EXHIBIT F
000177
CHARTER REVIEW COMMITTEE
City of Riverside
September 11, 2003, 5 p.m.
Mayor's Ceremonial Room
City Hall, 3900 Main Street
MINUTES
PRESENT: Chair Eric Haley and Members Rose Mayes, Dale McNair, Dorothy Bailey, Rusty Bailey, William Turpin, Ray Higgins, Connie Leach, Gar Brewton, Mike Teer, Vice Chair Ben Johnson, Barry Johnson, Art Garcia, Marjorie von Pohle, and Damon Castillo
ABSENT: Member Marcia McQuern (excused) and Stan Stosel STAFF PRESENT: Colleen Nicol, Janis Lowry, Gregory Priamos, Tricia Ruiz, Sharon Cooley, and George Caravalho
ALSO PRESENT: Mayor Pro Tempore Frank Schiavone, Barbara Purvis and Sylvia Marten- James representing the League of Women Voters, Dan Hantman, and others
Vice Chair Ben Johnson convened the Charter Review Committee at 5:05 p.m.
The Pledge of Allegiance was given to the Flag.
MINUTES
Motion was made by Member Barry Johnson and seconded by Member von Pohle approving the minutes of August 5, 14, and 28, 2003, as presented. Motion carried unanimously.
INTERVIEW WITH CITY MANAGER GEORGE CARAVALHO
City Manager George Caravalho reviewed Charter and General Law City forms of goverment, the four forms of government (Strong Mayor, Mayor-Council, Commission, and Council- Manager), the City Council and City Manager roles and responsibilities, the City's Organizational Chart, and the Emergency Management System. The Committee questioned and commented on various issues including the City Manager's roles and responsibilities, the Mayor's voting and veto power, the Ward system, and City Manager form of government.
INTERVIEW WITH MAYOR PRO TEMPORE FRANK SCHIAVONE
Mayor Pro Tempore Frank Schiavone encouraged the Committee to focus on the City's needs 20-30 years in the future. Further, he offered comments and answered questions regarding full-time versus part-time Councilmembers, Mayor and Councilmembers salary, election of Councilmembers at a June primary from the Ward followed by a Citywide election held in November, elimination of mail in ballot elections, election of the Mayor in even-numbered years or requiring Councilmembers from Wards 1, 3, 5, and 7 to relinquish their seats in order to run for Mayor, the Council-Manager form of government versus a strong Mayor, an increase in the powers and duties of City Boards and Commissions, Code Compliance, and increased City CRC-9
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Council staffing. He does not support an increase in the member of Wards and favors evening City Council meetings.
SELECTION OF COMMITTEE LOGO
Following review of the submitted Committee logos, motion was made by Member Castillo and seconded by Member Barry Johnson to approve the orange and blue logo as submitted by staff. Motion carried unanimously.
ORAL COMMUNICATIONS FROM THE AUDIENCE
There were no comments presented at this time.
ADJOURN
The meeting adjourned at 7:05 p.m.
