AUGUSTA – The upcoming merger of the state’s two largest departments promises to be a complicated, time-consuming, bureaucratic ordeal. But the end product, as envisioned by its architects, should be well worth the trouble.

Gov. John Baldacci received recommendations Friday from the Advisory Council for the Reorganization and Unification of the Department of Human Services and the Department of Behavioral and Developmental Services, the committee he established 10 months ago to study the merger.

“What we are proposing is nothing short of a sea change in the way these departments operate,” said the council’s chairwoman, Valerie Landry. After intensive review, she said, the group thinks “this merger is not only possible, but essential.”

The two agencies provide similar and sometimes overlapping services to adults, children and families, resulting in a tangled and duplicative system of care and protection. Consumers complain that trying to navigate the two departments is frustrating and infuriating, and that accountability and responsiveness are minimal.

As part of his campaign platform, Baldacci pledged to merge the two departments and to improve their performances.

Since May, more than 200 Mainers – consumers, lawmakers, direct service providers, agency support staff, health care advocates and others – have met regularly in six subcommittees headed up by the 17 appointed council members. The result of their work is 20 pages of specific recommendations for improving services, streamlining administration, enhancing communications and – importantly – saving money.

The state has already committed the $5.8 million it anticipates will be freed up through the merger process. The money has been allocated to other programs in the brittle state budget for fiscal year 2005, which begins July 1.

Rebecca Wyke, commissioner of Administrative and Financial Services and a member of the advisory council, said the $5.8 million goal will be realized through eliminating about 12 upper-management jobs, leaving unfilled 19 vacant support positions and streamlining overhead expenses such as office space, technical support and administrative tasks. “We’re very confident we can realize these savings,” Wyke said.

DHS currently employs about 2,620 people; DBDS employs 1,350. Both departments contract extensively for direct-care services, as well as using their own staff.

Beyond the budget, though, committee members expressed confidence that DHS and DBDS can be reconfigured to provide better service to Maine clients and consumers. The process, which Landry characterized as overwhelming, intimidating and time-consuming, should instead be simple, humane, responsive and accountable, she said.

In addition to integrating administrative systems and personnel, key recommendations for consumer service include:

. Establishing a central office for customer services to help members of the public make contact quickly with appropriate staff.

. Creating a new Bureau of Children and Families to manage and coordinate programs in child care and development, Head Start, mental health and mental retardation, developmental disabilities, autism, child protection, adoption and foster care.

. Creating a new Bureau of Adult Services to coordinate services to adult clients.

. Consolidating case management services.

Other recommendations include providing better training and support for all staff, working to improve the attitudes of employees, and holding managers accountable for staff performance.

The council also suggested studying the feasibility of incorporating the Juvenile Justice program, currently within the Department of Corrections, into the merged department. It also suggested creating a centralized appeals office to serve all state agencies and unifying the administrative structures of the public psychiatric hospitals in Bangor and Augusta.

The governor will study the recommendations and refer some provisions for bill making in the current session. Other elements can be accomplished through departmental rulemaking or simple administrative actions. Baldacci said he hopes to see the merger under way in the coming fiscal year. A commissioner to head up the new department will be named before the end of this month, he said.