $246,000. Reduce the number of supervisory positions which would result in annual savings of approximately $1.4 million. Take additional steps to reduce the cost of the Philadelphia Gas Commission and eliminate any redundancies and overlap in responsibilities which would result in annual savings of $1.3 million. Apply due diligence efforts to meet corporate governance guidelines and recommendations of the Commission, the Securities and Exchange Commission and the Public Company Accounting Oversight Board. Reduce the size of the Companys uncollectible accounts (bad debt write-offs) and delinquent receivables. Increase cathodic protection/replacement efforts for coated but unprotected protected steel mains to more reasonable levels. Update the Companys accounting procedures manual and set a schedule for taking inventory and tracking of its capital assets. Proceed with efforts to outsource Human Resource mainframe applications which would result in estimated annual savings of $300,000. Develop and implement a formal pay-for-performance plan. Set goals and develop strategies to increase diversity purchases and document the effort to obtain purchases from MWDBE vendors. Develop a work management and manpower planning program, which the consultant estimated would produce annual savings of $10 million within three to five years of implementation. PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION SUMMARY OF JANUARY 2001 MANAGEMENT AUDIT RECOMMENDATIONS AND STAFFS FOLLOW-UP FINDINGS, CONCLUSIONS, AND RECOMMENDATIONS Public Utility Commission Bureau of Audits Prior RecommendationsOriginally Targeted Completion DateMEI Finding NumberStaffs Follow-up Findings And Conclusions as of January 21, 2004Staffs Follow-up RecommendationIII. CORPORATE PLANNINGEnsure that the planning process incorporates bottom-up input from individual departments, is linked to the budgeting process, and reflects the realities of PGWs operating environment.September 20011The Company has made significant improvements to its corporate planning process. None.IV. STAFFING LEVELSReduce the number of positions that have high or low spans of control.March 20022While the Company has made some progress in reducing the number of positions that have high and low span of control ratios, further improvement is possible. Periodically analyze each position that has a span of control outside a 1:4 to 1:9 reporting range, and adjust job duties as appropriate based on the results of this review.Develop and implement a labor relations strategy that will promote improved productivity and lower labor costs.October 20013The Company has implemented a labor relations strategy to promote improved productivity and control labor costs.None.V. SUPPORT SERVICESTake steps to reduce workers compensation claims costs.January 20024The Company has been able to control its workers compensation expenses and effectively reduce the rate of accidents.None. PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION SUMMARY OF JANUARY 2001 MANAGEMENT AUDIT RECOMMENDATIONS AND STAFFS FOLLOW-UP FINDINGS, CONCLUSIONS, AND RECOMMENDATIONS Public Utility Commission Bureau of Audits Prior RecommendationsOriginally Targeted Completion DateMEI Finding NumberStaffs Follow-up Findings And Conclusions as of January 21, 2004Staffs Follow-up RecommendationVI. ONGOING OR PLANNED EFFORTSDevelop and implement a status reporting system that will provide timely and specific information regarding improvement initiatives to the PUC, the Philadelphia Facilities Management Corporation (PFMC) Board of Directors, the City Council, and the Mayor.December 20015PGW has been successful in providing timely information regarding a broad range of topic areas, including improvement initiatives and on-going and planned corporate efforts, to its various stakeholders.None.VII. CORPORATE GOVERNANCERevise the governance structure of PGW to make it more accountable and to eliminate overlapping responsibilities.Rejected6While the Company established a formal management selection process, sufficient responsibility was not assigned to the PFMC Board, the Philadelphia Gas Commission was not eliminated, and the projected annual savings of $1.3 million was not realized.Continue efforts to work with City Council and the Mayors Office to revise the corporate governance structure of PGW to make it more accountable and eliminate overlapping responsibilities. 7The Company has not made a due diligent effort to meet those guidelines recommended by the Commission, the Securities and Exchange Commission (SEC), and the Public Company Accounting Oversight Board (PCAOB).Make a due-diligence effort to comply with the intent of corporate governance guidelines recommended by the Pennsylvania Public Utility Commission and the related standards established by the SEC and the PCAOB. PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION SUMMARY OF JANUARY 2001 MANAGEMENT AUDIT RECOMMENDATIONS AND STAFFS FOLLOW-UP FINDINGS, CONCLUSIONS, AND RECOMMENDATIONS Public Utility Commission Bureau of Audits Prior RecommendationsOriginally Targeted Completion DateMEI Finding NumberStaffs Follow-up Findings And Conclusions as of January 21, 2004Staffs Follow-up Recommendation VII. CORPORATE GOVERNANCE (continued)Complete implementation of the new organization structure, and take steps to encourage managers to set and communicate consistent policies to employees in all PGW departments.May 20028PGW has implemented a new organization structure and has taken steps to encourage its managers to set and communicate consistent policies on a departmental and corporate-wide basis.None.Take steps to improve PGWs interfaces with outside parties.February 20029PGW has a program in place that allows it to respond positively and expeditiously to the needs of those governmental agencies that influence its day-to-day operations.None.Establish an ethics hotline reporting directly to PGWs manager of internal audit or its chief legal counsel.February 200210PGW established an ethics hotline which is managed by its Ethics Officer, an attorney who works in the Companys Office of General Counsel.None. PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION SUMMARY OF JANUARY 2001 MANAGEMENT AUDIT RECOMMENDATIONS AND STAFFS FOLLOW-UP FINDINGS, CONCLUSIONS, AND RECOMMENDATIONS Public Utility Commission Bureau of Audits Prior RecommendationsOriginally Targeted Completion DateMEI Finding NumberStaffs Follow-up Findings And Conclusions as of January 21, 2004Staffs Follow-up RecommendationVIII. CUSTOMER SERVICE, BILLING AND COLLECTIONTake steps to reduce the number of estimated bills and ensure that no customer goes over six months without a meter read. Update factors for calculating estimated bills on an annual basis. Ongoing11The number of meters not read for several months has been significantly reduced, but too many meters are still not read for an extended period of time and the Company has not updated its factors for calculating estimated bills.Establish procedures to arrange field visits to all customers who have not had their meter read for at least six months and to periodically update the factors used to calculate the estimated bills.Complete the installation of automated meter reading (AMR) devices on commercial/industrial accounts to improve the cost effectiveness of reading their meters.FY 200512PGW has not completed the installation of AMR meters for its commercial/industrial accounts.Complete the installation of AMR devices on commercial/industrial accounts to improve the cost effectiveness of reading their meters. Take steps to improve delinquent payments and uncollectible accounts.March 200213The Company has not significantly reduced the size of its uncollectible accounts (bad debt write-offs) and delinquent receivables have increased substantially.Strengthen credit and collections policies and procedures, and implement changes as necessary to reduce the write-offs of uncollectible accounts.Revise policies so that PGW can shut off customers after 32 days compared to its current 48-day termination.September 200314PGWs current shut-off procedures comply with Commission regulations. None. PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION SUMMARY OF JANUARY 2001 MANAGEMENT AUDIT RECOMMENDATIONS AND STAFFS FOLLOW-UP FINDINGS, CONCLUSIONS, AND RECOMMENDATIONS Public Utility Commission Bureau of Audits Prior RecommendationsOriginally Targeted Completion DateMEI Finding NumberStaffs Follow-up Findings And Conclusions as of January 21, 2004Staffs Follow-up RecommendationVIII. CUSTOMER SERVICE, BILLING AND COLLECTION (continued)Review the feasibility of reducing the meter read-to-billing cycle lag to one day.September 200115PGW has modified its meter read-to-billing cycle procedures, but has failed to shorten its billing cycle.Implement changes to the billing process in order to mail bills to customers the day after their meter readings are acquired. Measure appointments kept for field service work from the standpoint of the customer, that is, actually accomplishing the work desired, and not on whether the employee says he or she was at the job site at a specific time.January 200216PGW now has daily customer service metrics that measure completion of appointments and show the status of a service order. None.Conduct a study to determine which district offices should be closed and the timing of their closing.February 200217PGW conducted a cost/benefit study of its Customer Service Centers (CSCs) or district offices which identified substantial potential savings from closure; however, as an alternative the Company has reduced the CSCs days of operation and closed two of the eight offices from March through October. Reevaluate any further CSC closures by performing an analysis which considers the impact of current laws and regulations and takes into account other relevant circumstances. If further closures are deemed appropriate, develop and implement an action plan and establish a time schedule for implementation.Improve the cost-effectiveness of the Customer Responsibility Program (CRP). March 200118PGW has procedures in place to enforce CRP payment requirements and improve the cost-effectiveness of CRP.None. PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION SUMMARY OF JANUARY 2001 MANAGEMENT AUDIT RECOMMENDATIONS AND STAFFS FOLLOW-UP FINDINGS, CONCLUSIONS, AND RECOMMENDATIONS Public Utility Commission Bureau of Audits Prior RecommendationsOriginally Targeted Completion DateMEI Finding NumberStaffs Follow-up Findings And Conclusions as of January 21, 2004Staffs Follow-up RecommendationVIII. CUSTOMER SERVICE, BILLING AND COLLECTION (continued)Appeal to the City administration to tighten eligibility rules for PGWs social programs and/or transfer the cost of the social programs from PGW to the City general fund.June 200119PGW has been unsuccessful in transferring the cost of its social programs to the City, but has modified them since the management audit to conform to the Public Utility Code and PUC regulations.Continue efforts to eliminate the Senior Citizen Discount (SCD) from the cost of service provided to ratepayers. IX. GAS DISTRIBUTION AND SUPPLY MANAGEMENTAccelerate the cast iron main replacement program to 27 miles per year.Ongoing20The Company has accelerated its cast iron main replacement program to reasonable levels.None.Accelerate the replacement or cathodic protection programs for coated-but-not-cathodically protected steel main, and continue to replace bare steel services.Ongoing21PGW has adequately replaced bare steel services, but has not achieved targeted replacement levels for coated-but-not-cathodically protected steel main. Increase cathodic protection or replacement efforts for coated but unprotected steel mains to more reasonable levels and, at a minimum, maintain current bare steel service replacement levels.Evaluate engineering staffing levels and trends to determine the most cost-effective way to obtain engineering services.May 200222PGW has adequately addressed its engineering staffing levels and has begun using engineering firms to augment its staff for specialized needs and to meet peak workload conditions.None. PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION SUMMARY OF JANUARY 2001 MANAGEMENT AUDIT RECOMMENDATIONS AND STAFFS FOLLOW-UP FINDINGS, CONCLUSIONS, AND RECOMMENDATIONS Public Utility Commission Bureau of Audits Prior RecommendationsOriginally Targeted Completion DateMEI Finding NumberStaffs Follow-up Findings And Conclusions as of January 21, 2004Staffs Follow-up RecommendationIX. GAS DISTRIBUTION AND SUPPLY MANAGEMENT (continued)Reduce PGW crews wages and/or increase their productivity to make them more cost-effective, or contract out more construction work. October 200123PGW has implemented measures to mitigate construction labor costs. None.Solicit bids to perform janitorial services from union and non-union contractors as well as from PGWs Building Services Department and select the most cost effective bid.August 200224The Company has begun to use outside contractors to perform janitorial services on a limited basis with plans to expand utilization of contractors to additional facilities in the future.Expand the use of contractors to perform building service janitorial maintenance as staffing levels decline and periodic cost/benefit analyses warrant. Take steps to increase the inventory turnover ratio from 2.7 to 3.0.200325The Company has increased turnover levels since the BWG audit, but they are still below the target ratio.Complete efforts to increase the turnover ratio to 3.0 or higher. Undertake a comprehensive fleet operations improvement program.August 200326PGW has initiated fleet operation improvement measures; however, due to an increasingly aging fleet, its vehicle maintenance costs have continued to increase.Continue to improve fleet operations by utilizing the vehicle management information system to closely monitor fleet activities and, when financial conditions improve, replacing the aging fleet based on a cost and benefit analysis. PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION SUMMARY OF JANUARY 2001 MANAGEMENT AUDIT RECOMMENDATIONS AND STAFFS FOLLOW-UP FINDINGS, CONCLUSIONS, AND RECOMMENDATIONS Public Utility Commission Bureau of Audits Prior RecommendationsOriginally Targeted Completion DateMEI Finding NumberStaffs Follow-up Findings And Conclusions as of January 21, 2004Staffs Follow-up RecommendationX. FINANCIAL MANAGEMENT Take the necessary steps to mitigate the current financial crisis and implement appropriate measures to ensure that PGW is not allowed to make the types of questionable transactions that have compromised its financial position and impaired its credibility with lenders, the rating agencies, and others in the financial community.February 200227Although PGW has taken a number of steps in an attempt to improve its financial condition, the Companys financial situation has not improved significantly. Continue efforts to improve the Companys financial situation, particularly as those efforts relate to generating additional cash flow. Establish a functioning audit committee on the Philadelphia Financial Management Corporation (PFMC) Board of Directors, and restore a viable internal audit function either internally or by outsourcing it.September 200128The PFMC Board has reconstituted the Audit Committee; updated the Audit Committee Charter to reflect the current organization of the Company, and the committee members roles and responsibilities; and outsourced most of PGWs internal audit functions.Periodically review and update all PFMC committee charters, and expeditiously implement internal audit recommendations. Revise the Audit Committee Charter to establish the Director of Internal Audits as the Companys direct contact with the Audit Committee.  PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION SUMMARY OF JANUARY 2001 MANAGEMENT AUDIT RECOMMENDATIONS AND STAFFS FOLLOW-UP FINDINGS, CONCLUSIONS, AND RECOMMENDATIONS Public Utility Commission Bureau of Audits Prior RecommendationsOriginally Targeted Completion DateMEI Finding NumberStaffs Follow-up Findings And Conclusions as of January 21, 2004Staffs Follow-up RecommendationX. FINANCIAL MANAGEMENT (continued) Require the external auditing firm to adhere to SEC guidelines that require the rotation off the assignment if the partner-in-charge has served in that capacity for seven or more years. December 200129The Companys current external accounting firm has a policy to rotate its partner-in-charge from the assignment after serving five consecutive years; however, the PFMC Audit Committee and PGW have not enacted this requirement. Establish a written policy that assures the rotation of the accounting firms partner-in-charge relative to the PGW audit assignment after serving seven consecutive years, similar to the policies and procedures required for SEC registrants and by the Sarbanes-Oxley Act.Establish a finance committee on the Philadelphia Financial Management Corporation (PFMC) Board of Directors with specific responsibilities to monitor PGWs capital and operating budget processes and budget variances.March 200130A PFMC Finance Committee was created by Board Resolution; however, a Charter spelling out specific roles and responsibilities has not been prepared. Complete the development of a PFMC Finance Committee Charter with specific responsibilities to track and monitor PGWs capital and operating budget, variances, and earnings and cash flow projections; and, prepare and file the appropriate minutes of the Finance Committee with the PFMC Board Minutes Book. Assign responsibility to the treasurers department for establishing and enforcing cash management policies including accounts receivable collection policies and procedures. March 200231The Treasurers current job duties include responsibility for cash management. Update the job description for PGWs Treasurer to reflect current job duties and responsibilities.  PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION SUMMARY OF JANUARY 2001 MANAGEMENT AUDIT RECOMMENDATIONS AND STAFFS FOLLOW-UP FINDINGS, CONCLUSIONS, AND RECOMMENDATIONS Public Utility Commission Bureau of Audits Prior RecommendationsOriginally Targeted Completion DateMEI Finding NumberStaffs Follow-up Findings And Conclusions as of January 21, 2004Staffs Follow-up RecommendationX. FINANCIAL MANAGEMENT (continued) Update accounting procedures manuals and implement procedures for the inventory and tracking of capital assets.May 200332PGW has not updated its accounting procedures manual, nor has it implemented a schedule for taking inventory or tracking its capital assets. Update the Companys accounting procedure manual, and expeditiously implement a procedure to track and verify its capital assets on a regular scheduled basis. Take steps to implement all appropriate recommendations from the forensic audit currently being performed by an external accounting firm.May 200233The Company claims to have taken the appropriate steps to resolve the findings identified in the draft forensic audit.Complete the disposition of the forensic audit findings. Provide a summary to the PUCs Bureau of Audits of the problem areas identified by the forensic audit and how PGW addressed the recommendations for improvement.XI. INFORMATION TECHNOLOGYDevelop and implement a formal information technology (IT) planning process. Ongoing34PGW now has a formal IT Department planning process and an up-to-date IT strategic plan.None. PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION SUMMARY OF JANUARY 2001 MANAGEMENT AUDIT RECOMMENDATIONS AND STAFFS FOLLOW-UP FINDINGS, CONCLUSIONS, AND RECOMMENDATIONS Public Utility Commission Bureau of Audits Prior RecommendationsOriginally Targeted Completion DateMEI Finding NumberStaffs Follow-up Findings And Conclusions as of January 21, 2004Staffs Follow-up RecommendationXI. INFORMATION TECHNOLOGY (continued)Emphasize outsourcing as a means for developing and implementing new information technology (IT) applications to the extent possible.May 200135PGW now out sources most of its projects; however, the IT Department does not currently have a comprehensive sourcing strategy.Develop a comprehensive IT application strategy that defines the process for evaluating which projects to outsource or to perform in house, selecting vendors, and project oversight.Continue efforts to select and implement a new Human Resource Information System (HRIS).January 200336PGW has outsourced its current human resources database; however, its human resource history is still on the Companys mainframe database.Proceed with the effort to outsource mainframe applications to a qualified vendor as resources allow.Take steps to reduce and control IT costs, and make the IT and user departments accountable for IT costs.April 200337PGW has taken steps to control IT costs and has made the IT Department and user departments accountable for IT costs.None.XII. HUMAN RESOURCE MANAGEMENTDevelop an ongoing plan to manage the wage and salary levels in an effective manner.September 200138PGW has taken steps to alleviate the compensation compression problems; however, it has not developed an ongoing salary and wage policy or a process to assure that compensation compression is monitored and addressed in the future.Implement a salary and wage policy that includes monitoring the pay of top union earners and ensuring that first-line supervisors earn more than their union subordinates. PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION SUMMARY OF JANUARY 2001 MANAGEMENT AUDIT RECOMMENDATIONS AND STAFFS FOLLOW-UP FINDINGS, CONCLUSIONS, AND RECOMMENDATIONS Public Utility Commission Bureau of Audits Prior RecommendationsOriginally Targeted Completion DateMEI Finding NumberStaffs Follow-up Findings And Conclusions as of January 21, 2004Staffs Follow-up RecommendationXII. HUMAN RESOURCE MANAGEMENT (continued)Develop and implement an incentive compensation program that rewards personnel for high-level achievements that are specifically tied to supporting PGWs strategy.September 200139PGW has not initiated an ongoing performance based incentive compensation program.Develop and implement a pay for performance program that uses merit and incentive increases for meeting specific business objectives.Limit future compensation increases to a level no greater than the consumer price index (CPI).October 200140PGW has achieved cost savings of approximately $24 million by limiting base wage increases for 2000 through 2003 to rates well below the rates of CPI increase.None.Take steps to insure that the Code of Ethics and conflict of interest policy are understood by all employees, and obtain proof that each employee has a copy of the policies.May 200241PGWs 2002 Ethics Policy was distributed to non-union personnel at ethics training sessions; however, there continues to be no documentation indicating which employees received Ethics Policy training, nor confirmation that they have seen the policy and agreed to its terms.Negotiate a provision in the next collective bargaining agreement whereby it is stated that the Companys Ethics Policy applies to employees as a condition of employment. Provide ethics training and a copy of the Ethics Policy to all employees, requiring them to evidence receipt and agreement with the terms of the Policy. PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION SUMMARY OF JANUARY 2001 MANAGEMENT AUDIT RECOMMENDATIONS AND STAFFS FOLLOW-UP FINDINGS, CONCLUSIONS, AND RECOMMENDATIONS Public Utility Commission Bureau of Audits Prior RecommendationsOriginally Targeted Completion DateMEI Finding NumberStaffs Follow-up Findings And Conclusions as of January 21, 2004Staffs Follow-up RecommendationXII. HUMAN RESOURCE MANAGEMENT (continued)Enhance union-management safety training efforts and develop specific annual goals for achieving improved safety levels.August 200342PGW has improved safety levels substantially as a result of a comprehensive safety training program that includes specific safety goals.None.Reduce absenteeism through consistent treatment and increased focus on back to work programs. Establish a process to monitor and quantify the cost of absenteeism. Review the cost effectiveness of PGWs attendance reward plan.January 200243PGW has centralized its attendance policies, implemented an Attendance Tracking System (ATS), and significantly reduced its employee absenteeism, but has not yet established a process to quantify its cost of absenteeism.Establish an automated process to quantify and monitor the cost of absenteeism and link the certification process to the Attendance Tracking System.Take steps to reduce fringe benefit costs.December 200144PGWs fringe benefit costs continue to rise and exceeded 50 percent of payroll in the fiscal years ending August 31, 2002 and August 31, 2003.Expedite and expand efforts to control fringe benefit costs. PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION SUMMARY OF JANUARY 2001 MANAGEMENT AUDIT RECOMMENDATIONS AND STAFFS FOLLOW-UP FINDINGS, CONCLUSIONS, AND RECOMMENDATIONS Public Utility Commission Bureau of Audits Prior RecommendationsOriginally Targeted Completion DateMEI Finding NumberStaffs Follow-up Findings And Conclusions as of January 21, 2004Staffs Follow-up RecommendationXIII. DIVERSITY AND EQUAL OPPORTUNITY EMPLOYMENTEnsure that the Philadelphia Financial Management Corporation (PFMC) Board of Directors requires that PGW file an Affirmative Action Plan (AAP) on an annual basis.December 200145PGW is preparing AAPs annually in accordance with direction from the PFMC Board of Directors.None.Identify the employment areas that are below parity in the year 2000 and develop feasible approaches for reaching parity.August 200246PGW has identified its under-utilized job groups and has developed approaches for reaching parity.Strive to improve utilization in under-utilized job groups.Hold senior management accountable for implementing the diversity policy approved by the PFMC Board of Directors.January 200247PGW is now holding senior management more accountable for improvement in the diversity program and increases in employee utilization.None.Develop and implement a meaningful minority business enterprise, women business enterprise, and persons with disabilities owned business enterprise (MWDBE) program for making purchases outside the normal procurement process.March 200148PGW has not developed a program to address purchases made outside the normal purchasing process and has not established goals and strategies to improve diversity purchases.Set goals and develop strategies to increase purchases from (MWDBE) vendors, and document the results.  