ACCOMPLISHMENTS:
1. Interviewed City Manager and Mayor Pro Tempore
2. Selected Committee logo
TO DO
1. Interview Mayor and remaining Councilmembers
2. Vote on permanent Chair and Vice Chair
Respectfully submitted,
Site Your
Deputy City Clerk
CRC-10
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CITY OF
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DRAFT
CITY OF
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CITY OF
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CHARTER
CITY OF
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CHARTER
PAST • FUTURE
CITY OF
RIVERSIDE
CHARTER
PAST • FUTURE
CITY OF
RIVERSIDE
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PAST • FUTURE
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DRAFT
RIVERSIDE RIVERSIDE
ACiTY CHARTER ACiTY CHARTER
RIVERSIDE RI RSID E
CİTY CHARTER CİTY CHARTER
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CHARTER CHARTER
CHARTER CHAFiIF
RIVERSIDE RIVERSIDE
CITY OF
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CHARTER RIVERSIDE CHARTER RIVERSIDE
BE A PART OF IT
History • Future
HistoRy
RIVERSIDE
*Computer & Scroll
Icons for placement only
CHARTER RIVERSIDE
CHARTER
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CITYWIDE ORGANIZATIONAL CHART
Total FTE: 2,173.26
Assistant City Manager
Police Deputy City Manager
Finance
Fire Planning & Building
Human Resources
Public Utilities Development Services
Electric General Seryices • Redevelopment
Water
Economic Development
Information Systems Housing Development
Public Works Neighborhoods
Streets/Refuse Museum
• Code Enforcement
Airport
Waste Water Library
Engineering
Traffic/Parking Park and Recreation
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STANDARDIZED EMERGENCY MANAGEMENT SYSTEM (SEMS)
EOC
DIRECTOR
Dedica Cavale CyMa
Cubro-Oral, Ank Clty Marage
ASST TO CITY MANA CEI
Michael Back
ROC SECURITY PIO FUNCTION REL OCATED TO PLOUC UNLMES
RPO Reserve OPtica PUSUCINFORMATION CHICEI
RPO Cadet
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LOC COORDMATO
Gend Bunde
Krtath Teud
CLERICAL SUPPORT
Vivian Wieman
INTELLGENCE
Jim Smes (OMD)
Jor Swech pur Carol Britan DEV Brent Mason Plet
STAGINO ARCA for Beld une erey! SUPPORT BR. DOR HUMAN RESOURCE Preston Paper (PV)
Am Lowey (PHO David Deva
ГЛО ОРдодтоні © adry Salz (PO)
DIRECTOR
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Varard
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Majorie Michel
GROUND SUPPORT
Outdirg Inspector
code Enforcament 8. Fasher (Ad 5vct)
LIKIT LEADE
Joann lyon
Shans Freicha (H3
Heten Wartrer PP BAI Maureen Ricos (HR
Paty Tambe PARI Trish Scie
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UNT LEADER Hung Phan
KIE WOlams (tre VACAN
Linde Jarront Pol EMPLOYEE RESOURCES
Stepharte S duenberg
Zoptea B.
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The Council-Manager Form of Government:
Answers to Your Questions
Q: What is the council-manager form of government, which is used in so many cities, towns, and counties?
A: The council-manager form is the system of local government that combines the strong political leadership of clected officials in the form of a governing body, with the strong managerial experience of an appointed local government manager. The governing body, commonly known as the council, may also be rcferred to as the commission or the board. The council-manager form establishes a representative system where all power is concentrated in the clected council and where the council hires a professionally trained manager to oversee the delivery of public services.
Q: Is it a responsive form of government?
A: In council-manager govemment, the mayor or chairperson of the governing body and council members are the leaders and policy makers clected to represent the community and to concentrate on policy issues that are responsive to citizens' necds and wishes. The manager is appointed by the governing hody to carry out policy and ensure that the entire community is being served. If the manager is not responsive to the governing body's wishes, the governing body has the authority to terminate the manager at any time. In that sense, a manager's responsiveness is tested daily.
O: Are all council-manager governments structured the same way? A: No. One of the most attractive features is that the council-manager form is alaptable to local conditions and preferences. For example, some communities have colleagues on the governing body.
U: What is the council's function?
A: The council is the legislative boody; its members are the community's decision makers. Power is centralized in the clected council, which approves the budget and determines the tax rato, for example. The council also focuses on the community's goals. pres, and such long-term considerations as community growth. land use development. capital improvemen plans, capital financing. and strategic planning. The ouncil hires a professional manager to carry out the administrative responsibilitics and supervises the manager's performance.
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2 Q: Where does the mayor or chairperson of the governing body fit in? A: Mayors or chairpersons in council-manager communities are kcy political leaders and policy developers and their duties, responsibilities, and authorities depend on the organization's charter. In council-manager communities, typically the mayor or chairperson presides at council mectings, serves as a spokesperson for the community. facilitates communication and understanding between clected and appointed officials, assists the council in setting goals and advocating policy decisions, and serves as a promoter and defender of the community. In addition, the mayor or chairperson serves as a hey representative in intergovernmental relations. The mayor or chairperson, council. and manager constitute a policy-devclopment and management team.
