Management Audit of the Department of Revenue
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Management Audit of the Department of Revenue Prepared for the Board of Supervisors of the County of Santa Clara Prepared by the Board of Supervisors Management Audit Division County Administration Building, East Wing, 10th Floor 70 West Hedding Street San Jose, CA 95110 (408) 299-6436 August 31, 2010 This Page Left Blank Table of Contents Executive Summary ...................................................................................................... i Introduction.................................................................................................................. 1 Customer Service and Collections Section 1. Improving Payment Methods ........................................................... 23 Section 2. Contract for On-line and Telephone Payments ............................... 63 Section 3. Improving Medical Debt Collections ................................................ 79 Section 4. Improving Collections Tactics............................................................ 99 Management Issues Section 5. Collections Officer Duties, Workload and Procedures .................. 113 Section 6. Improving Management Information ............................................ 133 Written Responses to the Audit Written Response from the Department of Revenue........................................... 136 Written Response from Valley Medical Center..................................................... 147 This Page Left Blank Executive Summary This Management Audit of the Department of Revenue was authorized by the Board of Supervisors of the County of Santa Clara, as part of the County’s FY 2009-10 Management Audit Program, pursuant to the Board’s power of inquiry specified in Article III, Section 302 (c) of the County of Santa Clara Charter. The purpose of the management audit was to examine the Department’s operations broadly to identify opportunities to increase efficiency, effectiveness and economy. A synopsis of this report’s six findings and recommendations is presented below. It is difficult to estimate the potential net new revenues that would be generated by implementation of recommendations in the report. However, for each one percent increase in gross overall collections, the Department would generate an estimated $550,000 annually. Section 1: Improving Payment Methods The County of Santa Clara Department of Revenue (DOR) could make it easier for debtors to make payments, thus potentially increasing net revenue receipts. Potential improvements include allowing debtors to accept default payment plans by mail, facilitating credit-card payments by mail, enabling debtors to pay online or by telephone without incurring convenience fees, and making online payment options more accessible, among other potential improvements. Section 2: Contract for Online and Telephone Payments The existing contract with an outside vendor for the Department to accept online and telephone payments is contrary to County policies and results in debtors being charged excessive fees when they make payments. The Department should ensure that fee rates are appropriate, and that the selected vendor and fees are approved by the Board of Supervisors. Section 3: Improving Medical Debt Collections The largest portion of outstanding debt in DOR’s accounts system is medical. In addition, $391 million worth of medical bills were deemed uncollectible in FY 2008-09. Medical account collections could be improved by Valley Medical Center gathering better information about patients to determine eligibility for third-party payment, billing the patient share more quickly, and requiring patients to sign reimbursement agreements for future use when appropriate. In addition, DOR could improve its collections by writing off aged bad medical debts more quickly to facilitate improved focus on accounts more likely to be fruitful. Board of Supervisors Management Audit Division i Executive Summary Section 4: Improving Collections Tactics The Department could employ or expand certain collections tactics to potentially improve its collection rates and thus net revenue receipts. These include - where appropriate - levying bank accounts, reporting delinquent debt to credit bureaus, and making greater use of existing predictive/auto dialer technology. Section 5: Collections Officer Duties, Workload and Procedures The Department’s active caseloads are very large and populated with very old accounts, the Department provides insufficient direction to staff regarding prioritization of accounts, and many Collections Officers and Supervisors are engaged in duties that are outside the scope of their job descriptions. By eliminating old accounts, improving prioritization of remaining accounts, hiring additional collections staff, and ensuring that collections staff are not engaged in non-collections tasks, the Department is likely to experience a net increase in revenue receipts. Section 6: Improving Management Information Despite the large amount of reports produced by the Department, management lacks detailed, routine management-level information reports related to collection rates and the age of accounts. The Department should develop this information for use in guiding the development of caseload management policies and their implementation. Board of Supervisors Management Audit Division ii Introduction This Management Audit of the County of Santa Clara Department of Revenue was authorized by the Board of Supervisors of the County of Santa Clara, as part of the County’s FY 2009-10 management audit program, pursuant to the Board’s power of inquiry specified in Article III, Section 302 (c) of the County of Santa Clara Charter. Purpose and Scope The purpose of the management audit was to examine the operations and practices of the Department of Revenue, and to identify opportunities to increase the Department’s efficiency, effectiveness and economy. This audit report includes findings related to the Department’s collections tactics, payment methods, medical debt collections, contract for online and telephone payments, Collections Officer duties, workload and procedures, and management information. The recommendations pertaining to these findings present potential strategies for revenue enhancement, many of which cannot be quantified. Nonetheless, for every 1 percent increase in gross overall collections generated by implementation of these recommendations, the Department would generate an additional $550,000 annually. Many recommendations in this audit relate to implementing changes that have benefited collections in other counties. Audit Methodology Auditors interviewed Department employees throughout all levels and divisions of the organization, as well as representatives of other County departments that provide collections services, and other Counties’ in-house collections functions. Auditors also interviewed staff in or obtained data from relevant County departments, including Procurement, the Controller-Treasurer, County Counsel, Social Services, the Tax Collector, the Department of Child Support Services and Valley Medical Center. In addition to the interviews, auditors sat with selected cashiers and collectors to gain a first-hand understanding of the activities and tasks involved in their duties. Auditors reviewed and analyzed documents, reports, policies and procedures, spreadsheets, and datasets and electronic records provided by the Department, and surveyed collections functions in other California Counties to enhance our understanding of collections operations. In addition, auditors interviewed and obtained data from key Patient Billing Services managers of Valley Medical Center who oversee the billing and internal collections efforts that occur prior to medical accounts being referred to the Department of Revenue. The audit was conducted in accordance with generally accepted government auditing standards issued by the United States Government Accountability Office. Pursuant to these requirements, we performed the following management audit procedures: • Audit Planning – The management audit was selected by the Board of Supervisors using a risk assessment tool and estimate of audit work hours developed at the Board of Supervisors Management Audit Division 1 Introduction Board’s direction by the Management Audit Division. After audit selection by the Board, a preliminary management audit work plan was developed and provided to the Department. • Entrance Conference – An entrance conference was held with senior Department management to introduce the management auditors, describe the management audit program and scope of review, and respond to questions. A letter of introduction from the Board, a management audit work plan, and a request for background information were also provided at the entrance conference. • Pre-Audit Survey – A preliminary review of documentation and interviews with managers were conducted to obtain an overview understanding of the Department, and to identify areas of operations that warranted more detailed assessments. Based on the pre-audit survey, the work plan for the management audit was refined. • Field Work – Field work included: (a) interviews with management and line staff of the Department; (b) a further review of documentation and other materials provided by the Department and available from other sources; (c) analyses of data collected manually and electronically; (d) surveys of other jurisdictions to measure performance and to determine organizational and operational alternatives that might warrant consideration by