PHILADELPHIA GAS WORKS MANAGEMENT EFFICIENCY INVESTIGATION SUMMARY OF JANUARY 2001 MANAGEMENT AUDIT RECOMMENDATIONS AND STAFFS FOLLOW-UP FINDINGS, CONCLUSIONS, AND RECOMMENDATIONS Public Utility Commission Bureau of Audits Prior RecommendationsOriginally Targeted Completion DateMEI Finding NumberStaffs Follow-up Findings And Conclusions as of January 21, 2004Staffs Follow-up RecommendationXIV. PROPOSED WORK MANAGEMENT AND MANPOWER PLANNING PROGRAMImplement the proposed work management and manpower planning program In Process49PGW has delayed implementation of the proposed work management and manpower planning program.Implement the work management and manpower planning program as soon as possible. III. CORPORATE PLANNING  Prior Recommendation Ensure that the planning process incorporates bottom-up input from individual departments, is linked to the budgeting process, and reflects the realities of PGWs operating environment. Prior Situation BWG found that PGWs interim senior management had initiated some steps to implement an effective corporate planning process; however, the process did not meet all of BWGs preferred practices (see Exhibit III-1). Essentially, PGWs planning process at the time of BWGs review was only in a draft stage of development with input from individual department and the PFMC Board of Directors still pending. While each individual department was being asked to prepare functional and performance goals, BWG was not sure if departmental goals would coincide with overall corporate goals. In addition, BWG found that the planning process was not adequately linked to the budgeting system and did not reflect the realities of PGWs financial, operating and regulatory environment. Exhibit III-1 Philadelphia Gas Works Preferred Practices Checklist: Corporate Planning BWG Preferred PracticesYesNoDirected by the CEO and approved by the Board of DirectorsXIncludes well-documented and understood processes and responsibilitiesXIncludes significant senior management involvementXUses dedicated resourcesXAddresses a wide range of issuesXIncludes detailed functional and departmental performance goalsXReflects realities of the operating environmentXIncludes appropriate bottom-up inputXLinks to the budgeting system used for allocating and committing operating and capital resources  XSource: Exhibit III-2, from A Stratified Management and Operations Audit of Philadelphia Gas Works, January2001, BWG. Follow-up Finding and Conclusion No. 1 The Company has made significant improvements to its corporate planning process. As of early 2004, the Company is following the traditional corporate planning approach that joins together the corporate planning and budget processes. PGW is setting goals and aligning its budget to meet those goals on an annual basis. The budget process is a department-by-department strategic planning process, in which new or continuing goals coincide with the Companys Strategic Plan. PGW sets goals and aligns its budget to meet those goals on an annual basis. PGW annually submits its Strategic Plan along with its operating and capital budgets to the Philadelphia Gas Commission (PGC). The Companys Strategic Plan is a bottom up approach that incorporates departmental and divisional objectives. PGW operates on a September 1st to August 31st fiscal year basis. The Companys operating budget is usually approved by the PGC in late fall, and by early spring of the following year the capital budget is approved by the Philadelphia City Council. It is important that PGW have a corporate planning and budgeting process that enables departmental managers, at all levels, to drive performance through clearly-defined objectives and metrics that are aligned with the Companys overall vision and mission. However, the Company has now taken the entire process a step further. Under the direct guidance of PGWs President and the Vice President of Strategic Planning, the Company has begun implementing a more refined management-by-objectives process called a Strategy Focused Organization (SFO) approach. Moreover, the Company anticipates that implementation of a more sophisticated planning process, as spearheaded by the President and Vice President of Strategic Planning, will be achieved over time. PGWs new SFO approach is intended to be more continuous and flexible in terms of planning and budgeting, as well as more integrated in terms of the process. It is intended to be more of a rolling (i.e., an ongoing, or modify and add to procedure) rather than an annual budget process. The SFO will consist of business goals and a metrics tracking process for achieving the business goals. However, if the SFO is to be successful, PGW must involve every department in the initial development of their goals and objectives. Based upon our review, it appears that the Company has made significant improvements to its corporate planning process, and that BWGs audit concerns have been substantially addressed. The documents we reviewed show functional and departmental performance goals that reflect the realities of the operating environment, and utilize a bottom-up input process. The planning documents are linked to the budgeting process, which allocates and commits operating and capital resources. Staffs Follow-up Recommendation None. IV. STAFFING LEVELS Prior Recommendation Reduce the number of positions that have high or low spans of control. Prior Situation The Consultant found that PGW had an inordinate number of positions having high or low spans of control. As stated in the BWG report, organizations attempting to minimize layers of management, streamline communications, and, at the same time, promote managerial effectiveness seek spans of control in the range of 1:4 to 1:9. However, in mid-2000, more than a third of PGWs reporting relationships were 1:3 or less and roughly another quarter were 1:10 or greater. Thus, less than 40% of the Companys reporting relationships were within the normally targeted range of 1:4 to 1:9. It was noted that some high and low spans of control were understandable as in certain circumstances (e.g., legal and regulatory affairs departments) changes may not be possible without rendering the work functions ineffective. Therefore, the consultant recommended that PGW evaluate each position with a reporting ratio of 1:3 or lower and 1:10 or greater to determine where there might be a more efficient management structure. The Consultant believed that savings could be generated if supervisory positions could be eliminated. At the same time, if increased supervision was needed in certain circumstances, enhanced productivity and performance could result. Follow-up Finding and Conclusion No. 2 While the Company has made some progress in reducing the number of positions that have high and low span of control ratios, further improvement is possible. PGW has reviewed its reporting ratios, assessed individual reporting relationships, and made adjustments to its organization structure in an effort to improve spans of control. A comparison of the span of control ratios found by BWG in 2000 to those in 2003 is shown on Exhibit IV-1. This comparison indicates that the percentage of positions with reporting ratios in the desired range of 1:4 to 1:9 increased only slightly from 38 to 43 percent. While the number of positions with reporting ratios of 1:3 or less decreased from 69 in 2000 to 60 in 2003, the number of supervisors with 10 or more direct reports increased from 45 in 2000 to 53 in 2003. The data also shows that the number of supervisors increased from 184 to 198. While PGW has improved its ratios somewhat, it appears that there is still considerable room for improvement if the Company applies more scrutiny to its positions with high or low spans of control. As recommended by the Consultant, PGW should periodically (e.g., annually and when circumstances change) evaluate each position with a reporting ratio of 1:3 and lower, or 1:10 and higher, to determine where job duties may be adjusted such that positions with small spans of control might be eliminated or to Exhibit IV-1 Philadelphia Gas Works Span of Control Analysis Fiscal Year 2000 Compared to Fiscal Year 2003 Relationships as of 2000Relationships as of 2003Reporting RatioNumberPercentageNumberPercentage1:12413.0%126.1%1:22513.6%2010.1%1:32010.9%2814.1%1:42111.4%199.6%1:5147.6%178.6%1:62010.9%136.6%1:784.3%178.6%1:852.7%126.1%1:921.1%73.6%1:1021.1%94.5%1:11 to 1:15168.7%2914.6%1:16 to 1:2063.3%73.5%1:21 to 1:2552.7%21.0%1:25 and higher168.7%63.0%Totals =SUM(ABOVE) \# "#,##0"  184 =SUM(above) \# "0%" 100.0% =SUM(ABOVE) \# "#,##0"  198 =SUM(above) \# "0%" 100.0%1:1 to 1:36937.5%6030.3%1:4 to 1:97038.0%8542.9%1:10 and higher4524.5%5326.8%Totals =SUM(ABOVE) \# "#,##0"  184 =SUM(above) \# "0%" 100.0% =SUM(ABOVE) \# "#,##0"  198 =SUM(above) \# "0%" 100.0% Source: A Stratified Management and Operations Audit of Philadelphia Gas Works, January 2001, BWG, Data Request SL-1 for 2003 and auditor analysis. determine instances where increased supervision would improve performance. In cases where the existing reporting relationship is not justifiable, the Company should adjust responsibilities and/or the number of employee reports as appropriate. For those positions where reporting relationships below or above the 1:4 to 1:9 range are justified, documentation should be maintained. This documentation will not only support the results of the reporting relationship analysis, but also provide a basis for future determinations of whether or not the key factors have changed warranting an organization modification. Based on our analysis, we believe that 14 or more supervisory positions with reporting relationships of less than 1:4 could potentially be eliminated. This would bring the number of supervisory positions back to the level analyzed by BWG in 2000, and reduce the number of reporting relations outside the 1:4 to 1:9 range by about 12%, from 113 to 99 positions. A reduction of 14 supervisory positions would result in net annual savings of approximately $1,393,000, based on a fully loaded average compensation level of $99,500 for each supervisory position. Staffs Follow-up Recommendation Periodically analyze each position that has a span of control outside a 1:4 to 1:9 reporting range, and adjust job duties as appropriate based on the results of this review. Prior Recommendation Develop and implement a labor relations strategy that will promote improved productivity and lower labor costs. Prior Situation PGW had very poor relations with its union. The Company had entered into numerous local agreements (or separate departmental agreements) that incorporated specific work methods which were counterproductive to management objectives. Moreover, PGW was maintaining insufficient documentation related to its local agreements, which was contributing to the situation whereby the union was winning virtually all arbitrations. Finally, PGW had been unable to devise and execute a contract negotiation strategy to enable it to improve managements ability to promote productivity and contain labor costs. Follow-up Finding and Conclusion No. 3 The Company has implemented a labor relations strategy to promote improved productivity and control labor costs. In May 2001, PGW accepted a Collective Bargaining Agreement that eliminated most of the problematic local agreements and provided a mechanism to resolve the remaining ones. The collective bargaining agreement in effect at the beginning of 2004 provides management with increased flexibility in comparison to recent union contracts. Specifically, Company management has an expanded ability to subcontract, the right to hire low cost temporary workers, greater absence control, and the ability to eliminate inefficient past practices and local agreements. The Company is now permitted to temporarily reassign employees up to 150 days without any loss of pay and has the right to use temporary employees to supplement the workforce to deal with particular projects or seasonal fluctuations. The Company also has the right to determine wages and benefits for temporary employees, provided it first meets to discuss the issue with the union representatives. The more flexible provisions of the collective bargaining agreement superseded or eliminated many of the more inflexible local agreements developed in the past. While many local and arbitration agreements still exist, they do not affect managements flexibility to utilize its workforce for the most part. Procedures regarding these local and arbitration agreements are now adequately filed at the Company. The Company and its union also agreed to create a Joint Committee with an equal number of union and Company representatives. If the Company desires to change or eliminate any existing local agreements or past practices, it has agreed to first present them to the Joint Committee for discussion. If the parties are not able to agree, then the Company may submit the matter to a mutually agreed upon arbitrator who is required to fully resolve the issues in dispute within 20 days. Based on our review, it appears that PGW has been successful in modifying its labor relations such that it has reacquired the ability for management to properly manage its workforce. This should enable the Company to promote productivity and exert control over its labor costs. Staffs Follow-up Recommendation None. V. SUPPORT SERVICES Prior Recommendation Take steps to reduce workers compensation claims costs. Prior Situation BWG found that PGWs workers compensation costs increased by more than 13% ($267,000) from fiscal year 1997/1998 to fiscal year 1998/1999, and that another 5% ($112,800) increase was projected for the then ongoing fiscal year 1999/2000. Recognizing the problem, PGW was initiating a program to help reduce the Companys high workers compensation costs. In addition, in 1998, PGW had hired an outside third-party administrator to manage its indemnity and medical claims regarding workers compensation. This was the same third-party administrator that was successfully used by the City of Philadelphia since 1993. BWG concluded that if PGW could attain the same cost per claim level as that experienced by the Citys Water Department, it could save over $1 million a year. Follow-up Finding and Conclusion No. 4 The Company has been able to control its workers compensation expenses and effectively reduce the rate of accidents. PGW has successfully implemented a variety of measures to control its workers compensation costs. More specifically, the Audit Staff found that PGW has: Instituted monthly claims review meetings with the third-party administrator. Increased the monitoring of medical care claims processed by the third-party administrator. Improved the vocational aspect of the program by emphasizing meaningful light- duty positions for temporarily-disabled employees, and finding permanent jobs for permanently-disabled employees. Additionally, the nurses of the third-party administrator work with PGW and a vocational expert to ensure that the injured employee returns to an appropriate job as soon as possible. Revamped its subrogation of responsibility and recovery program. Successfully negotiated systematic reforms now included in the current labor agreement, and the Company is now closely scrutinizing employee absences. For example, to be paid for sick leave, a PGW employee must provide adequate notice, obtain a medical certificate, have accrued sick leave to use, and be able to satisfy PGWs medical staff that the absence was justified. The Company has the right to refuse advance requests, investigate the leave taken, and impose reasonable disciplinary penalties. Decreased its ongoing indemnity costs (see Exhibit V-1). Improved its overall safety record (see Exhibit V-2), enhanced its union-management safety training efforts, and developed specific annual goals for achieving improved safety levels (see Chapter XII Human Resource Management Finding and Conclusion No. 42). While the Company has not been able to achieve the $1 million in savings projected by BWG, some significant savings have nevertheless been realized. ExhibitV1 shows total workers compensation expenses decreased by just 1.1% from fiscal year 1998/1999 to 2002/2003. However, from the peak level in fiscal year 1999/2000, management was able to reduce its total workers compensation expense by $456,321, or approximately 17 percent. Furthermore, indemnity payments, which are the largest component of workers compensation cost covering the time lost from work due to injuries, actually decreased by $500,000 or 30% over the five-year period. Savings would be even higher if inflation was considered. Exhibit V-1 Philadelphia Gas Works Workers Compensation Expenses Fiscal Years 1998/1999 through 2002/2003 Categories FY 1998/1999 $ FY 1999/2000 $ FY 2000/2001 $ FY 2001/2002 $ FY 2002/2003 $ Percentage of Change 1998 2003 Medical 572,000 647,336 510,761 754,706 734,006 28.3%Indemnity1,651,0001,539,4701,206,0051,206,3711,149,658-30.4%Administrative33,00055,09284,21996,36545,34837.4%Legal ----428,377427,910386,692300,553N/AVocational Rehabilitation 1,000 16,251 2,371 ---- 640 36.0% Total Expenses 2,256,000 2,686,526 2,231,266 2,444,134 2,230,205 -1.1%Source: Data Request SS-2. It should be noted that management has been able to reduce the average monthly disability payout from approximately $21,500 in fiscal year 2000/2001 to approximately $14,800 in fiscal year 2002/2003 for an annual savings of approximately $80,000. In addition, PGW has reduced the number of workers compensation recipients. The latest available data shows that from fiscal year 2000/2001 to 2002/2003, the total number of recipients on total disability dropped from 33 to 32, and the number of recipients on partial disability dropped from 41 to 31 employees. Overall, this equates to a 14.9% decrease in total number of recipients on both partial and total disability. Moreover, the amount of time lost is a key determinate in the level of both medical costs, and claims and litigation expenses. Exhibit V-2 depicts PGWs safety information for calendar years 1999 through 2002. This exhibit shows a steady reduction in the number of reportable accidents as well as in other work-related categories. It indicates that management has had success in its efforts to emphasize worker safety at all departmental levels. Exhibit V-2 Philadelphia Gas Works Calendar Year Safety Record 1999 2002 and January June 2003 Categories 1999 2000 2001 2002 Percentage of Change 1999 - 2002 YTD 2003 (as of 6/30/03) Recordable Accidents 225 201 145 133 -40.9 % 60 Lost Time Accidents (LTAs) 75 59 47 34 -54.6 % 14 LTAs per 100 Employees 4.33 3.36 2.73 2.10 -51.5 % 1.56 Lost Workdays 876 845 520 461 -47.4 % 144 Recordable Motor Vehicle Accidents 127 149 95 89 -29.9 % 42 Preventable Motor Vehicle Accidents 74 76 50 56 -24.3 % 22 Source: Data Request HR-5. Sound business practice dictates that PGW should have overall corporate goals that emphasize the importance of operating in a safe work environment, and reducing the total number of accidents. The Companys fiscal year 2003/2004 goal to reduce its total accident statistics rate by 15% (using fiscal year 1999/2000 as the basis) appears to be reasonable and achievable. As a result of managements increased efforts, PGW has been able to reduce its total workers compensation costs, especially indemnity expenses. Furthermore, the Company has enhanced its union-management safety training efforts and developed specific annual goals. This has helped PGW to significantly improve its safety rates (see Chapter XII Human Resource Management Finding and Conclusion No. 42). Staffs Follow-up Recommendation None. VI. ONGOING OR PLANNED EFFORTS Prior Recommendation Develop and implement a status reporting system that will provide timely and specific information regarding improvement initiatives to the PUC, the Philadelphia Facilities Management Corporation Board of Directors, the City Council, and the Mayor. Prior Situation BWG found that, as a result of changes in senior management, the lack of direction from PGWs various overseers (i.e., PFMC, PGC, the Mayor, City Council, City Controller, etc.), and interim managements preoccupation with customer billing and financial issues, PGW was not making a serious attempt to implement all the improvement initiatives identified in their current Five-Year Plan. This plan, which had been issued in September 1999, was later determined by the management team to be inadequate for addressing PGWs specific financial and operational needs and requirements. In response, the management team issued a new 3-year plan in March 2000. However, in November 2000, the Commission ordered PGW to implement the initiatives under development by a newly-created best-practices working group within PGW. In addition, PGW committed to implementing the recommendations reported by BWG in the management audit report, especially those flaws in the Companys billing, credit and collection system (BCCS). Follow-up Finding and Conclusion No. 5 PGW has been successful in providing timely information regarding a broad range of topic areas, including improvement initiatives and on-going and planned corporate efforts, to its various stakeholders. PGW has undertaken efforts to provide timely and specific information regarding improvement initiatives to the Commission, its Board of Directors, City Council, the Mayor, its gas customers, and the general public. The approach now used by the Company is a bulletin-type communication titled On Point, which is planned to be issued quarterly. Editions of the bulletin were issued in December 2001, July 2002, and December 2002. The 3rd edition, which was issued in December 2002, was renamed from On Point to the Philadelphia Gas Works. The Company indicated at the end of our field work that another edition of Philadelphia Gas Works would be released shortly. Beyond the bulletin discussed above, the Companys Marketing and Corporate Communications Department has continued to use other forms of media, including television and radio news interviews, and press releases (in both English and Spanish), to communicate its message to stakeholders. Also, PGW issues a monthly gas bill stuffer titled Good Gas News. The monthly publication is also posted on the Companys electronic web-site. In addition, PGW publishes a monthly internal publication titled Blueflame to its workforce and retirees. In recent years, the Department has begun publishing marketing reports, which focus on specific initiatives for major accounts, residential and commercial accounts, as well as economic planning issues. Based upon a review of all documents provided, it appears that the Company is making a concentrated effort to communicate its message effectively to all stakeholders. Staffs Follow-up Recommendation None. VII. CORPORATE GOVERNANCE Prior Recommendation Revise the governance structure of PGW to make it more accountable and to eliminate overlapping responsibilities. Prior Situation To revise the governance structure, BWG specifically recommended the following three actions: Eliminate the Philadelphia Gas Commission (PGC), and assign its remaining responsibilities to the City Council or the Philadelphia Financial Management Corporations (PFMC) Board of Directors. This would reduce PGWs costs by $1.3 million per year, and eliminate overlapping responsibilities in the governance structure. Assign sufficient authority and responsibility to the PFMC Board of Directors to ensure that it can effectively operate PGW. Comply with the PUCs order of November 21, 2000, to conduct a formal process when selecting individuals for management positions. These individuals should have the appropriate independence, professionalism and experience to manage PGW cost-effectively. BWG proposed this multi-faceted recommendation because it concluded that PGW had a fragmented corporate governance structure that did not clearly identify accountability and responsibility for the utilitys finances and operations. As indicated in Exhibit VII-I, the City of Philadelphia owned PGWs assets. PFMC, a Pennsylvania nonprofit corporation incorporated by the City for the sole purpose of operating PGW, had a contract to manage and operate the Company. The Citys Mayor appointed all PFMC Board members. In addition, while the PGC approved PGWs annual operating budgets, the City Council approved the Companys annual capital budgets. The Consultant believed that a revised corporate governance structure was necessary to provide PGWs management with enough political independence to effectively manage the Company in a business-like and cost-effective manner. Furthermore, the Consultant recognized that the revised structure would need to provide sufficient checks and balances to protect the interests of various stakeholders. It was because these stakeholders had many competing points of view that little progress had been achieved in the past to solidify a consensus and improve PGWs corporate governance structure. Exhibit VII-1 Philadelphia Gas Works Responsibilities for Oversight PartyResponsibilitiesThe City of PhiladelphiaOwns PGW assets.Philadelphia Facilities Management Corporation (PFMC)Manages and operates PGW and its assets. Responsibilities for having PGW pay the City $18 million annually.MayorAppoints all members of PFMC BOD. Appoints two members of the PGC.Citys Director of FinanceServes on PFMC BOD. Approves PGW short-term loans and commercial paper financing. May audit PGWs books.City SolicitorLegal advisor for both PGW and the PGC.City CouncilApproves management agreement. Approves PGW capital budgets. Appoints two members of the Gas Commission. Approves PGW short-term loans and commercial paper financing.City ControllerMember of the PGC. May audit PGWs books.Philadelphia Gas Commission (PGC)Approves PGWs operating budget and forecast. Reviews PGWs capital budget and makes recommendations to City Council. Approves PGW short-term loans and commercial paper financing. May audit PGWs books.Pennsylvania Public Utility Commission (PUC)Reviews and approves rates. Resolves customer service disputes. Approves changes to tariff. Conducts financial and operations audits of PGW. Oversees PGW adherence to federal pipeline safety regulations.Source: BWG January 2001 Audit Report. Follow-up Finding and Conclusion No. 6 While the Company established a formal management selection process, sufficient responsibility was not assigned to the PFMC Board, the Philadelphia Gas Commission was not eliminated, and the projected annual savings of $1.3 million was not realized. Corporate oversight responsibilities as shown on Exhibit VII-1 were not changed, but the Company did take a few steps to improve accountability and reduce some of the overlapping responsibilities within the organization. For example, the Company: Complied with the PUCs order of November 21, 2000, at Docket No. R-00005654, to conduct a more formal management selection process to identify candidates with the appropriate independence, professionalism and experience to operate PGW cost-effectively (see Chapter XII - Human Resource Management for further details). Assigned management responsibility to PFMCs seven-member Board of Directors to review the monthly and quarterly budget tracking documents. In addition, the Board of Directors updated the Audit Committees Charter, established a new Finance Committee, and was in the process of developing a Finance Committee Charter. However, further improvements are still possible. For example, PFMC Directors, who are selected by the Mayor for two-year terms, still do not receive stipends for services rendered, which would help attract and retain experienced professionals on the Board. Moreover, the Board still has the same four functioning committees it had at the time of the BWG audit. These committees include the Audit Committee; the Human Resources, Labor and Diversity Committee; the Compensation Committee; and, the Community Relations Committee. As our field work was ending for this follow-up review, the Company indicated that a separate Finance Committee had been established, and that a committee Charter would be developed shortly. Additionally, the City of Philadelphia has not eliminated the PGC and reassigned its remaining responsibilities directly to City Council or the PFMC Board. Consequently, overall cost reductions have not yet materialized as estimated by BWG. As shown on Exhibit VII-2, PGWs annual cost to fund the PGC has actually increased by approximately 7.6% over the last four fiscal years. However, it should be noted that at the end of our field work, PGW indicated that the number of PGC employees was reduced from seven to four as of December 2003, when three employees and their positions were transferred to PGW. Staffs Follow-up Recommendation Continue efforts to work with City Council and the Mayors Office to revise the corporate governance structure of PGW to make it more accountable and eliminate overlapping responsibilities. Follow-up Finding and Conclusion No. 7 The Company has not made a due diligent effort to meet those guidelines recommended by the Commission, the Securities and Exchange Commission, and the Public Company Accounting Oversight Board (PCAOB). Exhibit VII-2 Philadelphia Gas Works Philadelphia Gas Commission Expenses Fiscal Years 2001 - 2004 Expense Categories Actual FY 2001 $ Actual FY 2002 $ Estimated FY 2003 $ Budgeted FY 2004 $Percentage of Change 2001-2004 %Payroll458,000382,000388,000391,000-14.6Taxes33,00027,00028,00024,000-27.3Expense of Employees02,0002,0004,0000.0General Materials15,00011,0006,00012,000-20.0Postage1,0001,0001,0001,0000.0Advertising108,0009,0002,00020,000-81.5Dues and Subscriptions4,0003,0002,0002,000-50.0Purchased Services326,000517,000514,000636,00095.1Insurance62,00086,00052,00059,000-4.8Equipment Leasing11,00010,0009,00011,0000.0Rents72,00051,00072,00067,000-6.9Maintenance of Office Equip.4,0005,00003,000-25.0Information Technology64,00060,00021,00023,000-64.1Telecommunications5,0005,0004,0000-100.0Amortization 2,000 0 0 0-100.0Totals1,165,0001,169,0001,101,0001,253,0007.6 Number of Employees 8 7 7 7 -12.5Source: Data Request CG-1. The Audit Staff noted some additional corporate governance inadequacies. For example, in August 2002, the PA Commissions Bureau of Audits issued a survey report titled Survey of Corporate Governance Controls and Audit-Related Practices Pertaining to the Financial Reporting Process that, in-part, concludes that a number of PA utilities were in need of revising their corporate governance structure given the recent issuance of the Sarbanes-Oxley Act (SOX) of 2002. Although PGW is not subject to the SOX of 2002 requirements, PGWs Board of Directors has a responsibility as a public utility to make a concerted effort to incorporate equivalent quality control and independence standards into the Companys daily operation. Some of the SOX of 2002 standards, which were identified in the Audit Bureaus survey report, are as follows: Corporate governance requirements the Audit Committee must now be fully independent of Companys management, with at least one financial expert serving as a full-time committee member. Audit Committee authority and responsibilities the Audit Committee must now hire, set the compensation of, and maintain oversight of the companys registered outside public accounting firm; the Committee must also be able to engage independent counsel and other outside advisors; and must establish company procedures to deal with complaints filed by internal employees and outside parties regarding accounting and auditing matters. Chief Financial Officer (CFO) responsibilities the CFO must now certify that the financial reports that are submitted to the public, the Audit Committee, and the SEC do not contain untrue statements or omissions; must disclose to the Audit Committee all significant deficiencies; and must establish, maintain, and evaluate the Companys (issuers ) internal controls. Issuers Internal Control Report requirements the Companys management must now assess annually its internal controls that are in place, and make public an assessment report. Outside External Auditor Independence the external auditor is now prohibited from performing the following non-audit services: bookkeeping; financial information system design and implementation; appraisal or valuation services, fairness opinions, and contribution in-kind reports; actuarial services; internal audit outsourcing services; management functions or human resources; broker or dealer, investment adviser, or investment banking services; legal services and expert services unrelated to the audit; and other services the PCAOB later determines to be impermissible. However, exceptions to this list are those services directly related to the financial audit including tax preparation, advisory, and expert legal testimony provided in a court of law or in front of the Internal Revenue Service. As PGW is a municipal utility owned by the City of Philadelphia and does not have publicly traded stock, the Company does not fall under the Securities and Exchange Commission (SEC) laws. Therefore, the Companys senior management team is not absolutely required to comply with the corporate governance requirements in the SOX of 2002. However, the Audit Staff believes that PGW and its Board of Directors should act within the spirit of those corporate governance guidelines and best practices listed in the Audit Bureaus survey report and those applicable standards imposed upon utility companies by the SEC and the Public Company Accounting Oversight Board (PCAOB). Staffs Follow-up Recommendation Make a due-diligence effort to comply with the intent of corporate governance guidelines recommended by the Pennsylvania Public Utility Commission and the related standards established by the SEC and the PCAOB. Prior Recommendation Complete implementation of the new organization structure, and take steps to encourage managers to set and communicate consistent policies to employees in all PGW departments. Prior Situation BWG concluded that PGW did not have an effective organization structure and its senior management did not communicate effectively with its lower management ranks or its union employees. For example, department managers were not consistently applying Company-wide policies on such issues as employee absenteeism, employee discipline, and union relations (also see Chapter XII Human Resource Management). Local labor agreements between PGW managers of specific work units and the unions had resulted in inconsistent treatment of union employees from department to department. As of December 1, 2000, PGW had adopted a new functional organization structure which BWG believed would improve the accountability of individual officers and improve communication with management and union employees. BWG stated in its audit report that the new structure was similar to those used by other effectively managed gas utilities. BWG felt that the new structure simplified reporting relationships and logically grouped together work activities. As a result, a more appropriate span of control level was created for the Companys senior management. While the new structure would still have President and Chief Executive Officer (CEO) and Chief Operating Officer (COO) positions, the Chief Financial Officer (CFO) position would be temporarily eliminated with the functional duties absorbed by the Senior Vice President of Finance. Follow-up Finding and Conclusion No. 8 PGW has implemented a new organization structure and has taken steps to encourage its managers to set and communicate consistent policies on a departmental and corporate-wide basis. Since issuance of the BWG report in January 2001, PGW has revamped its organization structure (see Exhibit VII-3) to make it more functional. Specifically: The Company streamlined its departments by changing reporting relationships whereby the Governmental Affairs, General Counsel, Strategic Planning, and Finance functions now report to the President and Chief Executive Officer; and the Human Resources, Field Operations, Customer Affairs, Gas Management, Information Technology, Marketing/Communications, and Labor/Safety and Preparedness functions report to the Interim Chief Operations Officer and Senior Vice President. The CEO, who also serves as the Companys President, no longer has shared responsibility with a CFO. The COOs position was reestablished, and the individual in that position is currently serving on an interim basis (without a signed PFMC contract). The CFO position has been eliminated. The Senior Vice President of Finance has absorbed the CFOs job duties, including the certification of the financial reports. The Controller, Treasurer, and Financial Accounting and Reporting Departments report directly to the Senior Vice President of Finance. According to Company officials, the change is temporary with plans to reevaluate the job assignments later, even though the PFMC management agreement calls for three PFMC executive positions (a CEO, COO, and CFO) to manage PGW. Five new Senior Vice President positions were created: Interim Chief Operations Officer and senior Vice President; General Counsel, Senior Vice President of Finance; Operations; and Senior Vice President of Marketing and Corporate Communications. Nine Vice President positions now exist. This includes the Vice President of Human Resources who is a contract employee (the one-year contract expires in the spring of 2004) and the Vice President of Information Technology, which has been vacant since the summer of 2003. The Internal Audit Department no longer has seven positions. The Department now has one employee (i.e., Internal Audit Manager), who manages all functional departmental duties, including the monitoring and tracking of the internal audits being performed now by external contract auditors. Permanent management status has been approved for the CEO (who is a contract employee) by the City and Mayors office. However, the Interim COO has yet to sign a contract, which according to some Company officials, is because of City residency requirement restrictions. The Citys residency requirement was also given as a key reason why the position of Vice President of Information Technology has not been filled for at least six months. A new department titled Policies and Compliance has been created to ensure that Company-wide policies, practices, and procedures are not only established but also applied consistently across all departmental lines. The Department has been assigned to conduct the necessary training and provide periodic compliance reporting to senior management regarding the standardization of programs.  