Q: What is the manager's function?
A: The manager is hired to serve the council and the communily and to bring to the local government the benefits of training and experience in administering local government projects and programs on bchalf of the governing body. The manager prepares a budget for the council's consideration; recruits, hires, and supervises the government's staff; serves as the council's chief adviser: and carries out the council's policies. Council members and citizens count on the manager to provide complete and objective information, the pros and cons of alternatives, and long-term consequences. 0: What is the cost to the local government of appointing a professional manager?
A: Local governments have found that overall costs actually have heen reduced with competent management. Savings come in the form of reduced operating costs, increased efficiency and productivity, improved revenue collection, or effective usc of tochnology.
Does the manager participate in policy determination?
A: The manager makes policy reconmendations to the council, but the council may or anay not adopt them and may modify the recommendations. The manager is bound by whatever action the council takes.
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3 Is this form of government used only in certain kinds of cities? A: No. In fact, it is not restricted to cities. It is used by towns and counties 100.
More than 3,400 cities operate under this form, and more than 371 counties opcrate under the council-administrator form. They vary greally in size and characteristics.
How many Americans live in communities that operate under council- manager government?
A: More than 89 million.
Q: Is the form popular in large communities?
A: Yes. Out of 237 cities with groater than 100,000 residents, 141 usc this form of government. Some examples are Charlotto, North Carolina; Dallas, Texas; Las Vegas, Nevada: Oklahoma City, Oklahoma; Phoenix, Arizona: San Antonio, Texas; San Dicgo and San Jose, California; Virginia Bouch, Virginia; and Wichita, Kansas. Large counties that use the structure include: Broward County, Florida; Clark County, Nevada; Fairfax County, Virginia; Hamilton County, Ohio; Mecklenburg County, North Carolina: and Santa Clara County, California.
Q: How much citizen participation is possible under council-manager government?
A: Successful examples of citizen participation in the local government service delivery decision-making process are widespread among professionally managed communities. Because professional local government management offers government of the people, by the people, and for the people, it sets the stage lor citizen activism by encouraging open communication between citizens and their government. Examples range from visioning, in which citizens play a major role in determining the future of their community, lo neighborhond service dclivery. which involves residents through the ilevelopment of citizen/government partnerships, to community-oriented local government services.
Because political power is concentrated in the entire governing body rather than one elected official, more citizens have an opportunity to be clected to a position in which hey have significant influence over the future of their community. 000186
4 Q: What is the history of the council-manager form?
^: Born out of the progressive reform movement at the beginning of the 20" century, the council-manager system of local government is one of the few original American contributions to political theory. In 1908, Staunton, Virginia, instituted the first position Iegally delining, by ordinance, the broad authority and responsibility associated with today's professional local government manager. Sumter, South Carolina, was the first city to adopt a charter incorporating the basic principles of council-manager government in 1912. Westmount, Quebec, introduced the form to Canada in 1913. The first large city to adopt the plan was Dayton, Ohio, in 1914. The first countics to adopt it in the 1930s were Arlingion County, Virginia, and Durham County and Robeson County, North Carolina.
Since its establishment, the council-manager form has become the most popular form of government in the United States in communities with populations of 5,000 or greater. The form also is popular in Canada, Australia, the Netherlands, New Zealand, the United Kingdom. Honduras, Chile, and Brazil. For more than 94 years. council-manager government has responded to the changing noeds of citizens and their communities.
Q: How can a community adopt this form of government?
A: Methods vary, but most communities can adopt council-manager government through a charter, a local ordinance, or a state enabling law. In many cases, adoption must be by vote of the local governing body. For information on how your community can adopt council-manager government, contact your state municipal Icague or association of counties. You can find the addresses of these organizations in ICMA's Municipal Yeur Book at your local library, or on the Internet.
Q: How is the manager selected?