EMBED Excel.Sheet.8  PGWs labor relations and human resources responsibilities have been split among two departments. The newly created Vice President of Labor, Safety and Preparedness position has the responsibility for corporate-wide polices and compliance, risk management, labor/safety/security matters, and loss prevention. The Vice President of Human Resources (currently managed by an outside contract employee) has responsibility for overall employee services and administration, EEO/AA, overall employee training, and departmental staffing. Based upon our review, it appears that PGW now has an organizational structure that improves accountability of individual officers and improves communication with management and union employees. This structure resembles those used by other well-managed gas utilities. It shows reporting relationships and work activities that are logically grouped together with appropriate senior management spans of control levels (also see Chapter IV - Staffing Levels for other span of control issues). While PGW has been able to streamline its corporate structure and improve its level of workforce performance accountability, management should be cautious about creating an additional Vice President position, and allowing the Vice President of Information Technology to remain vacant for much longer. At the end of our field work, the Company announced the hiring of a tenth Vice President, which is not shown on Exhibits I-1 and VII-3. This individual will manage a new department titled Community Development. The Company provided no further information on this new position. Staffs Follow-up Recommendation None. Prior Recommendation Take steps to improve PGWs interfaces with outside parties. Prior Situation BWG noted that PGW had a poor relationship with many of its outside parties. This occurred due to a combination of factors, including: An unsuccessful conversion to a new Billing, Credit and Collection System (BCCS); Submission of inaccurate data and information to the PGC and Philadelphia City Council with respect to cost overruns on BCCS; A contentious union relationship that received a lot of negative publicity; and, Poorly articulating the Companys rate increases to all affected stakeholders, including its customers. BWG also noted that PGWs interim senior management team had begun making an intensive effort to respond to the needs of the various government agencies which influenced its day-to-day operations. For example, before BWGs audit was completed, PGW and the PUC signed a memorandum of understanding (MOU) regarding the steps PGW would take to ensure that its customer service activities would operate in a manner consistent with PUC requirements (see Chapter VIII - Customer Service for further details). Subsequently, in response to a PUC directive, PGW submitted a plan that outlined the steps the Company would take to mitigate potential safety problems in the 2000/2001 winter heating season (see Chapter IX - Gas Distribution for further details). Finally, PGW undertook efforts to articulate its financial needs to the PUC, Philadelphia City Council, and the PGC with a Gas Cost Rate filing and a request for interim base rate relief (see Chapter X - Financial Management for further details). Follow-up Finding and Conclusion No. 9 PGW has a program in place that allows it to respond positively and expeditiously to the needs of those governmental agencies that influence its day-to-day operations. PGW now has a well-structured multi-media program that has improved its interface with outside parties. Some of the more notable accomplishments include the following: Instituted a Customer Service Initiative to interface more effectively with its customers, address core customer service issues such as accuracy of bills, facilitate customer access to the call center, improve the competency of the service delivered, and attain industry standard customer service levels. Prepared standardized communication plans and began using a multi-media approach for its annual outreach campaigns such as LIHEAP, Senior Citizen Discounts, etc. Initiated personal briefing sessions with every available City council member and began publishing PGWorks (financial data for specific stakeholders) and On Point (overall consumer progress report for all stakeholders) quarterly, and Good Gas News (customers gas bill stuffer) and Blue Flame (internal workforce and retirees publication) monthly (see Chapter VI - Ongoing or Planned Efforts for further details). Briefed interested state legislators and regulators on a variety of issues, especially rate case filings, to ensure a free exchange of information. Conducted information tours of the Companys facilities for various state legislators, regulators and interested stakeholders. Continuation of PGWs ongoing multi-media regulatory affairs approach should result in improved relationships with federal and state regulators, customers, and stakeholders. Staffs Follow-up Recommendation None. Prior Recommendation Establish an ethics hotline reporting directly to PGWs manager of internal audit or its chief legal counsel. Prior Situation BWG found that PGW did not have an ethics hotline to provide anonymity to employees who wish to disclose potential ethics violations by other employees. In the past, PGWs public image suffered from a number of ethics violations by a few former senior executives that later resulted in indictments and convictions. As a result, a public perception existed that PGW was fraught with ethical deficiencies. In contrast, utilities that have successfully established a corporate culture which places a premium on a high level of corporate ethics have established an ethics hotline. Generally, at these utilities, employees are provided a separate and private telephone number that they can call to disclose ethics violations. Typically, the hotline is the responsibility of either the utilitys head of the department of internal audits or its chief legal counsel. The individual responsible in this capacity is usually deemed independent because of having direct access to the Companys board of directors, and should be able to investigate and resolve any reported violations. Follow-up Finding and Conclusion No. 10 PGW established an ethics hotline which is managed by its Ethics Officer, an attorney who works in the Companys Office of General Counsel. In January 2001, PGW hired an attorney to serve as its Ethics Officer, and to manage its new ethics hotline. The hotline, which became operational on February 5, 2002, was established to provide an anonymous method for employees to: obtain quick and easy answers, personal guidance, and general overall advice concerning basic ethics issues; ask specific questions regarding the contents of the Companys periodically- updated Ethics Policy (see Chapter XII Human Resources for further details); and, provide details on suspected violations being committed by other PGW employees and/or outside vendors. The ethics hotline is a wireless telephone number that is separate from PGWs land-line telephone system. The PGW Ethics Officer is the only person who answers the calls or has access to the hotlines voice mail system. Other than messages that are left on the voice mail system, the phone calls are not recorded. The Ethics Officer personally and expeditiously responds to each phone call or inquiry received. Any caller who wishes to remain anonymous can do so and is not required to identify him or herself or where they work. Outside stakeholders, vendors, and/or customers can also use the hotline phone number without fear of reprisal. Even though the Ethics Officer does not serve as the Companys Chief General Counsel, he has direct access to the Board of Directors and has the authority to fully investigate and resolve any reported ethics violations. The Ethics Officers confidential Ethics Reports contain sufficient detail regarding the facts of the case, final resolution of the issue at hand, or a suggested recommendation(s) on how to resolve the violation. The timely reports include the citing of court cases, legal precedence, and other statutory requirements. The Ethics Officer informs senior corporate staff members of each cases final resolution and distributes copies of the final report to the appropriate department head, union representative, and/or legal authorities. The Ethics Officer usually acts as or assists the attorney prosecuting the case. The Board of Directors is also kept informed of each case and is provided with a final report, when appropriate. Based upon the Audit Staffs review, it appears that the Ethics Officer is sufficiently independent and has direct access to the PFMC Board of Directors. This independence and direct access to the Board enables the Ethics Officer to operate the hotline and perform his investigative assignments effectively. Staffs Follow-up Recommendation None. VIII. CUSTOMER SERVICE, BILLING AND COLLECTION Prior Recommendation Take steps to reduce the number of estimated bills and ensure that no customer goes over six months without a meter read. Update factors for calculating estimated bills on an annual basis. Prior Situation In 2000, meter readers manually read 54% of customer accounts, a radio-based automated meter reading (AMR) system was used to read about 45%, and a telephone-based AMR was used to read less than one percent. The Company had a 64% success rate in reading manual meters in fiscal year 2000 and a 97% success rate in reading its automated meters. The low success rate for manual reads resulted in the issuance of many estimated bills. PGW was issuing numerous estimated bills for several billing periods in a row to the same customers because its meter readers did not have access to the customers meters. However, the Company did not know the number of estimated bills it had issued during the previous five years. As of August 31, 2000, PGW had not read over 17,000 residential meters for three months or more. PGW estimated the bill for a customer if it had read the meter at least once within the previous nine months. However, if the meter had not been read for more than nine months, the Companys policy was to bill only for the standard service and commodity charges. Due to problems with its new Billing, Credit and Collections System (BCCS), PGW often only billed the service charge and delayed billing the commodity charges. Additionally, PGW had not updated the factors it used for calculating estimated bills for several years. Follow-up Finding and Conclusion No. 11 The number of meters not read for several months has been significantly reduced, but too many meters are still not read for an extended period of time and the Company has not updated its factors for calculating estimated bills. PGW reduced the percentage of customers' bills based on an estimated meter reading from 8.6% for the first half of 2001 to 2.1% for the first half of 2003 (see Exhibit VIII1). This improvement has primarily resulted from converting the vast majority of its meters to the radio-based AMR system. As of November 30, 2003, 99.1% of customer meters were read by the meter readers collecting read data from vans while driving by the meter and acquiring signals from the Encoder Receiver Transmitter (ERT). Meter readers and the telephone-automated system were collectively reading less than 1% of customer meters. The Company has a 98% success rate in reading automated meters versus it historical 63% success rate at reading manual meters. Exhibit VIII-1 Philadelphia Gas Works Customer Bills Based on Estimated and Actual Meter Readings January to June 2001, 2002 and 2003  2001 Jan.-June 2002 Jan.-June 2003 Jan.-JuneActual Meter Reads2,701,1302,803,5962,879,751Estimated Meter Reads 253,428 163,456 62,679Total Accounts Billed2,954,5582,967,0522,942,430 % Accounts Billed Based on Estimated Meter Reads  8.58% 5.51% 2.13% Source: Data Request CS-8. PUC regulations at 52 Pa. Code 56.12(4) require that PGW obtain an actual meter reading or ratepayer supplied reading at least once every six months to verify the accuracy of the estimated readings. In addition, even when PGW does obtain a ratepayer supplied reading(s), it is required by regulation to obtain an actual reading at least once every 12 months. As a result of the continual installation of AMRs, the number of estimated reads declined rapidly. The AMRs eliminated the need to read the often inaccessible meters inside homes, resulting in far more actual meter reads. The primary cause of the inability to read AMR meters has been dead batteries in the Encoder Receiver Transmitter (ERT) that stores the meter reading on the outside of the building. The first generation ERT batteries had a shorter life (10 years) than the current generation (15 years). PGW has an AMR installation and ERT replacement program that is tracked by the Meter Reading Department. Another reason for failing to acquire AMR reads is bad weather. The new BCCS meter reading subsystem now maintains a complete history of all meter reads, including no reads, any reads entered manually, or reads acquired by the telephone system. The Meter Reading Department tracks the number of 3 months or more no reads for all meters and further identifies the number of meters that do not yet have an ERT and the number of meters that have non-working ERTs. As of October 1, 2003, PGW had 6,431 meters that had not acquired reads for three months or longer, of which 3,556 did not yet have an ERT and 2,875 that had non-working ERTs. PGW further reported that as of October 1, 2003, it had not read 5,452, or 1.1%, of its residential meters for six or more months. Commission records on residential meters not read for six months or more indicate that the percentage for other Pennsylvania regulated natural gas utilities ranged from .9% down to almost zero percent. The Company had also corrected its billing problems resulting in appropriate charges on the bills of unread/estimated bills. Despite only needing to manually read meters for fewer than 1% of customer accounts, these difficult to access meters make up over half (i.e., 55.2%) of the meters that have not been read for over three months. On the other hand, PGWs lackluster success rate of reading non-AMR meters, which often require entering a dwelling, has less impact now because only 4,460 manual and tele-metered accounts (see Follow-up Finding and Conclusion No. 12) remained in the distribution system at the end of November 2003. The installation of AMR meters and the replacement of ERTs have reduced the number of meters without reads for an extended number of consecutive billing periods and have brought the number of estimated bills down to levels that are more acceptable. However, even with these considerable improvements, the sizeable number of meters without reads for periods of six months or more indicates that PGW is not yet in complete compliance with Commission regulations. Since relatively few customers are now issued estimated bills, PGW decided that it was not necessary to update its factors used to calculate these bills. However, based on PGWs 98% AMR successful read rate, the Company will continue to estimate approximately 2% or more than 10,000 customer bills each month. Therefore there still is a substantial need for updating the billing estimation factors and improving the accuracy of estimated bills. Staffs Follow-up Recommendation Establish procedures to arrange field visits to all customers who have not had their meter read for at least six months and to periodically update the factors used to calculate the estimated bills. Prior Recommendation Complete the installation of AMR devices on commercial/industrial accounts to improve the cost effectiveness of reading their meters. Prior Situation BWG concluded that PGWs process for reading the meters of commercial and/or industrial accounts was not cost effective because the Company had not yet installed AMRs for all of these accounts. PGW had installed 6,745 AMRs on commercial/industrial accounts over the past two years, or 45% of the total accounts, and planned to install the remainder by 2003. In fiscal year 2000, PGW assigned ten meter readers and spent $500,000 to read its non-AMR commercial/industrial accounts. Follow-up Finding and Conclusion No. 12 PGW has not completed the installation of AMR meters for its commercial/industrial accounts. All customer accounts within PGWs distribution system have some type of metering device. As of November 30, 2003, PGW had 511,706 accounts, of which 507,246 or 99.1% had AMR meters and 4,460 had other types of meters. However, as indicated in Exhibit VIII-2, only approximately 86% of commercial/industrial accounts had AMR meters. The remaining customers who do not have AMRs are those who did not voluntarily respond to PGWs initial request for a meter changeover or are one of the approximately 525 customers with a Metrotek/Metscan automated telephone-read meter. PGW intends to finish installation of AMR meters for those customers who did not initially respond to the meter changeover request during 2004. Exhibit VIII-2 Philadelphia Gas Works Meters by Type and Customer Classification As of November 30, 2003 Customer ClassTotal MetersNon-AMR MetersAMR MetersPercent AMRCommercial 7,985 572 7,41392.8 %Industrial 1,696 790 90653.4 %Sub-total Commercial/Industrial 9,681 1,362 8,319 85.9 %Residential502,025 3,098498,92799.4 %Total511,706 4,460507,24699.1 % Source: Data Request CS-27. PGW has long known that installing AMRs in its entire system would result in significant cost savings. In 1997 PGW issued a report to the Philadelphia Gas Commission, titled Automatic Meter Reading Cost Benefit Analysis Update, which compared the labor and other cost savings with the capital and annual operating costs (including depreciation and other costs) of an AMR system. Based on results that had been achieved through 1996 and the projected impact of the full implementation of the AMR program, the results of this economic analysis supported continuation of the AMR program. The 1997 report, which covered the period 1996 through 2006, estimated the net present value of the annual savings during this period to be approximately $44 million. The report projected that in the year 2004 PGW would achieve savings of approximately $14 million. The fiscal year 2003 capital budget included $2,071,000 for installation of AMR devices. This was the last significant capital expenditure to complete the installation of the AMR program. In the future, operating expenditures for maintenance of the AMR units will increase, as the Company will have to replace the batteries approximately every seven to ten years in the installed units. According to the Commissions Bureau of Consumer Services, approximately 400 to 500 AMRs malfunction every month and most of the AMRs malfunction because of failed batteries. The total cost of the current five-year AMR installation program, which began in fiscal year 2002, was estimated at $24,914,000. Although PGWs current system includes 99.1% AMRs, the Company could be missing significant further savings by continuing to use non-AMRs on 14% of its commercial/industrial customers. Staffs Follow-up Recommendation Complete the installation of AMR devices on commercial/industrial accounts to improve the cost effectiveness of reading their meters. Prior Recommendation Take steps to improve delinquent payments and uncollectible accounts. Prior Situation BWG concluded that PGW had placed insufficient emphasis on reducing delinquent payments and uncollectible accounts and improving cash inflows. Out of approximately 512,000 customers in 1998, 80,000 to 85,000, or roughly 16%, were delinquent and the delinquent receivables of $134.7 million represented approximately 27.7% of annual revenue. Furthermore, as of September 1998 receivables over 90 days past due accounted for approximately 87% of the delinquent receivables (see Exhibit VIII-3). These overdue receivables were high because PGW did not consistently perform credit checks on customers, take large enough deposits from customers, or report customer delinquencies to credit bureaus. As shown on Exhibit VIII-4, PGWs bad debt write-offs for fiscal years 1995 through 1999 averaged 7.7%, but fluctuated from 6.0% in 1996 to 9.6% in 1998. The 1998 increase in write-off percentage was attributed to PGWs Customer Responsibility Program (CRP), which provided low income customers an affordable bill payment schedule based on their household income. The program was initiated in 1995, but there was no enforcement of collections until late 1997. This lack of enforcement allowed a large number of participants to remain on the program without making payments. When enforcement began, it resulted in the removal of numerous customers from the program, and discontinuance of their service for non-payment. The Company wrote off CRP account balances that had accumulated over two years. Exhibit VIII-3 Philadelphia Gas Works Aging of Delinquent Accounts Receivable As of September 1998 Accounts Receivable AgeAccounts Receivable AmountPercentage Of Total($ millions)%30 to 59 days10.57.860 to 90 days7.25.3Over 90 days115.086.9Total134.7100.0 Source: A Stratified Management and Operations Audit of Philadelphia Gas Works, January 2001, BWG - Exhibit VIII-9. Exhibit VIII-4 Philadelphia Gas Works Bad Debt Write-offs 1995 -1999 Fiscal Year Revenues Write-offs Percentage of Revenues Written-off($ millions)($ millions)%199547337.98.0199656934.36.0199754439.67.2199848646.59.6199946336.77.9Five-Year Average50739.07.7 Source: A Stratified Management and Operations Audit of Philadelphia Gas Works, January 2001, BWG - Exhibit VIII-11. PGWs 1999 typical residential bill was $71.20 per month. On average, 178 days passed from the billing date until the ultimate write-off of a past due account. The 178 days represented almost six billing cycles resulting in, on average, a $427 past due balance on a customer bill. Follow-up Finding and Conclusion No. 13 The Company has not significantly reduced the size of its uncollectible accounts (bad debt write-offs) and delinquent receivables have increased substantially. As indicated in Exhibit VIII-5, the 5.8% average percentage of revenues written-off during the four-year period 2000 to 2003 is lower than the 7.7% average write-offs during the 1995 to 1999 period (as shown on Exhibit VIII-4), but is still almost three times the industry average of approximately two percent. This is significant given the increase in average revenues since the BWG review. Exhibit VIII-5 Philadelphia Gas Works Bad Debt Write-offs 2001 - 2003 Fiscal Year Revenues Write-offs Percentage of Revenues Written-Off($ millions)($ millions)% 2000 555.9 25.4 =(c2/b2)*100 \# "#,##0.0"  4.62001 750.0 27.9  =c2/b2*100 \# "0.0" 3.72002 593.5 53.0 =c3/b3*100 \# "#,##0.0"  8.92003 797.2 49.4 =c4/b4*100 \# "#,##0.0"  6.2Four-Year Average  =SUM(ABOVE)/4 \# "#,##0.0"  674.2  =SUM(ABOVE)/4 \# "#,##0.0"  38.9 =c7/b7*100 \# "#,##0.0"  5.8  Source: PGW Financial Statements 2001 2003. On the other hand, PGWs delinquent receivables have increased significantly since the time of BWGs review, which indicates that some of the savings from PGWs decreases in bad debt write-offs may be lost as a result of future write-offs of these growing delinquencies. Exhibit VIII-6 shows that, PGW had $275.6 million in delinquent receivables (representing 34.5% of annual revenues) as of October 2003 which compares to $134.7 million (representing 29.1% of annual revenues) in 1999. When the delinquent receivables for Octobers 2002 and 2003 in Exhibit VIII-6 are compared to September 1997 and 1998 amounts in Exhibit VIII-3, several negative trends are observed. First, both the dollar amounts and delinquent accounts as a percentage of revenues increased. Secondly, the percentage of delinquencies over 90 days peaked at almost 91% in October 2003. Exhibit VIII-6 Philadelphia Gas Works Aging of Delinquent Accounts Receivable As of October 2002 and October 2003 October 2002October 2003Accounts Receivable AgeAccounts Receivable AmountPercentage Of TotalAccounts Receivable AmountPercentage Of Total($ millions)%($ millions)%30 to 59 days18.17.615.55.660 to 90 days17.27.39.93.6Over 90 days201.285.1250.290.8Total236.5100.0275.6100.0Total Revenue797.234.5593.539.8 Source: Data Request CS-17, Accounts Receivable Aging Report PGWs typical residential bill in 2003 was $112.50 per month. The Audit Staff determined that on average 135 days pass between the billing date and the ultimate write-off or payment on the account. The 135 days represent 4.5 billing cycles which translates to an average of $506.25 past due on a written-off customer bill. In late 2003, PGW hired a consulting firm to review its credit and collection practices. The consultant is to measure PGWs practices over a ten-month period against the best practices in the industry and help the Company implement the best or appropriate practices. PGWs credit and collection policies and procedures have been changed in an effort to comply with the Commissions credit and collection regulations at 52 Pa. Code 56. The Audit Staff reviewed these policies and procedures and found that PGW often does not require customer deposits, and when it does, the deposits are too small. Additionally, PGW still does not consistently perform credit checks on customers or report customer delinquencies to credit bureaus. The aforementioned consultant will review this area and help PGW implement best practices. The consultants contract includes bonuses if PGWs collections improve. However, until appropriate practices are implemented that result in increased revenue and reductions to costs, PGW will continue to write off large sums of money. Reducing PGWs write-off rate to the industry average of two percent would save PGW approximately $29 million annually. Staffs Follow-up Recommendation Strengthen credit and collections policies and procedures, and implement changes as necessary to reduce the write-offs of uncollectible accounts. Prior Recommendation Revise policies so that PGW can shut off customers after 32 days compared to its current 48-day termination practice. Prior Situation PGWs collection steps in its tariff filed with the Gas Commission were as shown in Exhibit VIII-7. PUC regulations allowed utilities to shut off customers after 32 days. However, PGW was not sending out its first reminder to customers until day 27. Therefore, the Companys first possible shut-off notice was on day 48 and actual shut off was on day 58. Follow-up Finding and Conclusion No. 14 PGWs current shut-off procedures comply with Commission regulations. PGW has procedures in place that comply with shut-off procedures set forth in the PUCs regulations at Pa. Code 52 56.81-118. The Code does not specify a specific timeline to start the shut-off procedure. However, it does specify a timeline and specific procedures once the shut-off procedure begins. Exhibit VIII-7 Philadelphia Gas Works Steps Required to Shut Off Residential Service and Timeline Year 2000 Day PGW Action1Bill20Due Date27Reminder Notice Mailed41First Telephone Call43Field Call48Shut-Off Notice Call50Field Call/Shut-Off Notice Mailed54Second Shut-Off Notice Mailed58Possible Service Shut-Off  Source: A Stratified Management and Operations Audit of Philadelphia Gas Works, January 2001, BWG - Exhibit VIII-12. As of late 2003, PGWs first possible shut-off notice was day 40 and the service shut off was day 50, except in cases when a 48-hour termination notice was needed, and then it was day 52. The PUCs Bureau of Consumer Services stated that this is the same shut-off timeline used by all regulated utilities in Pennsylvania to shut off customers. PGWs most recent collection steps as per its tariff filed with the PUC are shown on Exhibit VIII-8. Exhibit VIII-8 Philadelphia Gas Works Steps Required to Shut Off Residential Service and