A: The vacancy usually is announced in the /CMA Newsletter, and managers in other communities are invited to apply if they are interested. Managers, assistants. and others apply direetly to the council, which reviews the applications and interviews qualified candidates. K'MA makes no recommendations regarding candidates. Further information is available in the handbook Recruitment Guidelines for Selecting a Local Ciovernmen Administrator, published by ICMA and available at hup://jobs.igma.org. 000187
5 Q: Does the manager have to be a local resident at the time the appointment is made?
A: No. Local residence should not he required of applicants at the time the appointment is made. Managers are professionals who might serve several communitics during their careers, bringing extensive experience coordinating public scrvices and applying management lechniques to a community.
Q: What salary does the manager receive?
A: Earings of managers depend on their educational background and experience. the size and complexity of the local goverments employing them, and the cconomic conditions of the regions where communities are located. The council sets the manager's salary. Detailed information on salarics is compiled annually by ICMA and is available on request.
Q: Can the manager be fired?
^: Managers serve at the pleasure of the council or governing body. They can be hired by a majonty of the council, consistent with local laws, ordinances, or employment agreements they may have with the council. Control is always in the hands of the clected representatives of the people.
O: Where do managers get their experience?
A: Nearly 73 percent of managers surveyed by ICMA have a master's or a professional degrec. Respondents indicated that they had spent an average of 17 years in the local government management profession.
V: Do managers participate in local politics?
All managers who belong to ICMA are bound by its Code of Ethics, which states that every member of the Association shall refrain from all political activities that undermine public confidence in professional administrators and refrain from participation in the clection of members of the employing legislative body. 000188
6 Q: What else does ICMA's Code of Ethics cover?
A: The Code specifies 12 ethical principles of personal and professional conduct, including dedication to the cause of good government. ICMA memhers believe in the effectiveness of representative democracy and the value of government services provided equitably to residents within a community. ICMA members also are committed to standards of honesty and integrity more vigorous than those required by the law. Contact ICMA for a copy of the Code of Ethics or go to hitp://icma.org/ethics.
Q: What is ICMA?
A: In 1914. a group of appointed managers formed a professional association, eventually known as the International City/County.Management Association (ICMA), to share their expertise and experiences in local governient management.
Since that time, ICMA has heen the professional and educational organization for administrators and assistant administrators scrving cities. towns, counties, other local governments, and regional entitics around the world. ICMA's membership also includes directors of state associations of local governments, other local government employees, academics, and concerned citizens who share the goal of improving local government.
The purpose of ICMA is to creale excellence in local governance by developing and fostering professional local government management worldwide. To that end, the Assoctation provides technical assistance and publications for local government. professionals to help them improve their skills and increase their knowledge. ICMA also serves as a clearinghouse for the collection, analysis, and dissemination of information and data ahout local government.
For further information on items refcrenced in this brochure, visit ICMA's form- •f-government Weh site at hup://icmaorg/lormolgovt or see the contact information listed on the back panel of this brochure.
Is there another organization that supports council-manager government? 1: Yes. the National Civic I cugue is a nonpartisan citizens organization founded in 1895. Its purpose is to serve as a clearinghouse for information on methods of improving state and local government; to encourage citizen participation in state and local government: and to provide guides, model charters, and laws on specific subjocts. The League's Model City Charter, now in its seventh edition, has endorsed council-manager government since 1915.
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CIT COUNTY ENCEALN SSDLLATLUN
UitMA.org
April 2003 • Volume 85 • Number 3
ICHA Home
COVER STORY
Current Issue Renewing the Model City Charter:
About PM
The Making of the Eighth Edition
Contact PM
Subscribe Christopher T. Gates and Robert Loper
Advertise
Editorial Guldelines The National Civic League (NCL) will publish the eighth Editorial Calendar edition of the Model City Charter in the spring of 2003. The Professional Services Directory
newly revised charter addresses critical issues confronting Issues Archive
local governments today and stresses the role of citizen participation in public life. The decision to update the charter evinces NCL's continuing dedication to its historic mission of fostering good government at the local level.
In 1899, the National Municipal League (as NCL was originally named) approved the first Model City Charter, which has been revised periodically to help citles and their citizens improve the structures and procedures of local government.
Revision of the model charter is not an automatic process. It is undertaken when a judgment is made, with the advice of experts in the field, that circumstances have so changed that the model must be updated to ensure that it continues to provide reliable guidance on the relationship between the structure of local government and its performance.
In fact, taken overall, the changes in the Model City Charter over the years present a history of reflection on how citles should be structured to best achieve the goals of efficiency, effectiveness, and equity. Although created under the auspices of NCL, the Model City Charter has from its inception been the result of the combined efforts of leading thinkers and practitioners in the area of municipal administration.
The Need for a City Charter
Before detailing the significant changes made in
this newest edition of the model charter, let's
consider charters and their Impact on government
performance. Some readers may find this topic
esoteric. Fortunately, though, in Martin Scorsese's
film "Gangs of New York," we have a wonderful
cinematic illustration of the turbulence of urban
governance in the mid-19th century and thus of
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the impetus tor the reform movement that sought
to ensure accountable and professional city government. To anyone who has seen this movie, we think it will come as no surprise that New York was the first home of the National Municipal League.
The events that Scorsese portrays occurred roughly in the middle third of the 19th century. The later history of New York politics, up to the founding of the National Municipal League in 1894, saw the consolidation of rule by political machine evident in nascent form in the film.
During this time, city government was weak and corrupt, and provision for public order was erratic. Volunteer fire companies routinely fought each other while fires burned, and looters took advantage of this disarray. Patronage, graft, bribery, and outright thuggery and violence were the order of the day.
Herbert Asbury, author of the book that inspired Scorsese (and gave him the title of his movie) reports that in 1855 gang leaders could draw on some 30,000 individuals. By rioting at polling places and stuffing ballot boxes, gangs doing the bidding of political bosses were instrumental in seizing and maintaining political power.
The fascinating and undeniably violent history of this period is too little known among us today. While any number of examples would illustrate our general point concerning the role of effective charters as means of improving city government, a vignette about the police force in New York City during this period merits mention here.
Corruption within the police force was so bad that in 1857 the state legislature abolished the municipal police force and appointed a metropolitan board to enforce the law in a district encompassing Manhattan, Brooklyn, Staten Island, and other places (this of course was before greater New York City. encompassing the five boroughs, was constituted). The mayor of New York, however, refused to disband the municipal force, and on June 16, rioting broke out between the Municipals and the Metropolitans, as the two police forces were known.
The feud continued throughout the summer, and according to Asbury. members of the rival forces interfered with one another's attempts to make arrests, letting the would-be prisoners go in the process. Aldermen and magistrates supportive of one side would remain in police stations controlled by the other so that they could release prisoners on their own recognizance.
This situation was clearly a far cry from today's professional and accountable administration of municipal affairs. These unruly conditions and the consequent corruption via political machines helped fuel the energies of the reform movement, which resulted in the forming of the National Municipal League and the development of the Model City Charter.
Although a city charter
by Itself cannot ensure
The Model City Charter has always
good government, a
well-designed charter been the result of the combined
can provide a structure
efforts of leading thinkers and
that reduces
opportunities for practitioners in the area of
corruption and
mismanagement while municipal administration.
reinforcing efficient and
responsible practices.
The model charter has long served as a guide for charter commissions, http://wwwt.icma.org/pm/8503/gales.hcm 8/28/2003
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I insagain rage a co
recommending particular arrangements and discussing the merits and potential problems of a range of options for configuring municipal government.
The commentary that forms part of the model charter not only helps clarify the charter's provisions but also draws attention to events and developments that might not warrant extended treatment in the charter itself but that nonetheless have an important influence on the problem-solving capacities of local government.
In the commentary sections of the new edition of the model charter, particular attention is paid to the Increasing salience of regionalism, new information technologies, improvements in performance measurement, citizen participation in public life, and the fostering of interaction among neighborhoods.