Timeline - Year 2003 DayType of NoticeCommunication Mode1Bill Month 1 Mail20Due Date Mail30Bill Month 2 Mail4010 day termination notice Mail4772-Hour NoticeField Visit or Phone Call 50Service Shut-Off or, if not home, 48-Hour Notice Field Visit52Possible Service Shut-Off Field VisitSource: PGW Tariff. The 32-day shut off period proposed by the consultant is possible only if a termination letter is mailed the day after the customers billing due date. However, this is not standard practice throughout Pennsylvania. PUC regulations do not address how long after the billing due date that termination procedures may start, only the rules and timelines once the shut-off procedures begin. PGW changed its procedures to move up the shut-off notice date by eight days which is more in line with other Pennsylvania regulated gas utilities. In effect, PGWs customers now need to settle their bill eight days sooner to avoid service shut off. Staffs Follow-up Recommendation None. Prior Recommendation Review the feasibility of reducing the meter read-to-billing cycle lag to one day. Prior Situation PGWs customer bills were not mailed until two or more days after their meters were read. The consultant concluded that a reduction of one day in the meter read-to-bill mailing cycle would have resulted in a one-time cash flow benefit of $21 million and on-going annual savings of $1.3 million on based on an interest rate of six percent. Follow-up Finding and Conclusion No. 15 PGW has modified its meter read-to-billing cycle procedures, but has failed to shorten its billing cycle. In response to BWGs recommendation, PGW hired a vendor to assist in shortening the timeline of its billing process. This vendor now performs the necessary quality controls prior to mailing of billings and issues the bills in a shorter time frame than was done by PGW. As a result, PGW reported in its implementation progress reports that they had accomplished a one-day reduction in the billing lag. However, the Audit Staffs analysis indicates that, on average, the billing lag went from 2 days to 1 days for accounts read on the second day of the two-day meter reading cycle and from 3 days to 2 days for accounts read on the first day of the cycle. Since this is still a two business day average and the mailing date does not appear to have changed, it does not appear that PGW has realized any savings as a result of the changes taken so far. As discussed earlier in Follow-up Finding and Conclusions No. 11 and 12, most of PGWs meter reads are acquired via the radio-based AMR system, with just a few telephone and manual reads. The Customer Service Department uploads the meter reading files to the BCCS system for bill processing at approximately 4:00 P.M. of each business day. The usage and billing amounts are then computed overnight and employees create billing files the following day. The Company then electronically sends the billing file to the new vendor who creates an error evaluation (i.e., unexpected variances, etc.) file and sends it to PGW for review. Once PGW researches the exceptions and accepts the billing file, the vendor prints, folds, stuffs, packages, and mails the bills. PGWs bills are mailed on the morning of the second business day following the completion of the 2-day meter reading cycle, or approximately 1 days after the last meter read in the cycle and approximately 2 days after the first meter read in the cycle. As implied by BWGs one-day billing lag recommendation, most large utilities have a billing timeline that includes reading the meter and loading the data into their computer system on day one and issuing bills on day two for all accounts that are not flagged by an exception or variance analysis run. The few accounts identified as needing attention or a second read attempt are held for special processing, and when billed, given an appropriate due date based on when the bill is issued. In the next billing cycle, these meters are read with the rest of the meters and, if no problems are found, the reads are processed normally. If more of PGWs post-meter-read functions could be performed the night immediately after the meter read, the vast bulk of the bills would be ready for mailing the next day. This would be a full-day reduction to the Companys revenue lag which, based on 2001 & 2002 revenues, would result in an approximate one-time $22 million increase in cash flow and annual savings of $883,000 assuming a four percent interest rate. In the alternative, PGW should be able to save half of this amount, or $11 million and $442,000 annually by merely converting the existing two-day billing cycles to twice as many single day billing cycles. This would eliminate the situation whereby one-half of PGWs meter reads sit unprocessed for a full day until completion of the second day of the 2-day meter reading cycle. Staffs Follow-up Recommendation Implement changes to the billing process in order to mail bills to customers the day after their meter readings are acquired. Prior Recommendation Measure appointments kept for field service work from the standpoint of the customer, that is, actually accomplishing the work desired, and not on whether the employee says he or she was at the job site at a specific time. Prior Situation BWG concluded that PGWs management had not placed sufficient emphasis on the need to meet customer expectations in its field service operations. Customer Service Representatives (CSRs) scheduled customer visits, but had no assurance that field operations kept the appointments. PGWs field operations was taking credit for meeting an appointment when its employees showed up at the work site; not when the employees completed work that the customer desired. This practice increased the number of calls to the call center and adversely affected the customers overall impressions of PGW. Follow-up Finding and Conclusion No. 16 PGW now has daily customer service metrics that measure completion of appointments and show the status of a service order. PGW is now measuring the satisfactory completion of fieldwork instead of just measuring the arrival of a service employee at the job site. Daily metrics that measure completion of appointments were started in July 2001. They identify the percentage of service calls completed when the requested appointment time or window is met. The BCCS application now ties together the CSRs and the operations department. The CSRs are now able to view the status of an order. Field supervisors have been equipped with laptop computers that provide access to the Mobile Dispatching System to check on both the order and the technicians status. To further raise the percentage of appointment completion, CSRs now use a dial out system during the day to remind customers of their appointment scheduled for the next business day. Service technicians also now use cell phones to confirm their upcoming appointments. PGW has developed a tracking system to measure the completion of appointments. This information (see Exhibit VIII-9) for the fourth quarter of 2003 is now part of PGWs customer service metrics and the information as is currently supplied to the Commission. Of the 80,242 appointments recorded in the fourth quarter of 2003, PGWs service technicians missed 14% of them. It should be noted that the Commission defines cant get ins or CGIs as missed appointments, thus CGIs are counted as missed appointments. Two calls must be made to the customer prior to physically visiting the property and marking the appointment CGI. Exhibit VIII-9 Philadelphia Gas Works Customer Service Field Appointments Made and Completed October December 2003  MonthAll AppointmentsAppointments Made/CompletedPercentage Made/CompletedPercentage Missed October 29,648 25,736  =c2/b2*100 \# "0%" 87%  =(b2-c2)/b2*100 \# "0%" 13%November25,38421,901 =c3/b3*100 \# "0%" 86% =(b3-c3)/b3*100 \# "0%" 14%December25,21021,711 =c4/b4*100 \# "0%" 86% =(b4-c4)/b4*100 \# "0%" 14%4th Quarter 2003 =SUM(ABOVE) 80,242 =SUM(above) 69,348 =c6/b6*100 \# "0%" 86% =(b6-c6)/b6*100 \# "0%" 14%Source: Quarterly Progress Report to the Pennsylvania Public Utility Commission, January 22, 2004. It appears that PGW is now properly monitoring its success in completing field service work. This should provide on-going measurements with which to trend performance and result in less complaint calls due to the increased accountability for completing job assignments. Staffs Follow-up Recommendation None. Prior Recommendation Conduct a study to determine which district offices should be closed and the timing of their closing. Prior Situation PGW was operating eight district offices known as Customer Service Centers (CSCs) throughout the city in 2000. According to a PGW internal audit report prepared in late 1999, management should have considered closing some, or all, of these offices because of cost and declining usage. The district offices cost for processing a payment was $3.20. In contrast, the approximately 185 contract payment collection sites spread around the city cost PGW $.50 for each payment. Most utilities had either closed or substantially reduced their district office locations. In Philadelphia, PECO Energy Company had closed its neighborhood offices and the Philadelphia Water Revenue Bureau had only three offices compared to PGWs eight district offices. Follow-up Finding and Conclusion No. 17 PGW conducted a cost/benefit study of its CSCs or district offices which identified substantial potential savings from closure; however, as an alternative the Company has reduced the CSCs days of operation and closed two of the eight offices from March through October. Based on the District Office Closure Study (Closure Study), beginning in 2002 PGW reduced the number of weekdays each office is open to the public and began closing the two least utilized CSCs from March through October. The Closure Study demonstrated that PGW would save $13 million over five years (approximately $5.5 million from reduced building costs and approximately $7.5 million from reduced labor costs) if it would close all of its CSCs, and that it could save labor and building costs of more than $1 million annually ($1,355,222 in 2003) if it would close only the Northeast and North Central Offices. Management has selected one of the alternatives identified by the Closure Study whereby it has initiated an operational change for its six most heavily utilized CSCs by reducing the number of weekdays each office is opened to the public. Additionally, PGW closed the Northeast and North Central District Offices, except for November through February when they are used as Low-Income Heat Energy Assistance Program (LIHEAP) cash grant intake sites. The Northeast and North Central District Offices were selected for partial year closure because they served the fewest number of LIHEAP customers, processed the least number of payments, are the least accessible by Public transportation, and are relatively close to other regional offices that will remain open. At the time of our fieldwork, PGW had no plans to further reduce operations at any of the six CSCs that were operating throughout the year. However, personnel in the CSCs perform several functions that are already performed in the central call center, including: Payment arrangements, LIHEAP grant intake, Gas turn-ons and turn-offs, Customer deposits, Service orders, Bill payments, and Bill inquiries Also, customers may pay their bills at approximately 200 contracted payment collections centers throughout the city. BWG found that the cost for payment center processing is far cheaper than PGWs own payment processing costs (see Prior Situation above). Furthermore, LIHEAP intake is available at community resource centers throughout the city. The Pennsylvania Consolidated Statutes at 66 Pa. C.S. 2203(8) states: The Commission shall encourage the use of community-based organizations that have the necessary technical and administrative experience to be the direct providers of services or programs which reduce energy consumption or otherwise assist low-income retail gas customers to afford natural gas service. District offices increase the costs to all customers who do not use them. Since PGW considers availability to low-income customers as the most important function performed by the CSCs, it has chosen to keep six of its eight CSCs or district offices open year round. In fiscal year 2001, the CSCs did generate over $4.7 million in LIHEAP cash grants for customers. However, PGWs customers can obtain these grants without the use of the CSCs because LIHEAP grant intake already occurs at the citys community resource centers and by telephone contact with the Companys central call office. The Closure Studys estimated savings of $1,355,000 applicable to closing the Northeast and North Central District Offices was based on reducing the total CSC workforce from 57 to 34 employees through retirements and reassignment of personnel. However, the partial year closing of these two offices along with operation changes at the other six CSCs actually results in a reduction in workforce to 44 employees and the realization of approximately $876,200 ($625,100 in labor costs and $251,100 in building operating costs) in annual savings. While PGWs reduction in operations has provided some savings, management needs to reevaluate the CSC closure issue, taking into account current laws, regulations and other relevant circumstances, and the impact on LIHEAP, CRP, SCD, etc.; develop a plan to implement the decisions made; and establish a specific time schedule for completion. Nonetheless, if appropriate at some point in time, the permanent closing of the eight CSCs or district offices could result in additional annual savings of approximately $1.25 million (approximately $841,000 from reduced building costs and approximately $409,000 from reduced labor costs). The Audit Staff fully understands that the CSC closures would have ramifications; however, the Company must appreciate that the potential savings are significant enough to warrant further evaluation. Staffs Follow-up Recommendation Reevaluate any further CSC closures by performing an analysis which considers the impact of current laws and regulations and takes into account other relevant circumstances. If further closures are deemed appropriate, develop and implement an action plan and establish a time schedule for implementation. Prior Recommendation Improve the cost-effectiveness of the Customer Responsibility Program. Prior Situation The last external evaluation of the Customer Responsibility Program (CRP) was issued in 1997 for the 1995 and 1996 fiscal years and concluded that PGWs CRP was not cost effective. The 1997 evaluation analyzed consumption, transactions, both operational costs and general service costs for customers while they were on the program, and the overall financial effects of the CRP. The report made two general recommendations for improving the CRP are as follows: Control the size of the CRP and, if necessary, limit the number of good-paying customers who join. At that time PGW was under the jurisdiction of the Philadelphia Gas Commission which could apply budgetary or cost controls on the program that would limit the number of qualified participants. Systematically enforce the payment requirements for CRP participants to help customers maintain payment discipline. PGW indicated to BWG that they had corrected many of the problems associated with the 1997 evaluation. The consultant concluded that the Company should proceed with an evaluation planned for the summer of 2001. Follow-up Finding and Conclusion No. 18 PGW has procedures in place to enforce CRP payment requirements and improve the cost-effectiveness of CRP. Working with the PUCs Bureau of Consumer Services, PGW developed a universal service restructuring plan that includes, in part, its CRP. PGW had an external evaluation of the CRP conducted in 2002 that evaluated the programs processes and compliance with the PUCs Customer Assistance Program and universal service regulations. The independent evaluation was based on a comparison of PGWs CRP with the PUCs regulations and policies. The evaluation found 11 CRP design features that were out of compliance with the PUCs CAP Policy Statement. PGW redesigned its CRP to address the deficiencies found in the evaluation. The PUC approved the CRP re-design proposed by PGW in its restructuring plan. PGW has written procedures to enforce the payment requirements of CRP customers. If CRP participants do not pay by the due date, their status is changed to default and they are sent another bill. If they do not pay within 44 days after their first bill, they receive a 10-day shut-off notice. CRP participants must be recertified annually. PGWs CRP is open to all qualified customers. PGW does not place cost or budgetary controls on the program that limit the number of qualified participants. Low-income, payment-troubled customers at or below 150% of the federal poverty level and not enrolled in the senior citizen discount program are entitled to enroll in the program. The Company bills its CRP customers according to their income level instead of their usage level. PGW should have effective processes in place to control the administrative costs of PUC-mandated customer assistance programs and should have an independent evaluation of the cost-effectiveness of these programs in accordance with PUC regulations at 52 Pa. Code 69.265. PGW officials indicated that they have agreed with the PUC to conduct this evaluation within three years of the initial process evaluation. However, in accordance with the Public Utility Code at 66 Pa. C.S. 2203(8) the Company must allow all qualified customers who apply to participate and that the PUC provide appropriate funding for its CRPs to cover all qualified customers. Furthermore, the Public Utility Code at 66 Pa. C.S. 2203(8) requires the PUC to ensure that universal service programs are available, appropriately funded, and to ensure that the programs are operated in a cost-effective manner. The Commissions Bureau of Consumer Service (BCS) encourages utilities to concentrate on how to make programs more cost-effective and efficient rather than focusing on whether or not a program is cost-effective. The Utility Code also requires subsequent external evaluations of the universal service and energy conservation programs to occur at no more than six-year intervals. As mentioned previously, PGW has indicated that it plans to conduct this evaluation within three years of the initial process evaluation. The cost of the CRP discount is absorbed into the utilitys base rates and is spread among the non-CRP customers. PGWs CRP discount costs averaged $20.0 million for the last seven-year period (1997 to 2003), as shown in Exhibit VIII-10. Note that in years when natural gas prices are high (i.e. 2001 and 2003), the CRP discount rises substantially because the customers CRP payments are based on income levels and, thus, increases in natural gas price fluctuations do not affect customer contributions but do increase the costs of the program. Exhibit VIII-10 Philadelphia Gas Works Customer Responsibility Program Costs to Customers 1997 2003 Fiscal YearCRP Discount $ million1997 17.71998 12.01999 9.3*2000 14.42001 37.62002 16.12003 33.0Total140.0Average 20.0* Updated from BWG Report Source: Data Request CS-32. PGW expects reduced collection costs for CRP customers because they are receiving a discount as long as they make timely payments. The next PUC mandated external evaluation should determine more clearly if CRP customer collection costs are reduced and if the CRP is cost-effective overall. Based on our review, it appears that PGW has satisfactorily complied with the timetable to transition from Philadelphia Gas Commission rules and regulations regarding CRP to the PUC rules and regulations. Staffs Follow-up Recommendation None. Prior Recommendation Appeal to the City administration to tighten eligibility rules for PGWs social programs and/or transfer the cost of the social programs from PGW to the City general fund. Prior Situation PGW was being used as a vehicle for implementation of social programs by the City of Philadelphia. In fiscal year 1999, PGW had three social programs with an aggregate annual cost of $27.2 million (updated amount for 1999 is $25.0 million as a result of revising the CRP costs from $11.5 million in the BWG report to $9.3 million). These three programs included: A Senior Citizen Discount (SCD) Program that offers a 20% discount to customers over 65 years old ($13.5 million), A Customer Responsibility Program (CRP) that offers discounts to low income customers ($9.3 million), and A Conservation Works Program (CWP) that is designed to reduce energy usage ($2.2 million). The costs of these programs were spread across the volume of natural gas used in the calculation of PGWs gas cost rate (GCR) volumetric charges. BWG believed that the costs of these programs were more appropriately City of Philadelphia expenses rather than PGW GCR costs. The Consultant further stated that as gas competition progresses, PGW would be at a competitive disadvantage because of these programs. Follow-up Finding and Conclusion No. 19 PGW has been unsuccessful in transferring the cost of its social programs to the City, but has modified them since the management audit to conform to the Public Utility Code and PUC regulations. In accordance with the Consultants recommendation, PGW sent a letter to the City administration asking for City funding for the social programs. City officials did not formally respond to this request but conveyed that they did not have sufficient funds to support PGWs senior citizen and low-income discount programs. In fact, during 2003, the Philadelphia City Council passed two ordinances directing that the SCD program be continued. However, since the management audit was performed, PGWs social programs have been restructured or modified to comply with the Pennsylvania Public Utility Code and PUC regulations. On July 1, 2002, PGW filed its gas competition restructuring plan, which was effectively its first general rate request before the PUC. On March 21, 2003, at M00021612, the PUC issued its order concluding this case which, in part, resulted in PGW issuing a tariff effective September 1, 2003 that still included the 20% SCD for existing customers. However, this new tariff closed enrollment into the SCD program to new applicants effective September 1, 2003 and thereafter. It is noteworthy that the SCD is not a component of the Companys universal service program (as detailed later) and is not a program offered by any other regulated Pennsylvania utility. Although PGW proposed and the PUC approved a tariff to prospectively eliminate the SCD through the phase-out described above, the City of Philadelphia, the actual owner of PGW, desired to keep the discount for qualified customers. Therefore, despite the potential detriment to PGW in the evolving competitive gas market as noted in BWGs report, PGW filed a Petition for Rescission and Amendment of its restructuring plan in July 2003 which sought to modify the SCD for participants enrolling in it on or after September 1, 2003. In October 2003, the PUC sent this petition to enroll new applicants into a means-tested SCD for hearing before an Administrative Law Judge (ALJ). On December 1, 2003, the Consumer Education and Protective Association filed a petition to allow PGW to immediately enroll, on an interim basis, additional seniors into a means-tested SCD program. In mid-December 2003, pending a final decision by the PUC, PGW was permitted to put a means-tested SCD into its tariff on an interim basis. PGWs universal service programs in addition to the SCD are designed to help low-income, payment-troubled, and special needs customers pay their utility bill or lower the amount of natural gas they use. The universal service program includes the following programs: Customer Responsibility Program (CRP) A program that provides an alternative to traditional collection methods for low-income, payment troubled customers at or below 150% of the federal poverty level (fpl). Customers enrolled in CRP agree to make monthly payments to PGW based on household size and gross income. Conservation Works Program (CWP) A free energy conservation assistance program designed to provide cost effective weatherization treatments to qualifying CRP residential gas heating customers. The goals of the CWP program are to reduce gas usage, lower gas bills, and improve payment practices. Customer Assistance Referral and Evaluation Program (CARES) A program that provides help to customers with special needs. CARES is designed for customers who are experiencing family emergencies, divorce, unemployment, or medical emergencies. The goal is to support and provide direction to help customers pay their bill. Low Income Home Energy Assistance Program (LIHEAP) A federal program that provides financial assistance to qualified customers to pay home energy bills. The cost of the SCD, CRP, CWP, and CARES is included in PGWs base rates and charged to all of its customers. The funds for LIHEAP come from the federal government and therefore are not included in the PGWs rates. PUC regulations at 52 Pa. Code 62.4 require PGW to provide the universal service programs for its low-income and special needs customers. The PUC accepted the CWP and CARES proposals as included in PGWs restructuring plan, but directed the Company to redesign its CRP to comply with PUC regulations at 52 Pa. Code 69.265 effective as of September 1, 2003. A summary of the CRP changes are shown on Exhibit VIII-11. The universal service programs cost PGW $41.4 million in 2003. PGW estimates that the changes to the SCD program should result in an annual savings of approximately $850,000 over the next 16 years. In contrast, the SCD provided to approximately 86,300 customers cost $20.2 million in fiscal year 2003 or 2.5% of annual operating revenue. The indirect costs of administering the program are not known and not included in the $20.2 million. Potential savings from discontinuing or phasing out the SCD entirely include the $20.2 program costs plus the indirect costs of administering the program, less the cost of senior citizens who would qualify and receive a CRP discount or CWP, LIHEAP or other funds. Staffs Follow-up Recommendation Continue efforts to eliminate the SCD from the cost of service provided to ratepayers. Exhibit VIII 11 Philadelphia Gas Works Customer Responsibility Program Design Summary of September 2003 Revisions Program Component Old Design New Design as of 9/1/2003Eligibility150% of fpl, but only those at or below 135% of fpl received discount.150% of fplCRP Payment Plans7.35% of household income for those under 135% of fpl. Budget + 2% of arrears for customers between 135-150% of fpl.0 - 50% of fpl = 8% of household income 51 - 100% of fpl = 9% of household income 101 - 150% of fpl = 10% of household incomeMinimum Payment$30$18Arrearage ForgivenessAfter 5 years of successful participation.1/36 preprogram arrears forgiven each month payment is made.Monthly Co-payment for Arrearage Forgiveness None$3LIHEAP PenaltyIf customer does not apply for LIHEAP, PGW charges the amount of an average LIHEAP grant to the customers account.LIHEAP penalty eliminated.Excess Usage ChargeCharge assessed for usage above average.Excess usage charge eliminated.Source: Data Request CS-24. fpl = Federal poverty level. IX. GAS DISTRIBUTION AND SUPPLY MANAGEMENT Prior Recommendation Accelerate the cast iron main replacement program to 27 miles per year. Prior Situation The Companys commitment to its cast iron main replacement program waned in the 1995 to 1999 time period. Prior to this period, from 1990 to 1994, PGW replaced an average of approximately 22 miles of cast iron main per year. However, during the 1995 to 1999 time period, PGW replaced an average of nine miles of cast iron main per year This actual replacement rate ranged from approximately 0.4% to 0.7% of its cast iron mains annually. BWG concluded that this replacement rate was inadequate and detrimental to gas safety. As a result, the Consultant recommended that PGW replace 1.5% of its cast iron mains or 27 miles annually for the next six years as a catch-up provision and to get the Company back on schedule. Follow-up Finding and Conclusion No. 20 The Company has accelerated its cast iron main replacement program to reasonable levels. Due to its financial crisis, PGW felt that the BWG recommended replacement rate of 27 miles annually for the next six years was unrealistic. Concurrent with the BWG management audit, PGW commissioned an external consultant in 2000 to conduct a cast iron main replacement risk profile study and replacement prioritization model. The study was most recently updated in 2002. The model predicts the risks associated with different cast iron main replacement levels thus allowing the Company to make maximum use of replacement funding by targeting city blocks of cast iron main most likely to break. As part of its 2000 study and reiterated in its 2002 update, the external consultant recommended a replacement rate of 1% or approximately 18 miles annually. The Company, however, has replaced its cast iron mains beyond this recommended level over the past several years (see Exhibit IX-1) and the Company plans to target 18 miles of cast iron main for replacement on an annual basis until at least 2009. The BWG report cited a 1% annual replacement rate as the gas industrys acceptable standard. For 2001, 2002, and 2003, PGW exceeded this rate and, by adhering to its projected 18-mile annual replacement program, will continue to exceed the standard by an increasing rate every year. By aggressively replacing problematic cast iron mains over the past several years, PGW has reduced the number of cast iron main segments experiencing four or more breaks annually by approximately 21% since 2000. Additionally, the number of cast iron main leaks annualized over the past three years (1,861) has remained below its 10-year system average of 2,000 leaks. Exhibit IX-1 Philadelphia Gas Works Historical Cast Iron Main Replacements 1990 June 2003  Calendar Year Miles Replaced Miles Remaining Percentage Replaced1990371,8681.9%1991181,8501.0%1992201,8301.1%1993121,8180.7%1994221,7961.2%199581,7880.4%1996101,7780.6%1997121,7660.7%199881,7580.5%199971,7510.4%200091,7420.5%Subsequent to the completion of the management audit2001191,7231.1%2002221,7011.3%Jan-June 2003201,681 1.2% projected based on six month dataSource: GDO-4 Staffs Follow-up Recommendation None. Prior Recommendation Accelerate the replacement or cathodic protection programs for coated-but-not-cathodically protected steel main, and continue to replace bare steel services. Prior Situation In 1991, PGW initiated a program to apply cathodic protection to existing coated steel pipe installed before August 1, 1971. From 1991 to 2000, the Company replaced or applied cathodic protection to 32 miles of steel main or at an annual average replacement rate of 3.2 miles. As of 2000, 534 miles of coated but unprotected steel main remained in the system. While the amount of coated but not cathodically-protected steel main decreased, the leak rate increased from an average of 37 per year for the period 1991 to 1995 to an average of 78 per year for the period 1996 to 2000. As part of the BWG management audit review, it was recommended that PGW target approximately 11 miles of coated but unprotected steel main for replacement annually which equates to about 49 years for complete replacement. Bare steel services were at least 30 years old with the rate of leakage becoming more of a concern due to corrosion. PGW had no specific program to perform leak surveys devoted solely to bare steel services. The close proximity of bare steel services to buildings also raised safety concerns. From 1995 to 2000, PGW replaced approximately 57,000 bare steel services or at an average replacement rate of 9,500 annually. BWG recommended an average annual replacement rate of approximately 7,900 bare services to complete replacement in approximately 23 years. Follow-up Finding and Conclusion No. 21 PGW has adequately replaced bare steel services, but has not achieved targeted replacement levels for coated-but-not-cathodically protected steel main. Since 2000, PGW has replaced bare steel services at an annual average rate of approximately 7,900 (see Exhibit IX-2) or at a rate that would complete replacement within 23 years. However, as shown in Exhibit IX-3, coated unprotected steel main have only been replaced at an annual average rate of 5.6 miles (or approximately half of the 11 miles recommended by BWG) or a rate whereby replacement would take 93 years. Although greater funding was committed in 2001 and 2002 than in previous years, the Company significantly reduced its 2003 commitment in part due to an additional funding commitment to its cast iron main replacement program (see Finding and Conclusion No. 20). Exhibit IX-2 Philadelphia Gas Works Bare Steel Service Replacements 1995 2003 Year Services ReplacedRemaining Services% of Services Replaced19957,100256.32.7%19969,400246.93.7%19977,700239.13.0%19984,600234.51.9%199910,700223.94.6%200017,800205.98.6%Subsequent to the completion of the management audit.20018,200197.74.1%20026,600191.03.4%200319,000182.04.7%01-03 Annual Avg.7,9001 annualized based on six months data  Source: Data Request GDO-7. Exhibit IX-3 Philadelphia Gas Works Coated-but-not-Cathodically Protected Steel Main Replacements 1995 2003 Year Miles replaced or cathodically protected Remaining MilesPercent of Change Leaks Repaired199115650.2%41199215640.2%33199325620.4%30199405620.0%20199525600.4%59199675531.3%90199735500.5%59199835470.5%561999115362.0%80Subsequent to the completion of the management audit200025340.4%107200175271.3%164200285191.5%342003125170.1%7001-03 Annual Avg.5.61 annualized based on six months data Source: GDO-6 Without committing the necessary resources to replace or apply cathodic protection to its coated but unprotected steel mains, the Company risks experiencing increased leakage rates which would result in additional costs to repair the leaks as well as increased safety concerns. Staffs Follow-up Recommendation Increase cathodic protection or replacement efforts for coated but unprotected steel mains to more reasonable levels and, at a minimum, maintain current bare steel service replacement levels. Prior Recommendation Evaluate engineering staffing levels and trends to determine the most cost-effective way to obtain engineering services. Prior Situation Since 1990, the proliferation of engineering needs had caused a dilution of PGWs engineering talent in critical areas. The number of engineers in gas supply/processing had declined from eleven to six; in distribution from eight to four; and in engineering from twelve to six, with additional engineers redeployed into non-critical engineering areas. BWG recommended that PGW examine the need for engineers in each of its departments and in the executive ranks now and over the next ten years, and then adjust its work force to accommodate the changing needs. While some routine engineering work could have been effectively out-sourced, the basic engineering talent required to analyze situations, develop plans, set standards, and solve problems should have resided within PGW in experienced well-qualified engineers. Follow-up Finding and Conclusion No. 22 PGW has adequately addressed its engineering staffing levels and has begun using engineering firms to augment its staff for specialized needs and to meet peak workload conditions. Recognizing its shortage of engineers, the Company aggressively hired engineers in 2002. By June of 2002, the Company had hired 19 engineers which, due to turnover and additional retirements, resulted in a net increase of 11 engineers from 2000 staffing levels. The total engineering complement shown in Exhibit IX-4 for the Distribution, Field Services, Chemical Services, Engineering Services, Marketing, and Gas Processing Departments was 36 as of June 2003. That level represents an increase of 44% from the overall engineering staffing level in 2000. Additionally, three engineers now hold senior executive positions as opposed to one engineer at the time of BWGs management audit. Exhibit IX-4 Philadelphia Gas Works Engineering Staffing Levels 1999 and 2003 Department19992003Change##%Distribution 712 71Field Services 4 5 25Chemical Services 0 1100Engineering Services 8 8 0Marketing 0 1100Gas Processing 6 9 50Total2536 44Source: Data Request GDO-9. The current overall staffing level is more reflective of historic levels prior to the staffing reductions that occurred in 1989, 1995, and 1999 due to the Companys early retirement incentives. Additionally, several outside engineering firms have been utilized since June 2003 to augment the internal engineering staff for specialized engineering work and to meet peak workload conditions in order to minimize engineering project backlogs. By utilizing the external engineering firms to augment the in-house staff, PGW anticipates that over the next three years it will be able to eliminate the current engineering project backlogs that occurred as a result of the staffing downturn in the mid to late 1990s. In fiscal year 2003, the Company estimates that it realized a one-time savings of approximately $200,000 by utilizing the engineering firms to eliminate a portion of the backlog associated with as-built drawings versus utilizing in-house staff. Staffs Follow-up Recommendation None. Prior Recommendation Reduce PGW crews wages and/or increase their productivity to make them more cost-effective, or contract out more construction work. Prior Situation During the management audit conducted by BWG, virtually all gas main installation work was performed by in-house personnel. PGW estimated contract or labor rates to be approximately 20% lower than in-house personnel labor rates. Additionally, PGW estimated that overall gas main installation costs could be potentially reduced by approximately 10%, or $1.5 million annually, by increasing the utilization of contractors. Other measures identified for potentially improving efficiency included exploration of more cost-efficient construction method technologies. Follow-up Finding and Conclusion No. 23 PGW has implemented measures to mitigate construction labor costs. As shown in Exhibit IX-5, PGW significantly increased its use of contractors to perform gas main installations from fiscal year 1999 to 2003. In order to realize operational efficiencies, PGW increased its contractor utilization rates from 3% of footage installed in 1999 to a high of 55% of footage installed in 2002. Additionally, the Company imposed a wage freeze for the first two years of the most recently negotiated three-year Collective Bargaining Agreement, which was ratified on October 2, 2001. Other efficiency measures the Company has been attempting to implement include utilization of new gas main installation technologies. Under the previous labor contract, PGW was precluded from utilizing contractors for gas main installations but the current labor contract permits the use of contractors for main installation. By increasing the utilization of contractors, the Company estimates Exhibit IX-5 Philadelphia Gas Works Contractor Utilization Levels Fiscal Years 1999 - 2003 19992000200120022003Total Footage Installed68,41274,16586,001138,07557,679Footage by PGW66,60165,30652,85662,17431,989% by PGW97%88%61%45%55%Footage by Contractor1,8118,85933,14575,90425,690% by Contractor3%12%39%55%45%Source: Data Request GDO-14. that gas main installation costs have been reduced by approximately 41% per foot when paving restoration is required and approximately 6% per foot when no paving is required. Additionally, as a result of utilizing new gas main installation technologies rather than traditional methods, the Company estimates that its savings are approximately 10%. However, due to how these costs are captured in its accounting system, the Company could not provide the data necessary to reasonably estimate the savings actually achieved. Staffs Follow-up Recommendation None. Prior Recommendation Solicit bids to perform janitorial services from union and non-union contractors as well as from PGWs Building Services Department and select the most cost-effective bid. Prior Situation BWG concluded that PGWs performance of janitorial services with its own union personnel was not cost-effective. From 1997 to 2000, PGWs janitorial costs to maintain 740,000 square feet of office space averaged approximately $1.90 per square foot. In 2000 alone, total janitorial service expenses were $1,487,000. BWG stated that cleaning contracts for buildings in the center of Philadelphia using union personnel were averaging approximately $1.48 per square foot or 22% less. PGW had solicited bids for janitorial services in 1996 from non-union contractors for which the bids received averaged about $400,000 lower than in-house costs. Follow-up Finding and Conclusion No. 24 The Company has begun to use outside contractors to perform janitorial services on a limited basis with plans to expand utilization of contractors to additional facilities in the future. In fiscal year 2002, PGW solicited bids from 18 vendors to perform heavy duty floor cleaning services in a number of its facilities for fiscal year 2003. Three vendors submitted bids with the lowest bidder awarded the contract. However, due to janitorial staffing level attrition from 69 to 54 (or by 21%) since 2000, overtime has increased by approximately 68% for overall janitorial services. This increase in general janitorial services overtime has offset any current cost savings from outsourcing the heavy duty floor cleaning services. For fiscal year 2004, the Company solicited bids from several vendors to perform the same services as were performed under the fiscal year 2003 contract, with the bid awarded to the lowest bidder. The Company indicated that due to reduced janitorial staffing levels, janitorial services for additional facilities would be outsourced in the future in order to eliminate overtime and realize operational cost savings. Due to a no-layoff clause in its May 2001 Collective Bargaining Agreement, similar to the previous union contract, the Company is restricted from outsourcing its building janitorial service functions until internal staff has been reduced through attrition. As a result of outsourcing the heavy duty floor cleaning janitorial service in fiscal year 2003, the Company was able to avoid an increase in overall janitorial costs. Moreover, with continued attrition and greater utilization of contractors, the Company should be able to significantly reduce overall janitorial costs in the near future. Staffs Follow-up Recommendation Expand the use of contractors to perform building service janitorial maintenance as staffing levels decline and periodic cost/benefit analyses warrant. Prior Recommendation Take steps to increase the inventory turnover ratio from 2.7 to 3.0. Prior Situation Although the investment in material inventory had been reduced by 21% from $15.6 million in 1996 to $12.2 million in 2000, and turnover levels had increased by 42% from 1.9 in 1996 to 2.7 in 2000, the turnover ratio of 2.7 was below that of many utilities. Lack of adequate inventory management system controls had resulted in excessive inventories and low turnover ratios. BWG concluded that by increasing its turnover levels to 3.0, PGW could realize a one-time inventory reduction of $1.3 million and annual carrying cost savings of $260,000 (based on a 20% carrying cost). Follow-up Finding and Conclusion No. 25 The Company has increased turnover levels since the BWG audit, but they are still below the target ratio. As part of an effort to improve inventory operations, the Company implemented the Oracle inventory management system in June 2000. This system allows PGW to perform realistic forecasting and cycle counting, and establish replenishment requirements for inventory. More specifically, some of the system reporting capabilities include inventory value reports, cycle count listings, transaction receiving reports, transaction register reports, sub-inventory quantity reports, item definition detail reports, inventory quantity summary reports, and inactive items reports. These reports provide a constant review of monthly inventory activity and are utilized as tools to reduce or eliminate slow moving items. Exhibit IX-6 shows that PGW has improved inventory turnover and reduced average inventory levels since fiscal year 2000. It should be noted that as a result of the implementation of the Oracle system, PGW discovered that inaccurate data (i.e., incorrect classification of spare part inventory resulting in an overstatement of spare parts and understatement in net inventory) was provided to BWG during its management audit analysis. This bad data resulted in an erroneous calculation of 2000 inventory turnover of 2.7 which, when corrected, was actually closer to 2.0. Exhibit IX-6 Philadelphia Gas Works Inventory Turnover Data Fiscal Years 2000 - 2003 Fiscal Year2000200120022003 Average Inventory $12,200,000 $10,448,815 $10,296,376 $9,512,207Inventory Turnover 2.02.22.02.6 Source: Data Request GDO-18. By increasing its inventory turnover from 2.0 to 2.6, as shown in Exhibit IX-6 above, PGW achieved a one-time inventory reduction of approximately $2.7 million (from $12.2 million to $9.5 million) with a corresponding carry cost savings of approximately $405,000, assuming a 15% carrying cost. The Companys goal is to achieve an inventory turnover rate of 3.0 (as is common in the gas utility industry) by the end of fiscal year 2004. By increasing inventory turnover from 2.6 of 3.0, the Company could achieve an additional one-time inventory reduction of approximately $633,000 with associated annual carrying cost savings of approximately $95,000, based on a 15% carrying cost. Staffs Follow-up Recommendation Complete efforts to increase the turnover ratio to 3.0 or higher. Prior Recommendation Undertake a comprehensive fleet operations improvement program. Prior Situation PGWs vehicle maintenance costs were excessive. From 1996 to 2000, total vehicle maintenance costs increased from $2.6 million to $2.8 million or by 7.7%, while the number of vehicles declined by 10.6% from 998 to 892. More significantly, average maintenance costs per vehicle increased over this same time period by 20.5% from $2,605 to $3,139. PGWs high maintenance costs were due to a number of factors, including an aging fleet and an excessive number of mechanics. BWG estimated that PGW could save $600,000 to $700,000 per year if it could reduce its average vehicle maintenance costs per vehicle into the expected range of $2,400 to $2,500 per vehicle. Follow-up Finding and Conclusion No. 26 PGW has initiated fleet operation improvement measures; however, due to an increasingly aging fleet, its vehicle maintenance costs have continued to increase. In December 2002, as part of an effort to control the cost of fleet operations, the Company implemented a fleet management system with the capability to: View maintenance history and pending work, Forecast and plan preventive maintenance work throughout the year, Schedule work based on personnel availability, Identify vehicles for disposal based on set replacement criteria, Track vehicle downtime, Track labor costs, Track warranty work, and Generate management reports. Additionally, PGW utilized a 2001 Vehicle Benchmark Consulting Study to establish future vehicle maintenance and operating performance measures that are in-line with industry levels. Moreover, the Company has reduced its number of mechanics from a high of 31 in fiscal year 2000 to 27 as of June 2003. However, due to the Companys severe financial crisis, the Company cannot replace vehicles as planned. As a result, its fleet has aged considerably and maintenance costs have risen considerably. For fiscal year 2003, average vehicle maintenance costs per vehicle were $3,821, or 22% higher than the $3,139 average for fiscal year 2000. Although the Company has been unable to contain vehicle maintenance costs due to its aging fleet and the resulting increase in the cost of replacement parts, the implementation of its vehicle management information system has allowed the Company to identify and implement operational improvement opportunities including an approximate $300,000 annual cost savings as a result of reducing its mechanic staffing levels. Staffs Follow-up Recommendation Continue to improve fleet operations by utilizing the vehicle management information system to closely monitor fleet activities and, when financial conditions improve, replacing the aging fleet based on a cost and benefit analysis. X. FINANCIAL MANAGEMENT Prior Recommendation Take the necessary steps to mitigate the current financial crisis and implement appropriate measures to ensure that PGW is not allowed to make the types of questionable transactions that have compromised its financial position and impaired its credibility with lenders, the rating agencies, and others in the financial community. Prior Situation Long before the BWG management audit was conducted, PGW was an organization in financial disarray. PGW had avoided requesting increases in base rates since 1991 and used questionable financing transactions when necessary to meet the debt service coverage requirements of its revenue bond ordinances. Due to significant problems with its July 1999 computer conversion, PGW lost control of its billing and accounts receivable process, which significantly reduced its cash flow. Additionally, PGW had a high cost structure for a municipal utility, which was primarily attributable to its highly leveraged capital structure and the attendant cost of capital. PGW also experience multiple turnovers in its senior management positions, some of whom in more recent years were discharged for alleged malfeasance. According to BWG, the new interim management team at PGW had undertaken a number of financing transactions that compromised the Companys financial position. Those transactions included: The utilization of $100 million line-of-credit to finance PGWs day-to-day operational needs because the Company could not internally generate enough cash to meet its needs. As a result, PGWs commercial paper program had become a permanent part of its capitalization. Accelerated recovery of PGWs investment in the synthetic natural gas and propane air plants without regulatory approval. Sale and lease-back transactions for PGWs equipment to reduce debt service coverage requirements. An interest rate options contract to help finance PGWs cast iron gas main replacement program. Cash advances from PGWs capital improvement fund to meet the minimum cash and investment covenant contained in the line-of-credit agreement. Absent such cash advances, PGW would not have met the provisions of the credit agreement. Changing the manner in which PGW calculated the debt service coverage test for its new 1998 revenue bonds that was different from the 1975 bonds. If the Companys entire debt service were entered into the equation at the same time, PGW would have had a much smaller coverage ratio and thus its bond rating would have been jeopardized. At the time of BWGs review, PGWs management team believed that a few cold winters seasons would significantly improve the Companys financial picture. This was based on the premise that several years of warmer than normal temperatures had resulted in lower than budgeted revenues and thus were a significant cause of the financial strains being experienced. In addition, concurrent to the review by BWG, PGW was beginning to more aggressively seek assistance from both the Philadelphia Gas Commission (PGC) and the PUC to avoid a critical cash shortage. For example, in August 2000, PGW filed with both the PGC and the PUC for $52 million in rate relief. The last time PGW had sought a base rate increase from the PGC was nearly ten years earlier. By September 2000, the new interim executive management team had no choice but to seek out a $45 million interest-free loan from the City to help preserve PGWs long-term financial integrity. Furthermore, while BWG was conducting its review, it concluded that PGWs financial position would be further threatened if the bank line-of-credit supporting the Companys $100 million commercial paper program was not renewed. Moreover, the Consultant estimated that if PGW could make some minor improvement in its credit rating, the cost of the Companys line-of-credit could be reduced by $412,000 to $606,000 per year. Follow-Up Finding and Conclusion No. 27 Although PGW has taken a number of steps in an attempt to improve its financial condition, the Companys financial situation has not improved significantly. As outlined below, Company management has completed a number of steps to mitigate its ongoing financial crisis: On November 27, 2000, the Company received a $45 million short-term interest-free loan from the City of Philadelphia. Although full principal repayment was originally scheduled for June 2003, PGW received an extension from the City for full repayment to take place no later than August 29, 2006. The Company filed a number of general base rate cases with the PUC to help improve its financial condition. These included the following general base rate increases: an $11 million interim rate increase in November 2000; a $28 million rate increase, effective September 2001; and $36 million for emergency rate relief, in April 2002. PGW filed a number of gas cost adjustment clause rate changes with the PUC that are to provide revenue from customers designed to match the Companys actual cost of gas from suppliers. In May 2001, the Company successfully completed negotiations of a new three-year collective bargaining agreement contract with its union. This new three-year contract not only contained wage increases and concessions in work rules, but also enabled the Company to more effectively manage its sick leave usage problems. These efforts resulted in significant cost savings for PGW, as detailed in Chapter XII - Human Resources. In June 2001, the Company issued $119, 280,000 in revenue bonds. Justification for this bond issue was based on Black & Veatchs Bond Feasibility Study completed in April 2001. The Company renewed its $100 million line of credit; however, in August 2002 the lending institutions mandated that $20 million be reduced from the outstanding balance. While the Company was able to stop further deterioration of its bond rating and avoid having its revenue bonds declared junk status, no real savings was achieved in its the line-of-credit cost. The Company arranged for a $20 million forward purchase agreement in 2002. The Company arranged for a $15 million gas inventory financing agreement in 2003 and another $10 million in 2004. The Company has benefited by having a consistent executive management team from the spring of 2000 to the beginning of 2004. See Chapter VII - Corporate Governance for details. It appears that management efforts may have improved PGWs financial situation to some extent. For example, since fiscal year 2000, the Companys debt service coverage for its bond issues showed improvement (see Exhibit X-1). In addition, the Companys bond ratings with the rating agencies appear to have been sustained. At the time of our review, the Standard & Poor rating agency had PGW rated a BBB and Fitch rated the Companys bonds a BBB+, which reflected no change since the BWG audit. Moodys Investors Service rated PGWs bonds a BAA2, which was a slight improvement over the Baa2 rating. As indicated in the Prior Situation, PGWs management team believed that a few cold winter seasons would raise its revenues and significantly improve the Companys financial picture. However, when the colder than normal winters did occur, the impact to Exhibit X-1 Philadelphia Gas Works Comparison of Selective Cash Flow Indicators Fiscal Years 2000 - 2004  2000 ($ millions) 2001 ($ millions) 2002 ($ millions) 2003 ($ millions) 2004 ($ millions)Percentage of Change 00 - 04 % Net Construction Expenditures$48.1$57.4$57.5$60.9$69.845.11Capital Construction Funding$69.3$55.4$53.8$61.0$69.80.72Internally Generated Funds$0.0$0.0$0.0$0.0$0.00Proceeds from External Financings$0.0$109.5$1.0$115.1$0.00 Debt to Equity Ratio 4.00 4.10 4.12 4.09 3.96 -1.0 Debt Service Coverage 1975 Bonds1.722.131.983.263.96130.23 Debt Service Coverage New Bonds1.591.701.562.382.4151.57Per Data Request FM-11 (Budgeted amount as approved by the PGC on 12/2/03).Source: PGWs Annual Financial Statements. PGWs financial situation was not positive as expected. In fact, it actually caused additional financial strain. This occurred because the colder winters resulted in not only higher sales and gas purchases, but also escalated demand causing the wholesale cost of gas and thus the gas cost billed to customers to rise significantly. The combination of higher usage and higher billing rates resulted in significantly higher customer bills, causing an increase in accounts receivable (see Exhibit X-2) and bad debts. This in turn adversely impacted the Companys cash flow. However, as discussed in detail in Chapter VIII - Customer Service, Billing and Collection, PGWs management team has taken steps in an attempt to control this situation. As shown on Exhibit X-1, PGW is still not generating enough funds internally to finance its day-to-day operational needs. Instead, PGW is relying upon loans from the City, long-term financing, lines of credit, and base rate increases. Thus, while the financial improvements reflected in PGWs balance sheet and income statement numbers (see Exhibit X-3) are a positive sign, the Audit Staff believes that management must continue to identify opportunities that will improve the Companys overall financial status. Exhibit X-2 Philadelphia Gas Works Comparison of Selective Balance Sheet Categories Fiscal Years 2000 - 2004  2000 ($ million) 2001 ($ million) 2002 ($ million) 2003 ($ million) 2004 ($ million)Percentage of Change 00 04 %Total Equity1,238.71,343.71,282.51,405.01,383.011.65Net Utility Plant869.5883.7904.9928.4965.110.99Net Accounts Receivable56.396.166.692.985.451.69 Long Term Debt856.5933.4891.4999.0955.311.54 Per Data Request FM-11 (Budgeted amount as approved by the PGC on 12/2/03). Source: PGWs Annual Financial Statements. Exhibit X-3 Philadelphia Gas Works Comparison of Selective Income Statement Categories Fiscal Years 2000 - 2004  2000 ($ millions) 2001 ($ millions) 2002 ($ millions) 2003 ($ millions) 2004 ($ millions)Percentage of Change 00 - 04 %Operating Revenues555.950.0593.5797.2815.546.70 Operating Expenses508.7684.7547.2721.4710.339.63 Operating Income47.265.346.375.8105.2122.88 Interest and Other Income9.412.315.43.83.2-65.96 Interest Expense59.058.458.756.758.6-0.68 Net Increase (Decrease) in Retained Earnings(20.4)(6.8)(15.0)4.831.9256.37 Per Data Request FM-11 (Budgeted amount as approved by the PGC on 12/2/03).Source: PGWs Annual Financial Statements. Staffs Follow-up Recommendation Continue efforts to improve the Companys financial situation, particularly as those efforts relate to generating additional cash flow. Prior Recommendation Establish a functioning audit committee on the PFMC Board of Directors, and restore a viable internal audit function either internally or by outsourcing it. Prior Situation BWG found that the Philadelphia Financial Management Corporation (PFMC) Board of Directors did not have a functioning Audit Committee, and that the committee had not met with PGWs outside auditors for several years. While the PFMC Management Agreement stated that the Board was obligated to apply high standards and due diligence in the management of PGW, the Board was not applying such standards consistently to its Audit Committee. BWG found that the Audit Committee had met only sporadically over several years. While the new City Mayor reconstituted the PFMC Board in early 2000, the Audit Committee was only reestablished in August 2000. BWG found that the Audit Committee had only one member and had not yet conducted any official committee meetings. BWG also found that PGW had not implemented many of the recommendations made by the Companys external auditors; however, the Company indicated that internal control improvements were well underway and promised significant progress would occur during fiscal year 2001. Furthermore, BWG found that PGW had virtually eliminated its internal audit function. At the time of the BWG audit, PGWs Internal Audit (IA) Department employees had been transferred to temporary assignments. Furthermore, upon returning from the temporary assignments, one of the four auditors resigned and another transferred into another Department. As a result, there was a significant gap between audits planned and audits actually performed. This resulted in BWG recommending that the Company either restore IA staffing levels or outsource the entire internal audit function. Follow-Up Finding and Conclusion No. 28 The PFMC Board has reconstituted the Audit Committee; updated the Audit Committee Charter to reflect the current organization of the Company, and the committee members roles and responsibilities; and outsourced most of PGWs internal audit functions. The PFMC Board met on December 9, 2003 and updated the Audit Committees (AC) Charter to reflect PGWs current organizational structure. After reviewing the published AC Charter, we noted that the updated AC Charter establishes the Senior Vice President of Finance, rather than the Director of Internal Audits, as the Companys direct contact person with the Audit Committee. However, we believe this may be a step in the wrong direction. In order to ensure that IA is functioning as an independent appraisal function of the Company, the Manager of Internal Audits should report functionally to the PFMCs Audit Committee and administratively to a non-financial senior Company executive. Typically, this direct-line-reporting fosters a higher degree of internal auditor independence, and