Changes in the Model City Charter
In an article entitled "Possible Approaches to the Model Charter Revision," which was written before the most recent revision was made, Jim Svara developed a useful typology for thinking about how and why charter reform might be undertaken. He identified four emphases that could guide model revision: innovation, advocacy, conservation, and adaptation. (The entire article is available on the NCL Web site at
http://www.ncl.org/npp/charter/articles/possible_approaches.html) Professor Svara, who was a senior adviser to the charter revision committee for the eighth edition, heads the department of political science and public administration at North Carolina State University. In his article, he pinpointed the approach taken by each of the past editions of the model charter to these four emphases. (For a fuller treatment of changes in the Model City Charter over time, see H. George Frederickson et al., "How American City Governments Have Changed: The Evolution of the Model City Charter," National Civic Review, Vol. 90, No. 1, pp. 3-18).
Svara went on to suggest that the new edition of the model charter should take into account the different needs of three types of potential users. The first type would be localities adopting a charter for the first time and needing basic information on government structures and performance. The second type would be a locality that might be looking to revise its existing charter to better address special circumstances it faced. Such local governments require a more sophisticated assessment of alternatives and tradeoffs among possible choices, Svara wrote.
And the third type of user would be a municipality interested in more encompassing processes of community governance than can be specified within the provisions of a city charter. This interest was, and is, of particular concern to NCl., and the eighth edition of the model charter is intended to contribute to this wider discourse on citizen participation and community governance.
City Council
Unsurprisingly, the preference for the council-manager form of government has been retained in the new edition of the model charter, although the discussion of the mayor-council form has been greatly expanded. The model does not advance a preferred method for electing the council but does stress anew the value of at-large elections. In keeping with the seventh edition, the eighth edition recognizes that the use of single-member districts remains popular for selecting councilmembers as a means of ensuring compliance with the Voting Rights Act, and the Benefits of the mixed form (combining at-large and single- member elections) are highlighted.
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ICMA Executive Director Bob O'Neill. They reinforced for all of us a deep appreclation of the difference made by inspirational leadership. It is with sadness and respect that the eighth edition of the Model City Charter is dedicated to the memory of Betty Jane, who passed away on December 9, 2001.
And finally, the process greatly benefited from the involvement of four senior advisers: Terrell Blodgett, William N. Cassella, Jr., Robert Kipp, and Jim Svara.
Terrell Blodgett is the Mike Hogg Professor Emeritus in Urban Management at the LBJ School of Public Affairs at the University of Texas and a former chairman of NCL, while William N. Cassella, Jr., is the former long-time executive director of NCL, and Robert Kipp is group vice president at Hallmark Cards and a former city manager of Kansas City, Missouri.
The expertise of these individuals and the range of experiences and perspectives that they brought to bear on revising the model charter make us confident that this edition of the Model City Charter not only updates best practices to keep the document current but also orients it to the future.
We wanted to modernize the charter and ensure its relevance to the new millennium, and we feel that we succeeded in doing so.
NCL, as the nation's oldest political reform organization promoting the cause of good government at the local level, will continue to update the model charter as changing circumstances warrant. This focus on understanding and supporting effective local government is a significant part of NCL's overall commitment to the goal of reinvigorating citizen democracy.
Whether through NCL's 53-year-old civic recognition program, the All-America City award, or the work it does on civic engagement and political reform, NCL is dedicated to the principle that all sectors of our society, the public, private, and nonprofit, must work together to address our common needs and build a thriving democracy. NCL recognizes that in the modern American community, local government not only provides services to the public but also contributes the leadership that allows new models of community governance to flourish.
Christopher T. Gates is president of the National Civic League, Denver, Colorado ([email protected]), and Robert Loper is editor, National Civic Review, National Civic League, Washington, D.C. ([email protected]).
Privacy Policy
(e) 2003 International City/County Management Association. Please notify us if you experience any problems.
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professional city government
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CHARTER REVIEW
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2 000195
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4 000197
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000198
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