provides and enables the level of internal control required by the Sarbanes-Oxley Act of 2002. Since July 2001, one Audit Manager and one administrative assistant have staffed PGWs Internal Audit (IA) Department. Due to the Companys past difficulties of hiring and retaining professional internal auditors, the PFMC Board decided to hire a Big Five audit firm to perform the Companys basic internal auditing functions. The initial one-year $480,000 contract was effective for February 1, 2003 through January 31, 2004. This Big Five audit firm provides independence as it had never previously served as PGWs external financial auditor. The cost of this contract is included in the IA operating budget. The IA Departments budget has increased 68% over the last three fiscal years, from $394,000 in fiscal year 2000/2001 to $663,000 in fiscal year 2003/2004. The PUC Audit Staff reviewed the outsourced internal audits completed to date, as well as the monitoring and follow-up review process performed by the IA Manager. The current audit schedule shows that a total of 10 internal audits would be completed by December 31, 2003. Some of the more significant audits completed and/or underway are discussed in Follow-up Finding and Conclusion No. 32. In summary, it is important that the PFMC Board has an up-to-date Charter for all of its committees, including the Audit Committee. These Charters should include language that describe the committees roles and responsibilities, references those corporate governance issues that are appropriate and specific to the situation (see Chapter VII Corporate Governance for more details), and show the current membership roster. Further, it would be prudent for PGW to expeditiously implement the recommendations made by the outsourced internal auditors, as well as those of the Companys Internal Audit Manager. Staffs Follow-up Recommendation Periodically review and update all PFMC committee charters, and expeditiously implement internal audit recommendations. Revise the Audit Committee Charter to establish the Director of Internal Audits as the Companys direct contact with the Audit Committee. Prior Recommendation Require the external auditing firm to adhere to SEC guidelines that require the rotation off the assignment if the partner-in-charge has served in that capacity for seven or more years. Prior Situation At the time of the BWG audit, the Securities and Exchange Commission (SEC) required public accounting firms to rotate an audit partner from a current clients assignment after serving as partner-in-charge for seven consecutive years. Although PGW is a municipal utility and did not technically fall under SEC jurisdiction, public accounting firms typically would follow this rotation rule and other SEC requirements. BWG found that the external auditors partner-in-charge for the PGW audit had served in that capacity for more than ten consecutive years, and that this accounting firm had no policy regarding rotation of its partners. Follow-up Finding and Conclusion No. 29 The Companys current external accounting firm has a policy to rotate its partner-in-charge from the assignment after serving five consecutive years; however, the PFMC Audit Committee and PGW have not enacted this requirement. Initially, the Company and the City expressed concern about the lack of potential accounting firms that would bid on performing a financial audit of PGWs records. However, we found that the City Controllers Office received two professional bids on June 20, 2003, and neither accounting firm had any previous association with PGW. After the City Controllers Office performed a bid analysis, the lower-cost bidder was selected to perform a one-year audit of PGWs financial records for Fiscal Year 2002/2003. According to PGW officials, the newly-hired outside accounting firm strictly follows the SEC policy regarding rotation of partners from an assignment after serving that client for seven consecutive years. However, we found no evidence that the Company or the PFMC Audit Committee had an internal policy ensuring that its outside accounting firm complies with these provisions. We believe that it is in the best interest of the Company to comply with SEC guidelines and the Sarbanes-Oxley Act of 2002 requirements. Staffs Follow-up Recommendation Establish a written policy that assures the rotation of the accounting firms partner-in-charge relative to the PGW audit assignment after serving seven consecutive years, similar to the policies and procedures required for SEC registrants and by the Sarbanes-Oxley Act. Prior Recommendation Establish a finance committee on the PFMC Board of Directors with specific responsibilities to monitor PGWs capital and operating budget processes and budget variances. Prior Situation In the past, PGWs management had inappropriately shifted capital dollars from approved projects to fund overruns in other projects without obtaining approval from the PGC and Philadelphia City Council. For example, PGW redirected an estimated $20 million to cover costs for BCCS which was budgeted to cost $9.7 million. As a result, City Council did not approve PGWs capital budget for Fiscal Year 2000 until almost nine months after the fiscal year began. This situation could have been avoided if the PFMC Board had established a finance committee to provide oversight. BWG also found PGW prioritized its projects during the capital budgeting process with the Company managers emphasizing approvals for the highest priority projects first. Among the available priority rankings, only expenditures relating to safety, reliability and forced pipeline relocations were likely to be approved. Revenue producing and discretionary projects to improve efficiency were usually not approved. BWG felt that establishment of a finance committee would have helped provide the appropriate guidance. Follow-up Finding and Conclusion No. 30 A PFMC Finance Committee was created by Board Resolution; however, a Charter spelling out specific roles and responsibilities has not been prepared. Although the PFMC Board issued a resolution dated March 30, 2001 that established a separate three-member Finance Committee, a Charter was never developed. The March 2001 resolution states in part that: The Finance Committee membership will consist of one executive employee from PGW and two PFMC Board members. By creating a Finance Committee, PGWs financial issues will be dealt with more efficiently. The PFMC Boards intent in creating a Finance Committee was to track and monitor PGWs capital and operating budgets, scrutinize its budget variances, and evaluate its earnings and cash flow projections. However, the Audit Staff found little evidence that this review process was actually occurring. The Company provided us with minutes from two recently-held Finance Committee meetings (July 7, 2003 and November 10, 2003), but we found no evidence that these minutes or the minutes of other Finance Committee meetings were ever inserted into the official PFMC Board Minute Book. The Company does summarize its daily cash receipts data and send it by electronic mail to all Board members, various members of the Companys management team, the City Controllers Office, and other interested parties. The cash receipts document is prepared by the Companys Finance Department, and is submitted by the Senior Vice President of Finance. The Finance Department also prepares monthly financial statements that include cash and earnings projections. These documents are provided to each Board member approximately one week before the Boards 2nd Tuesday of each month meeting. At the close of our field work, the Company informed the Audit Staff that a Finance Committee Charter was under development. This Finance Committee Charter should include specific responsibilities to monitor PGWs capital and operating budgets, variances, and earnings and cash flow projections. Furthermore, the Finance Committee meeting minutes should be prepared in a timely manner and filed in the PFMC Board Minutes Book. Staffs Follow-up Recommendation Complete the development of a PFMC Finance Committee Charter with specific responsibilities to track and monitor PGWs capital and operating budget, variances, and earnings and cash flow projections; and, prepare and file the appropriate minutes of the Finance Committee with the PFMC Board Minutes Book. Prior Recommendation Assign responsibility to the treasurers department for establishing and enforcing cash management policies including accounts receivable collection policies and procedures. Prior Situation BWG concluded that while PGWs Treasury Department was adequately staffed, the CFO had not delegated responsibility for cash management to the Treasurer. Typically, a Treasurers functional job duties include: Performing evaluations on the causes of delays in cash inflows and deposits, as well as making recommendation(s) and implementing corrective action to change current cash management policies and procedures designed to reduce or eliminate processing delays. Preparing annual, monthly and daily forecasts of cash receipts and disbursements based upon several years of historical data; comparing actual to estimated results; and preparing formal budget variance reports. Ensuring that cash received at district offices and buy-pay locations are deposited correctly, and that reviews are periodically conducted by the companys internal audit staff. At PGW, the Treasurer recognized that the lack of adequate policies and procedures related to customer deposits and service termination for nonpayment was contributing to significant delays in cash receipts and write-offs. However, the Treasurer did not have the authority to influence or alter such policy changes. Follow-up Finding and Conclusion No. 31 The Treasurers current job duties include responsibility for cash management. Since BWG conducted its review in 2000, the Companys organizational structure has changed significantly (see Chapter VII Corporate Governance). While no major reporting relationship change occurred within the Treasurers office or section (i.e., Treasurer still reports to the Controller who in turn reports to the Senior Vice President of Finance), the Treasurers roles and responsibilities have changed. For example, we found that the Senior Vice President of Finance and the Treasurer now jointly establish policies regarding service revenues, project revenues, earnings on fixed balances and debt management strategies; jointly review departmental spending levels on a monthly basis; and, jointly meet with the Vice President of Customer Service and the Director of Collections on a weekly basis regarding collection policy matters. Furthermore, the more significant job duties of the current Treasurer include: Recommending plans for the issuance, maintenance and payment of corporate revenue bonds, commercial paper and lease financing management, as well as securing new capital for PGW. Maintaining a business working relationship with banking and investment advisors and negotiating the best prices for services. Performing oversight of the cash management system that transfers funds electronically overnight for corporate and investment purposes; processing elements of PGWs petty cash fund; and making tax payments to the local, state, and federal levels in conformity with tax law. Performing oversight of the payroll function to ensure that all current employees and retirees are accurately paid in a timely fashion. Performing oversight of the accounts payable system and helping coordinate issuing checks, wire transfers, and payment of outstanding bills. Furthermore, the Treasurer now has authority to influence or alter policy changes related to customer deposits and service termination for nonpayment, which contribute to significant delays in cash receipts and write-offs for PGW (see Chapter VIII, Customer Service, Billings and Collections). However, we found that the Treasurers job description has not been updated since April 1997, and thus does not reflect the positions current responsibilities. It should be noted that, near the end of our field work, the Audit Staff was informed that a Company-wide effort was underway to update job descriptions for all Company professionals, including employees of the Finance Department. Staffs Follow-up Recommendation Update the job description for PGWs Treasurer to reflect current job duties and responsibilities. Prior Recommendation Update accounting procedures manuals and implement procedures for the inventory and tracking of capital assets. Prior Situation BWG concluded that while PGWs Controller Department had developed adequate policies, practices, and procedures manuals for its MAPS (an inventory, purchasing and order entry module) and FAMIS (Financial Asset management Information System - an accounts payable, cash management, general ledger, and fixed assets module) systems, other procedural manuals had not been updated for ten or more years. In addition, BWG found that PGW did not have a formal verification process to ensure the accuracy of its assets in the Companys accounting records. At that time, there was no regulatory requirement or Company policy requiring inventories; however, sound business practices dictated that taking a physical inventory of certain assets, such as motor vehicles, work equipment, computers, and furniture, be performed on a periodic basis. The Consultant also stated the other Company assets associated with the provision of service to customers should be inventoried using physical inventory or sampling techniques, depending on the asset. Follow-Up Finding and Conclusion No. 32 PGW has not updated its accounting procedures manual, nor has it implemented a schedule for taking inventory or tracking its capital assets. Our review revealed that although PGW has made some improvements to its accounting procedures for tracking inventory and capital assets since the time of the BWGs audit, important aspects still need to be addressed. More specifically, the Audit Staff found that: The Company has updated almost all of its policies, practices and procedures for its Accounts Payable function. However, a few PGW Accounts Payable procedures are not up-to-date. For example, cash disbursement procedures were last updated in 1992 and payment of contractor invoices for main and service installation procedures were last updated in 1979. The Company was unable to demonstrate that they had completed the documentation process associated with accounting journal entries. The Company has updated approximately 75% of the documentation. The Company has completed the purchase of a report writing software package to provide full financial reporting assistance beginning Fiscal Year 2003. Reportedly, this software will enable the Company to publish monthly budget variance reports. However, at the time of our audit, the Company has not begun distributing formal monthly budget variance reports that include the appropriate departmental justifications. The Company has not finalized procedures relative to taking inventory and the tracking of capital assets. Although the Company capitalizes assets with a dollar value over $400, PGWs management was still reviewing this policy with its external financial auditors and reportedly planned to increase the dollar limit to approximately $2,000 effective September 1, 2004. The Audit Staff reviewed the Controllers procedural manuals and found that those sampled by BWG had not been updated (see Exhibit X-4). We sampled eight accounting procedures from the Controllers procedural manual and found that seven of these procedures were last updated in the late 1970s and 1980s, and that the eighth procedure was last updated in October 1992. Good business practice dictates that PGW have up-to-date accounting procedure manuals. Moreover, management should expeditiously implement procedures for the inventory and tracking of capital assets. Without periodic verification that the assets of record actually exist and are used or useful to the organization, there is a potential for unrecognized depletions and inaccurate financial reporting. Without controls to identify unexpected or unplanned changes in Company assets, it is possible that inappropriate employee use or even theft could go undetected. Exhibit X-4 Philadelphia Gas Works Latest Revisions Made to the Controllers Procedural Manual As of October 2003  Title of the ProcedureProcedure NumberLatest Revision Date Annual physical inventory of Naphtha, LPG, and LNG298/23/83Cash disbursements744.016/10/92Customer deposits-partial payments7663/18/86Customer payments-by-phone6439/11/78Handling of messenger service receipts and priority mail5768/6/75Payment of contractor invoices for main and service installation6598/17/79Payroll time reporting73755/29/84Pension calculation7709/18/86Tool control5706/9/75Transmittal of cash for storeroom CODs and over-the-counter sales 715.0110/24/91Source: Data Request FM-6. While there are no regulatory requirements or published schedule requiring inventory counts, physical inventory counts of certain key assets, such as motor vehicles, work equipment, computers, and furniture, should be performed on a regularly scheduled basis. Other assets associated with the provision of service to customers should be inventoried by taking a physical inventory or using sampling techniques depending on the asset. Generally, the Audit Staff found that PGW has been slow in implementing this BWG financial recommendation because of its perceived marginal impact on the overall organization. Instead, management claims that it has focused on other more significant areas, such as Customer Service, Gas Distribution, and Information Technology. As a result, PGW does not yet have a formal verification process for all of its key assets to ensure accuracy of its accounting records. Staffs Follow-up Recommendation Update the Companys accounting procedure manual, and expeditiously implement a procedure to track and verify its capital assets on a regular scheduled basis. Prior Recommendation Take steps to implement all appropriate recommendations from the forensic audit currently being performed by an external accounting firm. Prior Situation During 1999 and early 2000 there were a number of widely reported scandals that later led to criminal prosecution of a few former PGW executives. Shortly thereafter, a new PGW senior executive management team was installed. Then, in September 2000, the Citys Director of Finance (who also serves as a member of the PFMC Board and its Audit Committee) entered into a preliminary agreement with a Big Five accounting firm to perform a retrospective forensic audit of PGW. The proposed audit was to include: A review of the facts and circumstances surrounding the acquisition and implementation of PGWs Billing, Credit and Collection System (also see Chapter VIII - Customer Service, Billing and Collection). An investigation of activities performed by some former PGW senior management employees. The purpose of the investigation was to detect potential fraud, waste, mismanagement, misconduct, earnings manipulation, misappropriation of corporate assets, conflicts of interest, inappropriate segregation of duties, transactional fraud, and violation of fiduciary duties. An analysis of PGWs policies, practices, procedures and protocols related to both voluntary and involuntary employee separation, and to assess the risk to the Company due to downsizing. Follow-Up Finding and Conclusion No. 33 The Company claims to have taken the appropriate steps to resolve the findings identified in the draft forensic audit. PGW informed the Audit Staff that the anticipated forensic audit was completed but the report was only issued in draft form. According to PGW officials, a final forensic audit report was never issued because the proposed solutions presented by the forensic auditors did not meet the expectations of the City Finance Director, whose office commissioned and paid for the audit. Nevertheless, as a professional courtesy, PGW was given a copy of the draft forensic audit report and had an opportunity to respond to its findings and recommendations. PGW officials stated that they could not share the contents of the draft forensic audit with the Audit Staff since it had never been finalized and released by the City. Nonetheless, we were able to determine that PFMCs Audit Committee has taken some steps, based in part on the draft forensic audit reports finding and conclusions, to initiate change within PGW. First, most of the Internal Audit (IA) Departments job duties and responsibilities were outsourced to a public accounting firm (see Follow-up Finding and Conclusion No. 27) and, as a result, the Department was downsized to one auditor, who facilitates the outsourced IA firms audit work. Second, the outsourced IA firm began focusing on a number of high-risk assignments, which are all scheduled for completion by the Fall of 2004. The Audit Staff reviewed the roster of IA assignments. These include: Completed Audits: Billing Collections and Customer Service (BCCS) Application report issued May 12, 2003. Credit & Collections Process and Uncollectables & Write-offs Process report issued August 22, 2003. Senior Citizen Discounts Process report issued December 2003 In Progress Audits (reports projected to be issued by early 2004): Gas Procurement Process Metering Materials Management Controls Billing and Adjustments Information Technology Security Planned Audits (reports projected to be issued by late Fall 2004): Employee Delinquencies Accounts Receivable Process Liens and Judgments Process Time and Labor Distribution Process Benefits Administration Controls Process PGW indicated that when the current roster of outsourced internal audit assignments is completed, final disposition of the forensic audit findings would be considered complete. A copy of each completed audit is being submitted to the PFMC Audit Committee. Staffs Follow-Up Recommendation Complete the disposition of the forensic audit findings. Provide a summary to the PUCs Bureau of Audits of the problem areas identified by the forensic audit and how PGW addressed the recommendations for improvement. XI. INFORMATION TECHNOLOGY Prior Recommendation Develop and implement a formal information technology (IT) planning process. Prior Situation PGW did not have a clearly defined IT strategy. The IT plan was out-of-date and reflective of neither current problems and issues nor of the needs of the current management team. PGW did not have a formal process for preparing an IT strategic plan. The Consultant recommended that the IT plan be prepared in conjunction with PGWs overall strategic planning and budgeting process. Follow-up Finding and Conclusion No. 34 PGW now has a formal IT Department planning process and an up-to-date IT strategic plan. PGW is formally documenting its long-term IT priorities and major activities, along with a work plan, target dates for completion, and identification of responsible parties, in a formal strategic planning document. The Company has developed and documented a corporate-wide, strategic planning process for IT, as well as other departments, in response to the management audit recommendation. The IT Strategic Plan appears to provide appropriate guidance, direction, and accountability for the IT Department and its corporate management. The fiscal year 2004 IT Strategic Plan, a sub-part of the corporate-wide Strategic Plan, was the second developed since the strategic planning process began. ITs 2004 Strategic Plan involved the following supporting documents: Architectural Plan (Five-year Infrastructure Upgrade Proposal) IT is in the process of upgrading its internal architecture Blueprint for Operations Excellence which describes the following IT topics: Functions Control processes Organizational structure Budget Implications Cost Controls 2003 Capital Budget Responsibility Matrix Budget Notes The IT Departments strategic planning procedure is part of the corporate-wide strategic planning process. The corporation identifies its goals in March of each year. The IT Department then performs the developmental processes to complete its strategic plan. Among these processes are: Issuing a questionnaire to departments covering the basic technology needs including computer hardware, telecommunications equipment, and computer software; Holding a conference with each department to understand its technology needs; Reviewing the corporate goals and determining the appropriate IT goals necessary to support those corporate goals; Preparing the IT strategic plan and submitting it to corporate for review and approval; Assigning the approved components of the strategic plan to the appropriate employees; and Developing target dates for completing the tasks. Once completed, each department prepares a quarterly status report on the implementation of the strategic plan. Staffs Follow-up Recommendation None. Prior Recommendation Emphasize outsourcing as a means for developing and implementing new IT applications to the extent possible. Prior Situation The involvement of key users in the initiation and development of major IT systems had been inconsistent. Some systems were adversely affected as a consequence of insufficient involvement by the users. Most significantly, the disastrous implementation of the BCCS (Billing, Collection and Customer Service) application in July 1999, which resulted in significant cost overruns, loss of integrity of customer records, and poor customer service, was primarily due to insufficient planning and preparation for the massive change in technology that was taking place. While there were advantages to implementing the new BCCS model, PGW undertook this massive change without devoting sufficient attention to the fact that it was making an implicit decision to change all of its IT systems from a mainframe to a client-server environment. Further, the Company failed to fully assess the time the change would take, the disruption it would cause, and drastically underestimating the full cost that would be incurred. Follow-up Finding and Conclusion No. 35 PGW now outsources most of its projects; however, the IT Department does not currently have a comprehensive sourcing strategy. PGW now outsources most IT application development projects and the administration of the developed applications due to a lack of expertise. The lack of expertise is caused, in part, by the Philadelphia city residency requirement making it more difficult to attract IT professionals and, in part, by the lack of financial resources. The outsourced IT projects include PGWs new Payroll and new Human Resources Information System (HRIS). However, the Company plans to develop the new Mobile dispatch application in-house. In addition to outsourcing, PGW created a project management office (PMO) within the Customer Affairs Department to manage and maintain the Customer Information System (CIS). IT now chiefly maintains programs not outsourced or maintained by the PMO. A consultant recently benchmarked PGWs IT functions with other companies in the industry. According to the report draft, (the final report was not yet available as of the end of our fieldwork) PGWs overall costs were lower than the panel of peer group companies, but were higher in the area of the Help Desk, Mainframe Data Center, and purchased software. Exhibit XI-1 shows a comparison of PGWs IT costs to the peer group panel by function, and Exhibit XI-2 shows a comparison of PGWs IT costs to the peer group panel by component. Exhibit XI-1 Philadelphia Gas Works IT Functions Costs 2002 IT FunctionsPGWPeer Group$(000)$(000)Application Development5,7786,017Application Support1,7082,141Distribution Computing1,3631,883IT Help Desk622273Wide Area Data Network363396Mainframe Data Center1,003535Midrange NT241538Midrange Unix 2,006 2,487 Totals =SUM(ABOVE) \# "#,##0" 13,084 =SUM(ABOVE) \# "#,##0" 14,270Source: Gartner Consulting Group IT Benchmark Study (draft). Exhibit XI-2 Philadelphia Gas Works IT Components Costs 2002 IT ComponentsPGWPeer Group$(000)$(000)Occupancy672 360Outsourcing375 1,612Disaster Recovery218 62Transmission168 152Personnel4,234 7,649Software6,243 1,526Hardware 1,174 2,909 Totals =SUM(ABOVE) \# "#,##0" 13,084  =SUM(ABOVE) \# "#,##0" 14,270Source: Gartner Consulting Group IT Benchmark Study (draft). In the draft benchmarking report, the consultant recommended that PGW determine which business functions should be out-sourced, assess whether the existing management model is suitable for a multi-supplier environment, and then develop an overall sourcing strategy and implementation plan. IT should have a sourcing strategy to ensure that it selects appropriate, cost-effective vendors. PGW often relies on a consultant to select the vendors and negotiate the contracts. Further, the Company outsources based on resource availability instead of comparing the cost of its services with those in the market. Outsourcing projects have improved the timing and quality of products and services, but the lack of a sourcing strategy means the Company may be unnecessarily paying higher prices and/or receiving lower quality work. For example, PGWs IT Help Desk costs per call are $57, while the peer group profile of 14 business entities costs per call were only $25, or 56% less. According to the study, PGWs call center handled 11,300 calls in 2002; therefore, the Company might be able to outsource this function considerably cheaper than the present costs. If the Company could outsource at $25 per call, they could potentially save $361,600 per year. The potential savings from outsourcing the Mainframe Data Center are approximately $600,000 annually. At the time our fieldwork was ending, PGWs IT Department was preparing a request for proposal (RFP) to run the mainframe applications on another companys mainframe. Furthermore, Exhibit XI-2 shows that PGW spent $6,243,000 on software in 2002, but the peer group only spent an average of $1,526,000. While the consultant showed the difference in total expense, they did not determine potential savings by developing less software in house and using more software provided by a vendor. Staffs Follow-up Recommendation Develop a comprehensive IT application strategy that defines the process for evaluating which projects to outsource or to perform in house, selecting vendors, and project oversight. Prior Recommendation Continue efforts to select and implement a new Human Resource Information System (HRIS). Prior Situation PGW had a mainframe-based payroll system that was almost thirty years old. The system was inflexible and provided only a portion of the information needed by human resource management. PGW had licensed and paid $420,000 in maintenance fees through 1999 for a Cyborg HRIS software package that it had never installed. Follow-up Finding and Conclusion No. 36 PGW has outsourced its current human resources database; however, its human resource history is still on the Companys mainframe database. PGW has outsourced its human resources data processing activities to ADP. The changeover from the old human resource/payroll mainframe application to the ADP HRIS system was completed in 2003. HRIS is an integrated component of the payroll system. Payroll production and many other types of human resource information are currently outsourced, including: General employee information, Recruiting and requisition processes, Salary administration, Training and employee development, Position control and salary planning, Health and safety, Disciplinary actions, Regulatory compliance, Employee self-service, and Organizational charting. The vendor, not IT, troubleshoots HRIS system problems. PGW anticipates that most modifications to this application will be implemented by the use of fields, tables, and data. Human Resource Department personnel update the fields with employee data. Access to different segments of the system is controlled with access security. However, a companys human resources computer system should also be periodically updated to reflect the latest technological applications in order to improve services, functionality, and to update the security of employee information. One way to accomplish this task is to use an outside vendor because it gives the company the ability to stay current with the latest technology. In addition, PGWs changeover to an outside vendor was expected to result in operational cost savings. As indicated in Exhibit XI-3 below, PGW estimates that the ADP HRIS system would cost $835,000 to implement and maintain in 2003, and $280,000 annually to maintain in subsequent years. While PGWs projections showed that there would be no savings by implementing the ADP HRIS system in 2003 or 2004, significant savings should occur in subsequent years once all the former Human Resource mainframe applications are outsourced to the ADP HRIS system. As shown on Exhibit XI-3, PGW estimates that starting in 2005, the savings will exceed $300,000 a year. Exhibit XI-3 Philadelphia Gas Works Estimated Fiscal Year Project Costs and Cost Savings For ADP Payroll/HIRS System 2003-2007 20032004200520062007Costs$$$$$ Conversion/Implementation500,0000000Hosting and Production335,000280,000280,000280,000280,000 Total Costs =SUM(ABOVE) \# "#,##0" 835,000 =SUM(ABOVE) \# "#,##0" 280,000 =SUM(ABOVE) \# "#,##0" 280,000 =SUM(ABOVE) \# "#,##0" 280,000 =SUM(ABOVE) \# "#,##0" 280,000SavingsPayroll86,593115,618119,086122,659126,338IT Internal Support47,00070,00070,00070,00070,000IT Mainframe Operation 0 0400,000400,000400,000 Total Savings =b8+b10 \# "#,##0" 133,593 =c8+c10 185,618 =d8+d10+d11 589,086 =e8+e10+e11 592,659 =f8+f10+f11 596,338Net Costs/(Savings)  =b5-b12 \# "$#,##0" 701,407 =c5-c12 \# "$#,##0;($#,##0)" 94,382 =d5-d12 \# "$#,##0;($#,##0)" (309,086) =e5-e12 \# "$#,##0;($#,##0)" (312,659) =f5-f12 \# "$#,##0;($#,##0)" (316,338)Source: Data Request IT-8. However, one problem with the ADP HRIS is that employee historical data for PGWs workforce would remain on the Companys mainframe. As a result, PGWs IT Department must continue to maintain this mainframe system application. To alleviate this problem of utilizing two different systems the IT Department requested additional funding in the amount of $160,000 to transfer this employee data to ADP HRIS system. Unfortunately, due to budget constraints the IT project was removed from the 2004 Capital Budget. Staffs Follow-up Recommendation Proceed with the effort to outsource mainframe applications to a qualified vendor as resources allow. Prior Recommendation Take steps to reduce and control IT costs, and make the IT and user departments accountable for IT costs. Prior Situation PGW did not have a process to distribute the expense of operating the existing computer applications and charge these costs to the appropriate user department. PGW was charging back the costs of major computer applications based on the same percentage of the total costs that applied to the central mainframe environment. A new charge-back methodology based on its new client-server environment had yet to be developed. In addition, insufficient attention was being given to the cost and monitoring of outside contractors. In 2001, the IT Department had an approved staff budget for 55 employees yet had only 45 employees on board. PGW was relying heavily on outside contractors to augment regular IT staff and to provide specific skills that it did not have in-house. In addition to the IT employees, PGW was using 25 outside contractors with a median hourly rate of $77 per hour. There were no regular reports available to correlate the cost of the contractors with the results produced. PGWs IT costs per customer had increased three-fold from 1996 through budgeted 2001. However, the Companys 2000 IT costs were in line with industry averages. Follow-up Finding and Conclusion No. 37 PGW has taken steps to control IT costs and has made the IT Department and user departments accountable for IT costs. As shown in Exhibit IX-4, IT Department costs were approximately $25 per customer for the two-year period following the Management Audit. This was approximately $7.50 per customer less than the per customer cost at the time of the management audit in 2001. In February 2001, IT purchased a labor tracking application to enable it to track labor costs accurately. IT now direct charges or allocates all of its operating costs to user departments via a software program designed to allocate labor, materials, and indirect costs. Employees enter their time into the system on a weekly basis. The entered time is converted to actual costs using hourly rates as determined by salary grade or by using the consultant fee, and is direct charged to the user department. Maintenance of software, maintenance of office equipment, and equipment leases are then allocated to the user Exhibit XI-4 Philadelphia Gas Works IT Costs Per Customer Fiscal Years 1996, 2001, 2002 and 2003  Fiscal Year CostsNo. of CustomersCost Per Customer$(million)$1996 5.4517,00010.442001 16.5512,000 32.23200212.4498,000 24.91200312.3498,00024.70 Source: A Stratified Management and Operations Audit of Philadelphia Gas Works, January 2001, BWG for 1996 and 2001 and for 2002 and 2003 the 2004 IT Strategic Plan. departments. All other IT costs are allocated to the PGW departments based on the number of PCs in each department. This software also assists IT to analyze how its labor dollars are being spent. IT is tracking and reporting actual expenses and variances monthly. During the second half of 2003, IT employed five full-time outside contractors or 20 less than in 2001. From 2001, the number of salaried IT employees increased by nine to 54. This is a net reduction of 11 full-time contractors or in-house IT personnel. As a result of the personnel changes and the tightening of cost control methodologies, ITs costs for 2003 decreased by $4.2 million or 25.5% from its 2001 level. Both the IT Department and its user departments are responsible for controlling and accounting for IT costs. The new strategic plan, together with the operating and capital budgets and architectural 5-year plan have helped with the development of a plan to control IT costs (see Follow-up Finding and Conclusion No. 34 above). Staffs Follow-up Recommendation None. XII. HUMAN RESOURCE MANAGEMENT Prior Recommendation Develop an ongoing plan to manage the wage and salary levels in an effective manner. Prior Situation BWG found that compensation compression existed within several areas of PGW to the extent that there were a number of instances in which union personnel were paid more than their respective supervisors. In 1999, there were 35 supervisors, approximately ten percent of the non-union personnel, who were paid less than their union subordinates (without overtime). This included personnel in the storeroom and shops, customer service, transportation, and field services areas. As an example, a comparison of sales support representatives, which are union positions, and residential/commercial sales representatives, which are management positions, found that the average actual salaries for the union-covered support staff were 8.6 to 10.4 percent higher than that of the management sales staff. PGW needed to address salary compression issues, especially between the union workforce and management, to insure that sufficient financial incentives existed for workers to want to be promoted to management. Contributing to the problem were union employees receiving annual raises while management personnel did not due to financial concerns. However, the consultant found that top level management salaries were generally higher than the top level for union salaries. Therefore, BWG concluded that it was PGWs choice that its management personnel earned less than union personnel who reported to them. The consultant also noted that under a new compensation system implemented on December 1, 2000, no management employees were paid in excess of the maximum level for their positions. Prior to this new compensation system, approximately 23% or 75 management employees were paid in excess of the maximum level for their positions. Follow-up Finding and Conclusion No. 38 PGW has taken steps to alleviate the compression problems; however, it has not developed an ongoing salary and wage policy or a process to assure that compensation compression is monitored and addressed in the future. In an effort to address the compression issue, PGW has reviewed the pay of top union earners and made increases to the salaries of first-line management employees where deemed appropriate. Exhibit XII-1 presents examples of comparative salary data for union and non-union sales positions in 2003. This exhibit indicates that average actual salaries (base pay plus overtime) for union sales support staff ranged from being approximately equal to average actual management sales staff salaries to 5.6 % higher than that of management sales staff. This compares to a difference of 8.6% to 10.4 % at the time of BWGs management audit. Overall, the number of supervisors who were paid less than their union subordinates declined from 35 in 1999 to 19 as of September 30, 2003. Exhibit XII-1 Philadelphia Gas Works Comparative Sales Employees Salaries Examples  Position Grade Level Minimum Salary Maximum SalaryAverage Actual Salary Percentage DifferenceSales Support Rep. (U)61B$35,537$52,437$52,4375.6%Sales Support Rep. (U)63A$32,167$47,206$49,821-Sales Support Rep. (U)64A$29,754$44,568$51,6263.9%R/C Sales Rep. (M) 3$43,520$65,280$49,679R/C=Residential/Commercial(U) Union position(M) Management positionAs of September 2003 Source: Data Request HR-1 and Auditor Analysis. Later in 2003, an additional effort to remedy the compression issue was undertaken by PGW. Effective November 16, 2003, PGW first-line supervisors salaries were adjusted to assure that they were earning at least $500 more than their highest paid union subordinate. An alternative method to achieve reasonable pay separation would be through objective-based incentive plans (see Finding and Conclusion No. 39) that would enable supervisors to earn significantly more than their union subordinates if individual, department and/or company performance objectives are achieved. Financial rewards to management employees would also serve as an incentive for union employees to want to be promoted into a supervisory position. Staffs Follow-up Recommendation Implement a salary and wage policy that includes monitoring the pay of top union earners and ensuring that first-line supervisors earn more than their union subordinates. Prior Recommendation Develop and implement an incentive compensation program that rewards personnel for high-level achievements that are specifically tied to supporting PGWs strategy. Prior Situation PGW had no incentive or pay for performance compensation programs. An external consulting firm was reviewing the need for the Company to have such programs. The BWG stated that implementation of a meaningful pay for performance system should contribute to more cost effective operation of PGW. Follow-up Finding and Conclusion No. 39 PGW has not initiated an ongoing performance based incentive compensation program. Citing financial constraints, PGW has not instituted an incentive compensation program. A pay for performance plan was presented to PGW management several years ago; however, the plan was never implemented. In addition, a recommendation was made in an independent compensation study (Philadelphia Gas Works Compensation Project) issued in July 2003 to incorporate an incentive plan into the compensation system. However, because of its financial crisis, the Company has not moved to initiate such a program. On the other hand, in 2002, PGW did institute a one-time Performance Award Program whereby $3,000 awards were presented to selected full time non-union employees to recognize their significant contributions to the success of the Company during fiscal year 2002. Executive staff personnel were not eligible for the program. The employees were chosen by an oversight committee consisting of the Chief Executive Officer, Chief Operating Officer, Vice President of Human Resources, and Director of EEO. Written recommendations were made to the oversight committee indicating the basis for the recommendation. Eligibility for the award was based on the employee: demonstrating exemplary performance through a quantifiable significant event; and/or making contributions to a departments achievements that would not have been possible without him/her. While the Company has demonstrated an interest and ability to administer an incentive program, no ongoing program has been established to drive performance. Adoption of an incentive compensation program would encourage employees to perform at a higher level, and enable PGW to attract and retain talented employees. Staffs Follow-up Recommendation Develop and implement a pay for performance program that uses merit and incentive increases for meeting specific business objectives. Prior Recommendation Limit future compensation increases to a level no greater than the consumer price index (CPI). Prior Situation During the period 1996 to 1999, PGWs union employees received annual compensation increases that averaged 0.8% higher than the average CPI increases and PGWs non-union personnel received average raises that were 0.2% higher than the average CPI increase. Moreover, these increases had occurred during a period when the Companys financial position was deteriorating. Therefore, while PGWs staffing levels were reduced by 9.4% between 1996 and 1999, its payroll declined by only 1.7% or $1.6 million over the same period due to the wage increases. BWG determined that if PGW could limit future salary increases to the average CPI changes, it could avoid approximately $566,000 per year in future payroll increases. The $566,000 savings was based on 1999 payroll expense which was approximately one-third attributable to non-union salaries and wages and two-thirds attributable to union wages, resulting in an overall savings of approximately 0.6% above CPI. Follow-up Finding and Conclusion No. 40 PGW has achieved cost savings of approximately $24 million by limiting base wage increases for 2000 through 2003 to rates well below the rates of CPI increase. Since the prior management audit, PGWs compensation increases have been significantly lower than those that had occurred in previous years. In fact, all of the Companys base wage increases during the period of 2000 to 2003 were below, or well below, the CPI target suggested by the BWG. Most of this compensation cost containment was the direct result of PGWs successful negotiation of its collective bargaining agreement with its union during the spring of 2001, for the three-year contract effective May 16, 2001 to May 15, 2004. Exhibit XII-2 summarizes PGWs annual wage increases and the Audit Staffs calculation of the savings realized by the discontinuation of compensation increases averaging a combined 0.6% above the CPI. As indicated in Exhibit XII-2, union employees received a 3% increase effective May 16, 2000 that was the final year of the former labor agreement, while non-union employees received no increase for 2000. In its collective bargaining agreement for the period May 2001 to May 2004, union employees received no wage increase during the first two and one-half years of the contract and received a 2% increase effective on November 16, 2003. Equivalent base wage increases were also granted to non-union personnel during the 2001 to 2003 period. Therefore, during 2001 and 2002, neither union nor non-union personnel received any increases in base wages. The 2% increase effective on November 16, 2003, occurred at mid-year of the union contract and was therefore included as a 1% increase for cost saving estimation purposes on Exhibit XII2. The Audit Staff estimates that PGW saved approximately $24 million in compensation costs over the 2000 to 2003 period by reducing its average rate of annual increases it had experienced during 1996 to 1999 period. It should be noted that the $24 million in estimated savings is the result of the effect of controlling annual wage increases. That is, by reducing a base wage increase in one year, there is a lower base to Exhibit XII-2 Philadelphia Gas Works Rate of Annual Wage Increases/Estimated Savings Realized For the Years 2000 2003  2000 2001 2002 2003 4-Year Totals$ in millions$ in millions$ in millions$ in millions$ in millionsRate of Annual Wage Increases Non-Union0.0%0.0%0.0%2.0%  Union3.0%0.0%0.0%2.0% Actual CPI3.4%2.8%1.6%2.5%2.6%Total Payroll as of Prior Years Fiscal Year End $94.3 $99.2 $99.6 $92.3 $385.3Estimated Savings From Lower Rate Wage Increases Non-Union $1.1 $1.0 $0.6 $0.5 $3.2 Union $0.8 $2.4 $1.6 $1.4 $6.2 Total $1.9 $3.4 $2.2 $1.9 $9.4 Estimated Savings Realized for the Year vs. 1999 Levels $1.9 $5.3 $7.5 $9.4 $24.0 Represents the impact of 2% increase occurring mid-way through the year.Source: Data Request HR-3, Collective Bargaining Agreement, Auditor Analysis. base to which future annual increases are applied. Therefore, the actual compensation savings in 2001 are not only the $3.4 million savings from a lower wage increase for that year, but also the $1.9 million savings achieved in 2000 that continue into 2001, for a total of $5.3 million. This continues with the $5.3 million from 2001 also being experienced in 2002, resulting in a combined savings of $7.4, and the 2002 savings being experienced in 2003 for an annual impact of $9.3 million. Moreover, it should be noted that this $9.4 million savings realized during 2003 will occur annually into the future and even continue to grow, as long as the Company continues to maintain wage increases that are below the previous average rate of 0.6% more than CPI. Staffs Follow-up Recommendation None. Prior Recommendation Take steps to insure that the Code of Ethics and conflict of interest policy are understood by all employees, and obtain proof that each employee has a copy of the policies. Prior Situation PGW had issued an Ethics and Conflict of Interest Policy and Compliance Program (Policy Number 003-01) on August 6, 1999. Recognizing the importance of each employee understanding the Companys Code of Ethics, the policy was distributed to all departments which were in turn responsible for disseminating policies to employees. However, there was no documentation indicating that employees had seen and agreed to the terms of the policy nor was there specific training provided to promote ethics in the work force. Follow-up Finding and Conclusion No. 41 PGWs 2002 Ethics Policy was distributed to non-union personnel at ethics training sessions; however, there continues to be no documentation indicating which employees received Ethics Policy training nor confirmation that they have seen the policy and agreed to its terms. A resolution was approved by the Philadelphia Facilities Management Corporation (PFMC) Board of Directors on March 15, 2002, authorizing the revision of PGWs Ethics Policy and provision of ethics training to employees. PGW amended its Ethics Policy to incorporate provisions of the State Ethics Law and strengthen provisions of its 1999 Policy based on a December 2001 Pennsylvania Supreme Court decision that PGW employees are subject to the State Ethics Act. The revised policy was distributed to non-union employees at ethics training sessions that took place in March/April 2002 and April 2003. There were no sign-in sheets or other documentation indicating who received the training or who received the revised Ethics Policy, and whether they agree to the terms of the policy. Collective bargaining unit employees did not receive a copy of the 2002 Ethics Policy or its predecessor. It is managements position that application of the Ethics Policy to bargaining unit employees must be negotiated before it is made a condition of employment. As previously indicated, the current Collective Bargaining Agreement is scheduled to expire May 15, 2004. Therefore the requirement that employees conform to the Companys Ethics Policy should be included in union negotiations. Staffs Follow-up Recommendation Negotiate a provision in the next collective bargaining agreement whereby it is stated that the Companys Ethics Policy applies to employees as a condition of employment. Provide ethics training and a copy of the Ethics Policy to all employees, requiring them to evidence receipt and agreement with the terms of the Policy. Prior Recommendation Enhance union-management safety training efforts and develop specific annual goals for achieving improved safety levels. Prior Situation The consultant found that while PGW had a good safety training program in place, its lost time to accident (LTA) rate per one hundred employees was high compared to other gas utilities. Safety-related goals identified in the September 1999 Five Year Plan included reducing lost work day cases by 20%; reducing preventable motor vehicle accidents by 20%; and enhancing public safety through oversight of safety activities. Follow-up Finding and Conclusion No. 42 PGW has improved safety levels substantially as a result of a comprehensive safety training program that includes specific safety goals. At PGW the Managers Safety Committee, consisting of the Safety Director and Department managers, oversees safety training and sets safety goals. PGW conducts numerous safety training courses including basic first aid, cardio pulmonary resuscitation (CPR), fire response, safe equipment operation, personal protective equipment, work area protection, back injury prevention, new and remedial drivers training, and operator qualification training. This training is conducted on an ongoing basis. The specific safety goals established for 2003 were 43 lost time accidents and 56 preventable motor vehicle accidents. As shown in Exhibit XII-3, PGWs safety record reflects significant improvement in all safety tracking categories from 2000 to 2002 (the last year complete annual data was available). Most notable were the 42% reduction in LTAs and the 26% decrease in preventable motor vehicle accidents during the period. In the two categories where specific goals were established for 2003, year-to-date totals are well within the range for meeting both goals. In addition, PGWs LTAs per 100 employees have improved both internally (see Exhibit XII-3) and in comparison to other gas utilities (see Exhibit XII-4). Specifically, the Companys LTAs per 100 employees declined 37% from 3.36 in 2000 to 2.10 in 2002. The 2003 year-to-date rate through August was a favorable 1.51 LTAs per 100. Also, PGWs LTAs per 100 employees were higher than the average of four other similar-sized gas utilities for 2000 and 2001 but lower than the 2002 average. Staffs Follow-up Recommendation None. Exhibit XII-3 Philadelphia Gas Works Safety Results Years 2000, 2001, 2002, and January August 2003  2000 2001 2002Percent Change 2000 to 2002January to August 2003 2003 GoalRecordable Accidents201145133-34%80n/aLost Time Accidents (LTAs)594734-42%1843LTAs per 100 Employees3.362.732.10-37%1.51n/aLost Workdays845520461-45%203n/aRecordable Motor Vehicle Accidents1499589-40%55n/aPreventable Motor Vehicle Accidents765056-26%2956n/a - Not applicable as no goal was established.Source: Data Request HR-9. Exhibit XII-4 Philadelphia Gas Works Comparison of Lost Time to Accidents per 100 Employees to Panel Companies Years 2000, 2001 and 2002 Utility200020012002Washington Gas Light2.231.581.08Columbia Gas of PA3.563.882.96Peoples Gas Light & Coke1.351.321.78Equitable Gas Co.1.831.883.30Average2.242.172.28PGW3.362.732.10Source: Data Request HR-14. Prior Recommendation Reduce absenteeism through consistent treatment and increased focus on back to work programs. Establish a process to monitor and quantify the cost of absenteeism. Review the cost effectiveness of PGWs attendance reward plan. Prior Situation Due to liberal and inconsistent attendance policies, absenteeism was very high and proving to be extremely costly to PGW. Individual departments within PGW were applying different guidelines with respect to attendance. The Human Resource Information System (HRIS) did not compile and report data on absenteeism resulting in the management of each department having to collect its own information. BWG concluded that absenteeism was costing PGW in excess of $6 million annually and that a one-third reduction could provide PGW with an annual savings in excess of $2 million. Attempts to institute a company-wide absenteeism policy had been unsuccessful. The Human Resources Department had prepared a draft absenteeism policy in 1999; however, it was never implemented because the issue was to be discussed in the next union contract negotiations. Subsequently, in May 2000, Human Resources started manually tracking absenteeism and determined that PGWs absenteeism exceeded 6.5% per day. One incentive to control absenteeism was that employees who had completed their probationary period were entitled to earn four hours of straight time rate of pay for each calendar quarter of perfect attendance. The perfect attendance bonuses paid to PGW employees averaged over $403,000 per year from 1996 through 1999. Follow-up Finding and Conclusion No. 43 PGW has centralized its attendance policies, implemented an Attendance Tracking System (ATS), and significantly reduced its employee absenteeism, but has not yet established a process to quantify its cost of absenteeism. PGWs successful centralization of its attendance policies under a company-wide absence control policy has resulted in the absenteeism rate (average days per employee per year) being reduced from an estimated 16 days in 2000 to 7.5 days in 2003. These changes were largely enabled by PGWs successful negotiation with its union to ratify the work rule changes related to in its Collective Bargaining Agreement that became effective in May 2001. Included in the May 2001 agreement was a Corporate Absence Control Policy that requires employees to provide adequate medical certification for every absence due to illness or injury or forfeit their absence pay allowance for that particular absence. A uniform discipline procedure for uncertified absences that includes counseling, written warning, etc. is part of the new absence policy. PGWs absence pay benefits policy was also revamped in the May 2001 Collective Bargaining Agreement. In the previous agreement, absence pay allotments increased with seniority, leaving little incentive for prudent use. The May 2001 agreement gives employees an initial bank (or reserve) of sick pay (days) based on service credit (years). Beginning January 1, 2002, active employees receive 10 additional days sick leave each year. Unused days are added to the employees bank, up to a maximum of 200 days. The prior perfect attendance bonus was determined to be ineffective in controlling absenteeism and was therefore eliminated in the May 2001 Collective Bargaining Agreement. This step alone has provided savings of approximately $400,000 each year (see Prior Situation above). In January 2002, an Attendance Tracking System (ATS) was implemented to track all paid and unpaid sick leave, vacation and all other time off for every employee. The system assists PGW in monitoring sick leave usage and abuse, and in administering sick leave policies and procedures in a consistent and fair manner. The prior system required each department to manually record and track all leave and time off. The Attendance Tracking System was developed in-house and is web-based, but is not part of the HRIS. The ATS is capable of generating a number of reports including a report by department listing each employee and their sick, vacation, and time off usage and balances. Other reports utilized are the Date of Absence Report, Employee Detail Report, Uncertified Absence Report, and the Used Hours Annual Summary Report. However, one report the system is not capable of producing is a report quantifying the cost of absenteeism. The ability to quantify the cost of absenteeism would further assist management to determine if current absenteeism policies are effective or if revisions are necessary. The absenteeism cost quantification process could be linked to the ATS to provide an automatic calculation and/or data from the ATS could be extracted from the ATS and transferred to, for example, a Microsoft Excel spreadsheet where the calculation could be performed. The PGW Medical Unit receives a listing of all absences via the Attendance Tracking System. All medical certifications for absences are also channeled to the Medical Unit. Employee absences must be adequately justified or the Medical Unit records the absence as uncertified. An uncertified absence results in forfeiture of the absence pay allowance and discipline in accordance with the Corporate Absence Control Policy. This certification process should be linked to the ATS, if possible. Alternatively, data may be able to be extracted from the system and transferred to, for example, an Excel spreadsheet to compile a report. PGWs attendance related policy and procedure changes enacted through the end of 2003 have resulted in the reduction in absenteeism from an annual average estimated 16 days in 2000 to 7.5 days in 2003. As indicated above, during 2000 the Companys absenteeism rate was 6.5% and absenteeism was costing PGW approximately $6 million per year. The BWG estimated that if PGW could reduce its absenteeism by one-third, that it would save over $2 million. PGW has actually exceeded the target suggested by the Consultant, as it actually reduced its absenteeism rate to 3.0% (i.e., an average of 7.5 days per year) or an approximate 54% reduction from 2000 to 2003. Based on PGWs 2003 payroll of $98.5 million and its 3.5% reduction in absenteeism, the Audit Staff estimates that the Company has achieved annual savings of approximately $3.48 million. Staffs Follow-up Recommendation Establish an automated process to quantify and monitor the cost of absenteeism and link the certification process to the Attendance Tracking System. Prior Recommendation Take steps to reduce fringe benefit costs. Prior Situation PGW provided a substantial fringe benefit package to employees. For the period 1996 to 1999, benefit costs averaged 36.4 percent of payroll, which was higher than the industry norms of 25 to 35 percent. A number of fringe benefits were provided at no cost to employees. The consultant suggested that PGW consider providing a cap on fringe benefits per employee and complete negotiations with retirees with respect to healthcare options to reduce costs. Follow-up Finding and Conclusion No. 44 PGWs fringe benefit costs continue to rise and exceeded 50 percent of payroll in the fiscal years ending August 31, 2002 and August 31, 2003. PGW continues to provide a generous fringe benefit package to employees. Fringe benefits provided to employees at no cost include: health insurance, life insurance, legal service fund, and pension payments. The Companys collective bargaining agreement with its union even specifies the providers and level of health care coverage that is to be provided to employees. Furthermore, there is no cap on fringe benefit costs per employee. Overall fringe benefit costs rose by 21.8% and the percentage of total payroll cost represented by benefits increased 45.5% from 2000 to 2003. Exhibit XII-5 shows the escalation of PGWs fringe benefit costs as a percentage of payroll, from 36% for fiscal year 2000 to 52.4% for fiscal year 2003. Significant increases in healthcare benefit costs and pension payments were the major contributors to the increases. Retiree health benefits are included in the costs. Fringe benefit costs averaged 44.9% of payroll during the four-year period as compared to 36.4% during the 1996 to 1999 period reviewed during the BWG audit. Retiree healthcare benefits have been escalating with their cost exceeding health insurance for active employees in the fiscal years ending August 31, 2002 and August 31, 2003. PGW has instituted several programs or efforts to reduce retiree healthcare costs. Retirees were offered a $1,000 incentive to switch from traditional indemnity coverage to a personal choice plan. Annual savings of $148,000 are expected from this program. Also, an audit of retiree benefits is being conducted to verify retiree coverage, Exhibit XII-5 Philadelphia Gas Works Fringe Benefit Costs Fiscal Years 2000 - 2003 Fiscal YearTotal PayrollTotal Fringe BenefitsPercent of Payroll($ millions)($ millions)%200098.935.736.0200199.339.940.2200291.946.850.9200398.551.652.4Average97.243.544.9Source: Data Request HR-11. dependents, etc. Projected annual savings are $98,000. Further, PGW has implemented a clinical prescription program with the provider whereby more cost effective generic drugs are to be utilized. This applies to both active employees and retirees. While an employer should provide a reasonable fringe benefit package to employees, a cost analysis of existing benefits should be performed and the results compared to similar gas utilities for competitiveness reasons. It is noted that PGWs fringe benefits are determined through the collective bargaining process with benefits usually locked in for the length of the contract. In the current contract, PGW managed to hold salary increases to 2% over three years and gained badly needed work rule concessions, in part, in exchange for maintaining the existing benefit package. Still, periodic reviews of fringe benefits should be conducted to identify opportunities for cost savings. Efforts to reduce fringe benefit costs could be made through the collective bargaining process in the next labor contract negotiations. Consideration should be given to modifying benefits or placing a cap on fringe benefits per employee. In addition, negotiations with retirees to reduce the cost of healthcare benefits should be continued. Staffs Follow-up Recommendation Expedite and expand efforts to control fringe benefit costs. XIII. DIVERSITY AND EQUAL EMPLOYMENT OPPORTUNITY Prior Recommendation Ensure that the PFMC Board of Directors requires that PGW file an Affirmative Action Plan (AAP) on an annual basis. Prior Situation The Company prepared an AAP in 1995 that complied with federal guidelines and instructions. The 1995 AAP included all procedural and programmatic tasks required to develop sources and protected class candidates, and to monitor, train and track their progress. However, in 1995, an external consultant advised PGW to disband its Affirmative Action and Equal Employment Opportunity (EEO) office. The Company followed this advice and consequently did not prepare AAPs for 1996 through 1999. However, PGW did continue to document the important data needed for future preparation of AAPs. In 2000, the position titled Director of EEO/AA Compliance was reinstated and the Affirmative Action and EEO Office was reopened, and PGW was planning to prepare an AAP for the year 2000. Follow-up Finding and Conclusion No. 45 PGW is preparing AAPs annually in accordance with direction from the PFMC Board of Directors. PGW reinstated the annual preparation of AAPs in 2001, in accordance with the format prescribed in federal Executive Order 11246. The Corporate Diversity Committee, a sub-committee of the PFMC Board, spearheaded the restart of the AAP. The AAP is a key component of diversity programs that facilitate the integration of diversity concepts, principles and behaviors into a companys structure, systems, and processes. The annual completion of an effective AAP will assist the Company in progressively achieving more diversity in its workforce and better enable it to meet the challenges of its multi-cultural customer base. PGWs AAPs include or address the following: Affirmative Action Policy Statement; Dissemination of the Equal Opportunity Policy; Identification of Affirmative Action Program responsibilities; Development and execution of Affirmative Action initiatives; Internal audit and report systems; Compliance with sexual discrimination guidelines; Policy on harassment of employees; Support of community programs; Compliance with guidelines on religion and national origin; and an Affirmative Action Program for persons with disabilities, special disabled veterans, and veterans of the Vietnam Era. In addition to the AAPs, the Company has been preparing analyses of workforce availability and utilization by job group. PGW uses these analyses to develop goals and to identify problem areas. It should be noted that the Office of Federal Contract Compliance Programs (OFCCP), administrator of Affirmative Action programs had not audited PGWs program as of the end of our field work. Staffs Follow-up Recommendation None. Prior Recommendation Identify the employment areas that are below parity in the year 2000 and develop feasible approaches for reaching parity. Prior Situation A review of new hires from 1996 through mid-2000 indicated that PGW was making progress in diversifying its workforce. However, because the Company had not prepared AAPs from year 1996 to 1999, it had not recently identified employment areas that were below parity. BWG did find that PGW had conducted an in-depth utilization analysis of its workforce composition by job groups in 1995 as part of the last completed AAP. This analysis was based on availability within the Philadelphia County Standard Metropolitan Statistical Area (SMSA) and indicated that: Females were under-utilized in 29 of 37 positions in PGWs job groups. While SMSA data showed that females made up 53.5% of the available workforce, females had only a 16.2% representation at PGW. Minorities were under-utilized in 25 of 37 positions in PGWs job groups. While SMSA data showed that minorities made up 47.9% of the available workforce, minorities had only a 38.7% representation at PGW. Follow-up Finding and Conclusion No. 46 PGW has identified its under-utilized job groups and has developed approaches for reaching parity. PGW reinitiated efforts to identify its under-utilized job groups in its 2001 AAP and updated those groups in its 2002 and 2003 AAPs. As indicated in Exhibit XIII-1, PGW categorizes its workforce into 9 job categories for EEO reporting purposes. However, as indicated in Exhibit XIII-2, PGW expands its categorization of employees for utilization and availability analyses into 24 sub-job groups ranging from Officers to Service workers. Philadelphia Gas Works Number of Employees by EEO Category For the Years 2001 2003 TOTAL COMPANY Percent of 2003 TotalNetPercentage of ChangeEEO Job Categories2000200120022003CompanyChange2001 vs. 2003Officials & Managers246258286217100.0%-29-11.8%Professionals628085109100.0%4775.8%Technicians78119110138100.0%6076.9%Sales Workers1111617100.0%654.5%Office & Clerical426419401332100.0%-94-22.1%Skilled Crafts744630615487100.0%-257-34.5%Operatives225174156316100.0%91 40.4%Laborers7426800.0%-7100.0%Service Workers 40 37 32 144100.0%104260.0%Totals1,8391,7701,7591,760100.0%-79-4.3%Source: 2001, 2002, and 2003 AAPs. Philadelphia Gas Works Number of Employees by EEO Category For the Years 2001 2003 WHITE FEMALES EEO Job Categories2000200120022003Percent of 2003 Total CompanyNet ChangePercent of Change 2001 vs. 2003Officials & Managers242630198.8%-5-20.8%Professionals116121917.4%872.7%Technicians91312139.4%444.4%Sales Workers320211.8%-1-33.3%Office & Clerical7063535416.3%-16-22.9%Skilled Crafts20100.0%-2-100.0%Operatives21230.9%150.0%Laborers01000.0%00Service Workers 3 1 1 96.3%6200.0%Totals1241131111196.8%-5-4.0%Total as a percentof total Company 6.7%6.4% 6.3%6.8%WHITE MALES EEO Job Categories2000200120022003Percent of 2003 Total CompanyNet ChangePercent of Change 2001 vs. 2003Officials & Managers15815316613562.2%-18-14.6%Professionals3142385045.9%861.3%Technicians5278718360.1%559.6%Sales Workers453741.2%275.0%Office & Clerical1191101059829.5%-12-17.6%Craft Workers52142341335172.1%-72-32.6%Operatives103947514044.3%4635.9%Laborers4142100.0%-14-100.0%Service Workers 11 11 9 2316.0%12109.1%Totals1 00393090188750.4%-43-11.6%Total as a percentof total Company54.5%52.5%51.2%50.4%Source: 2001, 2002, and 2003 AAPs. Philadelphia Gas Works Number of Employees by EEO Category For the Years 2001 2003 MINORITY FEMALES EEO Job Categories2000200120022003Percent of 2003 Total CompanyNet ChangePercent of Change 2001 vs. 2003Officials & Managers172428198.8%211.8%Professionals911141412.8%555.6%Technicians5982820.3%23460.0%Sales Workers232529.4%3150.0%Office & Clerical12513613110130.4%-24-19.2%Skilled Workers44310.2%-3-75.0%Operatives52141.3%-1-20.0%Laborers12400.0%-1-100.0%Service Workers 5 5 5 5034.7%45900.0%Totals17319619622212.6%4928.3%Total as a percentof total Company 9.4% 11.1% 11.1% 12.6% MINORITY MALES EEO Job Categories2000200120022003Percent of 2003 Total CompanyNet ChangePercent of Change 2001 vs. 2003Officials & Managers4755624420.3%-3-6.4%Professionals1121212623.9%15136.4%Technicians1219191410.1%216.7%Sales Worker211317.6%150.0%Office & Clerical1121101127923.8%-33-29.5%Skilled Workers21720319813527.7%-8237.8%Operatives115777816953.5%54-47.0%Laborers2254300.0%-2-100.0%Service Workers21 20 17 6243.1%41195.2%Totals 539 531 551 532 30.2% -7 -1.3%Total as a percentof total Company 29.3 30.0%31.3% 30.2%Source: 2001, 2002, and 2003 AAPs. Exhibit XIII-2 Philadelphia Gas Works 2003 Job Group Utilization Analysis MinoritiesFemales Job Group Employed at PGWAvailability in Labor Market  Under-utilized Employed at PGW Availability in Labor Market  Under-utilized%%%%Officers13.3322.13YES20.0039.97YESDirectors25.0028.93YES25.0032.60YESAdministrative Managers38.2437.16NO38.2432.22NOTechnical Managers17.1430.32YES8.5713.50YESIT Managers33.3331.93NO33.3324.87NOAdministrative Supervisors47.6226.43NO26.1939.13YESTechnical Supervisors20.5522.68YES2.744.41YESAdministrative Professionals32.3534.51YES47.0640.22NOTechnical Professionals34.4821.18NO17.2413.72NOIT Professionals42.4230.84NO30.3046.62YESTraditional Technicians24.1428.36YES4.603.07NOAdministrative Technicians38.4651.71YES44.2334.40NOSales60.0037.80NO60.0029.35NOCustomer Contact Clerks75.2045.82NO37.6036.12NOClerks60.9336.44NO47.0255.19YESSecretaries61.7641.84NO94.1282.54NOField Clerks37.0457.92YES1.858.42YESSkilled Clerks50.0056.20YES63.1655.67NOSkilled Craftsman I24.8841.54YES0.002.25YESSkilled Craftsman II30.889.73NO0.701.94YESSemi-skilled Operatives I59.7445.50NO2.1610.54YESSemi-skilled Operatives II48.0050.11YES4.009.28YESSemi-skilled Operatives III41.3346.73YES0.0024.97YESServices74.0763.90NO22.2239.91YESSource: Job Group Utilization Analysis from PGW 2003 AAP. As shown on Exhibit XIII-1, PGW reported 1,760 employees, including 754 minorities and 341 females, in its 2003 AAP dated October 31, 2003. From 2000 to 2003, PGWs workforce declined by 79 employees. However, during the same period the number of minorities increased from 712 (173 female and 539 male) to 754 (222 female and 532 male), while the number of females increased from 297 (124 white and 173 minority) to 341 (119 white and 222 minority). Exhibit XIII-1 also indicates that the percentage of minorities in PGWs workforce increased from 38.7% in 2000 to 42.8% in 2003, and the percentage of female employees increased from 16.1% in 2000 to 19.4% in 2003. The overall improvement in minority and female representation in the workforce results from increased hiring of minorities and females versus white males. Over the past three years ending October 31, 2003, 67.6% of new hires were minorities and 35.2% were females (see Exhibit XIII-3). During this period, PGW hired 324 total employees including 132 minority males, 87 minority females and 27 non-minority females. Of the 324 total employees hired, 18 were in the Officials and Managers job category. Of the 18 Officials and Managers hired, six were minority males, seven were minority females, and one was a non-minority female. As to actual utilization of minorities and females based on their availability in PGWs labor market, the Company has room to improve. Exhibit XIII-2 shows that in 2003, minorities were under-utilized in 12 of the 24 sub-job groups while females were under-utilized in 14 of the 24 sub-job groups. The Company needs to regularly identify these under-utilized job groups if it hopes to improve minority and female utilization therein. The Companys annual AAP includes sufficiently detailed availability and utilization analyses that identify problem areas and goals for improvement. The regular collection and analysis of this information will enable PGW to concentrate on problem areas in its efforts to improve female and minority employment levels in the various under-utilized EEO job categories. Staffs Follow-up Recommendation Strive to improve utilization in under-utilized job groups. Prior Recommendation Hold senior management accountable for implementing the diversity policy approved by the PFMC Board of Directors. Prior Situation The consultant found that PGWs management did not have sufficient accountability for promoting the diversity program. Although diversity was included on the management appraisal form as a distinct item, diversity was not included in the job descriptions for all middle and executive management positions. While senior management could have been rewarded with incentive pay, such rewards were not related to achieving diversity goals. The lack of diversity among operations supervisors and senior management was a key concern of first line supervisor and line employee focus groups conducted by BWG during the course of the management audit. In order to support the diversity program and improve utilization of diverse individuals, management needed to be held accountable for their actions in this regard. Follow-up Finding and Conclusion No. 47 PGW is now holding senior management more accountable for improvement in the diversity program and increases in employee utilization. The Corporate Diversity Committee, a sub-committee of the PFMC Board, was instrumental in adding accountability for the Companys diversity policies as part of the Exhibit XIII-3 Philadelphia Gas Works New Hires Summary for 2001 through 2003 WhiteMinorityTotalWhiteMinorityTotalTotalTotalEEO Job CategoryMalesMalesMalesFemalesFemalesFemalesMinoritiesHired2001Officials & Managers25702279Professionals5611325816Technicians40413438Sales Workers00001111Office &Clerical62026529344960Skilled Workers00000000Operatives1826441122746Laborers00000000Service Workers 0 0 0 0 0 0 0 0Totals355792103848951402002Officials & Managers00010101Professionals606235311Technicians549134713Sales Workers00000000Office & Clerical00006666Skilled Workers13400034Operatives620260112127Laborers00000000Service Workers 0 0 00 0 0 0 0Totals1827454131740622003Officials & Managers21305568Professionals24657121118Technicians01102233Sales Workers00000000Office & Clerical31316822303546Skilled Workers22400024Operatives1627430002743Laborers00000000Service Workers 0 0 0 0 0 0 0 0Totals25487313364984122 employee performance appraisal process. PGWs management employees (down through the Professional level) are now rated on their performance relative to diversity. Senior management job descriptions include responsibilities for achieving diversity goals. In addition, management employees are routinely receiving training on how to achieve AA goals. The Human Resources Department informs management and other individuals responsible for hiring when job groups are under-utilized. Management is expected to make an effort to bring utilization up when positions are under-utilized. The Director of EEO Compliance, through the Employee Utilization Committee, meets periodically with appropriate management personnel to review the progress made and to develop alternatives if required. The annual AAP addresses management accountability and is reviewed annually with appropriate management personnel. As a result of the additional management diversity training and accountability, PGWs management is more informed about the Companys diversity program and efforts to improve utilization of minorities and females are more likely to succeed. Staffs Follow-up Recommendation None. Prior Recommendation Develop and implement a meaningful minority business enterprise, women business enterprise, and persons with disabilities owned business enterprise (MWDBE) program for making purchases outside the normal procurement process. Prior Situation PGW did not have an effective MWDBE program for purchases made outside the normal procurement process (known at PGW as signature purchase). As appropriate, vendors were instructed to contact PGW department representatives directly if the services were something outside the normal procurement process, for example, accounting or legal services. There was no follow-up to ensure that potential MWDBE vendors had been given full consideration for promoting their services. Since these signature purchases were not clearly defined the opportunities for using MWDBE vendors was limited. Follow-up Finding and Conclusion No. 48 PGW has not developed a program to address purchases made outside of the normal purchasing process and has not established goals and strategies to improve diversity purchases. PGW has not established a MWDBE purchases program for signature purchases. Further, within the Procurement Department (where a diversity program exists for normal purchases) documentation, goals, and strategies are lacking. However, PGW has continued to track its MWDBE purchases. Exhibit XIII-4 indicates that although total MWDBE purchases increased approximately 31% from $2.9 million in 1999 to $3.8 million in 2002, MWDBE purchases as a percentage of total purchases decreased from 12.8% in 1999 to 5.9% for 2002. This occurred because total purchases increased from $22.6 million in 1999 to $64.4 million in 2002, or by 185% during the period. PGW and the City believe that they are legally prevented from requiring that a certain percentage of vendor business be based on ethnic, gender or other non-business related factors. Therefore, in 1990, PGW and the City stopped utilizing percentage requirements for diversity purchases. While we agree that PGW should not require a quota for MWDBE purchases in accordance with the Commissions Policy Statement regarding Diversity at Major Jurisdictional Utility Companies (at 52 Pa. Code 69.801 69.809), it should periodically examine its performance, set formal goals for improvement, determine how its going to achieve these goals, and document the results. Without goals, strategies, and documented results, PGW will have a difficult time achieving and measuring improvement in its diversity purchases. Staffs Follow-up Recommendation Set goals and develop strategies to increase purchases from MWDBE vendors, and document the results. Philadelphia Gas Works Total Utility Purchases for Minority, Women, and Disabled Person Businesses For the Years 1999 2002 MBEWBEDBETOTAL MWDBETotalAnnual% of TotalAnnual% of TotalAnnual% of TotalAnnual% of TotalYearsPurchasesPurchasesPurchasesPurchasesPurchasesPurchasesPurchasesPurchasesPurchases1999$22,600,000$1,100,0004.9%$1,800,0008.0%$00.0%$2,900,00012.8%2000$34,093,554 $1,408,173 4.1%$2,483,513 7.3%$0 0.0%$3,891,686 11.4%2001$61,170,290 $1,891,290 3.1%$1,079,828 1.8%$1,357 <0.1%$2,972,475 4.9%2002$64,429,132 $1,628,832 2.5%$2,173,536 3.4%$716 <0.1%$3,803,084 5.9%$ Increase$41,829,132 $528,832  $373,536 $716  $903,084 % Increase 185.1% 48.1% 20.8% 100.0% 31.1% Source: Data Request and Auditor Analysis XIV. PROPOSED WORK MANAGEMENT AND MANPOWER PLANNING PROGRAM Prior Recommendation Implement the proposed work management and manpower planning program. Prior Situation During BWGs review, it was determined that PGW staffing levels were historically-based rather than quantified based on workload data. Additionally, only rudimentary work management systems were in place for the operations department which accounted for nearly 80% of PGWs entire workforce. The existing systems collected data related to actual hours expended versus targeted benchmarks for a limited number of work functions. However, this data was used primarily to measure and monitor day-to-day activities and not utilized for long-range planning. Moreover, there were no work management systems that addressed white collar work functions. As part of the management audit process, BWG developed a detailed work management and manpower planning program for PGW. The consultant indicated the program would provide PGW with a net positive benefit that could be directly related to improved performance and significant cost savings through staff reductions, increased productivity, and cost avoidance. BWG projected that a one-time investment of $600,000 to $750,000 to implement the program would yield annual cost savings of approximately $10 million within three to five years of implementation. Follow-up Finding and Conclusion No. 49 PGW has delayed implementation of the proposed work management and manpower planning program. In January 2001, PGWs management determined that more basic reforms in key departments were necessary before implementing a formal work management and manpower planning program. The reforms that have occurred subsequent to the BWG management audit include: Customer Service documentation of workflow; department reorganization; establishment of metrics to plan and manage work for the call center, district offices, account management, dispute resolution unit, and customer response unit. Information Technology department reorganization. Field Services/Distribution Departments reorganized and merged as a single department (Field Operations) as part of an initiative to establish work metrics. Collections Department documented workflow and established work metrics. Gas Processing Department restructured staff to assure proper oversight of critical functions. As of late 2003, the Company planned to implement a work management and manpower planning program sometime during the 2005-2006 fiscal years for each of the departments in the following sequence: Field Operations, Customer Services, Gas Processing, and other applicable operating units. More specifically, annual direct and indirect man-hour estimates for each of the major work activities within each of the major departments need to be completed as part of the program in order to determine employee utilization levels. Once employee utilization levels have been determined, the Company can establish equivalent staffing level requirements based on forecasted workload. Over time this will allow PGW to better align its work-load with available resources and result in labor cost reductions. However, due to financial and staffing resource constraints as well as the previously mentioned need to make preliminary basic reforms in key departments, management determined that postponement of the work management and manpower planning program was prudent. On the other hand, postponement of the program will obviously delay attainment of any significant portion of the $10 million annual savings projected by BWG. Nonetheless, as a result of the redefinition of activity in some of its key departments, PGW has established a foundation to implement future work measurement and manpower planning elements in the Information Technology, Customer Service, and Collections departments. Staffs Follow-up Recommendation Implement the work management and manpower planning program as soon as possible. XV. ACKNOWLEDGEMENTS We wish to express our appreciation for the cooperation and assistance given to us during the course of this Management Efficiency Investigation by the officers and staff of Philadelphia Gas Works. This audit was conducted by John Clista, J. Alan Gardocky, CFE, Gregory McCarthy, PE, Michael Palewicz, and John Zinn of the Management Audit Staff of the Bureau of Audits. PAGE 50 PAGE 2 PAGE iv PAGE 2 Philadelphia Gas Works Organization Chart as of July 10, 2003 PAGE 3 PAGE 6 PAGE 21 PAGE   PAGE 25 PAGE 41 PAGE 119 Exhibit XIII-1 Page 1 of 3 Exhibit XIII-1 Page 2 of 3 Exhibit XIII-1 Page 3 of 3 PAGE 124 PAGE 127 Exhibit II-1 Page 8 of 15 Exhibit II-1 Page 3 of 15 Exhibit II-1 Page 10 of 15 Exhibit VII-3 Exhibit II-1 Page 7 of 15 Exhibit II-1 Page 2 of 15 Exhibit II-1 Page 1 of 15 Exhibit II-1 Page 5 of 15 Exhibit XIII-4 Exhibit II-1 Page 14 of 15 Exhibit II Page 11 of 11 Exhibit II-1 Page 15 of 15 Exhibit II-1 Page 12 of 15 Exhibit II-1 Page 13 of 15 Exhibit II-1 Page 9 of 15 Exhibit II-1 Page 6 of 15 Exhibit I-1 President and Chief Executive Officer Vice President Field Operations Vice President & CIO Director Restructuring Program Vice Pres. Marketing & Corp. Communications Senior Vice President Operations Exhibit II-1 Page 4 of 15 Exhibit II-1 Page 11 of 15 Vice President Customer Activities Acting Vice President Human Resources Vice President Gas Management Vice President Labor, Safety & Preparedness Senior Vice President Finance Vice President Strategic Planning Sr. Vice President and General Counsel Vice President Governmental Affairs Interim COO and Senior Vice President Internal Audit Philadelphia Facilities Management Corporation Board of Directors  !     ! wkwkwk`X`Ph=LCJaJhrUCJaJhUlhh'lCJaJhUlhh=L5CJaJhUlhh'l5CJaJh`1 CJ$aJ$h=LCJ$aJ$h Chs5CJ(aJ(h Ch C5CJ(aJ(h Chs)5CJ(aJ(h Ch=L5CJ(aJ(hs)h~jh=LCJ&aJ&h~jh~j5CJHaJHhY8h=L5CJBaJBhY8hY85CJBaJBh=L h=L5 !E  $$$$Z$$;$$$$$$a$^ $a$a$a$$$$$$$$ $dha$gduHU $dh@&a$gduHU $@&a$gduHUgduHU$a$gduHUg ! " 8 9 : ; S w x $$$$$$$$$, $$Ifa$gduHU$a$gduHU $@&a$gduHUgd'l$a$gd'l$gduHU! 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Services#&(# & T| 0 UU@@ 0 L\Response- (%' T 0  UU@@ 0 LhTransportation)"'(%"%'TV0 U UU@@V0 LhCommunications0%;;('"%'T  UU@@ LhSecur. & Loss# (4)%% TT  UU@@ LP" % T j UU@@ LdEngineering)'%' '%% TTl UU@@l LP" % T UU@@ L`Credit and0 )"')% TT UU@@ LP" % T  UU@@ LhSupply Service#(((%# & % TT$ : UU@@$ LP" % TV r UU@@V L`Technical) ''"T \ UU@@ L`Prevention( & '%'T|  \ UU@@ L\Design &4 %'4T \ UU@@ LdCollections0% %'T )\ UU@@ L`Strategies#" % T|V F\ UU@@V L\Services# & Tw UU@@w LdConstruction0%'(%'% TTl m UU@@l m LP" % T| w UU@@ w L\Customer0(%; % TT m UU@@ m LP" % T w  UU@@ w LdGas Planning3"("'''%% TT 5 UU@@ LP" % Tx 6 UU@@ L\Meter &?  4T 6 UU@@ L`Accounting4%(''%% TT 5 UU@@ LP" % T p6 UU@@ LdGas Control3"0%'%TQ UU@@Q LdMeasurement? "( ; '% TT G UU@@ G LP" % T Q  UU@@ Q LhRichmond Plant-';%')("'% TT UU@@ LP" % T UU@@ LdSystems Adm.#% ;4);% TT UU@@ LP" % T UU@@ LhPassyunk Plant("%('%("'% TT!|UU@@!LP" % T+1 }UU@@+ L`Field Ops.% )5(T UU@@ L`Initiative'"& % TTVUU@@LP" % Td WUU@@ LdOp. 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Mgmt. &??%;4T&* xUU@@& L`Fleet Ops.% 5(% % " !%     TLUU@@LL% % " !%     THUU@@*LOrganization Structure as of July 10, 2003S'82=!22!!8==!'=,!='22,8''=!8222222% " !%     TLUU@@{LL% " !%     TLUU@@vLL% % " !%   +  T!UU@@LxSenior Vice President'$,)6!$-$ .$,% % " !%     TC E yUU@@C L|PFMC Board of Directors83WA82.$82G$,)2$'% " !%   nw  T, kUU@@%LPresident and Chief Executive Officer8$,'8,6.68A6,8/,)74,H),$% " !%      TLUU@@~LL% % " !%   ^  T VUU@@LSource: Data Request GD-2.,-2!%(@**7(.2(#?@*% % " !%     T, UU@@, LxPhiladelphia Gas Works==!!2=2!==!2S2,d8'=,% % " !%   Q  TRYUU@@RYLlInterim COO and,$B5;;&,.% " !%     TLUU@@$LL% " !%   +I  TLUU@@3LL% " !%   I&  TLUU@@LL% " !%   w   TLUU@@LL% " !%    Q  TLUU@@LL% " !%    n  TLUU@@ LL% " !%   a% " !%   b'%   & % ~6% Ld~~!??% v6v{% Ldv}zv!??% 6{% Ldz!??% ~M6M% Ld~MT~M!??%  M6 M% Ld M T M!??% 6% Ld!??% M6M% LdMTM!??% M6- M% LdM, TM5!??% 6% Ld!??% ~'6'% Ld~'.~'!??%  '6 '% Ld ' . 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" "8@@ "8@ "8 @ !8  "8 "8 !8   ( "8@ "8 "8  "8@@  "8@  "8 @  !8  `Sheet1JISheet2=JSheet3TZRA3 A@@  faCustomer OperationsFinanceHuman ResourcesServicesAffairs Information TechnologyPlanning" Call CenterResponse AssistanceGas ProcessingField ServicesSupport Accounting Collections Application TechnicalEmployeeSr. Vice Pres. & Gen. Cnsl. StrategicLabor, Sfty. & PrepardenessLegal ActivitiesGas ManagementMarket & Corp. Comm.Info. Restruct.ProgramCommunications Low Income Credit and Sales and Major Accts. Engineering LNG ProjectSupply &TransportationSupply Service Strategies Gas Planning Gas ControlRichmond PlantPassyunk PlantDesign & Construction Measurement Systems Adm.Tech. Services Policies & Compliance Risk Mgmt.Labor Relations, Safety, and Secur. & Loss PreventionPFMC Board of Directors%President and Chief Executive OfficerPhiladelphia Gas WorksSource: Data Request GD-2. Governmental Controller ProcurementTreasuryFinancial Rptg. Oracle Adm.PayrollEEO/AA Staffing & Trainings Field Ops. 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''''P'''0'6    44 la@pPT$$If@!v h5 5 5555P555 #v #v #v#v#v#vP#v#v#v :V l0'6, 5 5 5555P555 9 a@pZT_kdy$$IfTl  K!'' ' ''''P'''0'6$$$$44 la@pZT$$If@!v h5 5 5555P555 #v #v #v#v#v#vP#v#v#v :V l0'6, 5 5 5555P555 9 a@pZT_kdv$$IfTl  K!'' ' ''''P'''0'6$$$$44 la@pZTz$$If@!vh5 5555P555#v #v#v#v#vP#v#v#v:V l0'6,5 5555P5559a@pPT/kds$$IfTlִ K!'' ''''P'''0'6    44 la@pPTz$$If@!vh5 5555P555#v #v#v#v#vP#v#v#v:V l0'6,5 5555P5559a@pPT/kd $$IfTlִ K!'' ''''P'''0'6    44 la@pPTz$$If@!vh5 5555P555#v #v#v#v#vP#v#v#v:V l0'6,5 5555P5559a@pPT/kd$$IfTlִ K!'' ''''P'''0'6    44 la@pPT$$If@!v h5 5 5555P555 #v #v #v#v#v#vP#v#v#v :V l0'6, 5 5 5555P555 9 a@pZT_kdz$$IfTl  K!'' 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