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Show DESERET itlll December NEWS, Fridoy, 12, 196? A 23 R Modernization Plan: Consolidate S.L. City, County 11:1 c. as Ey JOSEPH LUXDSTPjOM Kens Staff Writer nd or nd Be those on (1) majority of the governing body of the municipality, or (2), petitioning by 10 percent of the registered voters in the fcy of Salt Lake County governments. The proposals are based on the need for area-wid- e functions service of local govern-e a t. Eighteen such services are recommended by The study. They include planning, police, refuse disposal, flood control, sewage treatment and disposal, building inspec-:- : bon .x.d code enforcement, air and water pollution control, traffic engineering, and elections. ' The recommer. ,ed area-wid- e govern- on pty and Ldt ild ry he 40 la- - municipality. The community council would Jbe required to give approval for the annexaccunciL tion, as would the All special taxing units, other than school districts and special assessment districts such as street lighting would be absorbed Into the city and city-coun- m la- - in ;ht w- rs re- - lat ini mg lat county government. The government city-coun- ty to to di city-coun- ty me city-coun- ty tah ion tial per iei eir tse ers T. ?nt Jni- - of community boundaries. (Presumably, the 1970 census figures would be used in determining the 20 communities. In 19S0, redistricting could be based on the census of that year, if needed.) Community council members would be elected from among members of municipal governing bodies within the community and from atr.org residents of fie aieas of the community. Community councils would be authorized to determine the kinds and levels of local services to be performed by the y government, and to determine the method of financing such seriJ city-count- liquidated. council would be comThe posed of community council representatives and members of the state legislature ex officio. One member would be elected to the council from each community coundL Voting council memoers would have overlapping terms. State senators and representatives whose legislative districts lie partly or Wholly within the city and county of Salt Lake would be members without voting rights. No stated compensation for voting council is members of the recommended, but allowances should be given for each meeting attended. The proposed consolidation provides few more than one level of local government service to accommodate rural and city-coun- ty city-count- y six-yea- r, Formation o! additional municipalities or independent special taxing units would be prohibited under the consolidation proposal. The city and county would be divided into some 20 representation communities of approximately 20,000 population each, beaded by locally-electecommunity councils. Such community councils would adhere to file recent UJS. Supreme Court d and rulings on follow city-coun- solidation proposd took the form it was given. These are: 1 The plan conforms to standards suggested by Qualified and experienced persons. 2 The plan fits standards designed for Utah. 3 The plan builds on local governments already in existence and on the corps of officials and employes who man these local governments. 4 The plan seeks to bring government close to the people b breaking big counciL government into small enough communifor The proposal provides safeguards ties to give representation and a voice to for professional administration of the in- ell the people. At the same time, it takes y ternal affairs of the governadvantage of modern professional adminment Department heads would be istration and the economies and efficiencies of large-scal- e appointed by the mayor from lists recoperations for the ommended by the chief administrative benefit of all the people. officer, and removable by the mayor, officials 5 Having locally-electe.subject to confirmation of appointment of the area-wid- e as serve also members or removal by a majority of the full council avoids council policy making membership of the the friction that often arises between two ihis feature cf the preynsat W con'' cf government. solidation is unique, according to LeRoy 6 The plan meets the requirements Harlow, director of the Modernization rule. of the Study. It is found in no other consolida7 The plan strengthens the principle tion plan yet effected in the United of checks and balances, and builds in asStates. surances that the advantages of profesThe chief administrative officer, under the direction of the mayor, would sional administration will continue to benefit the pubfic regardless of the have supervision of the heads of departpoliti-ciaments, offices, etc., under the mayor. uncertain courses that politics and may take. But department heads would have the 8 Although the plan offers the advanright to appeal to the mayor the decisions of the chief administrative officer. tages of trained, fulltime professional administration of the Harlow listed 10 reasons why the con operations urban residents, and special district requirements. Provision would be made for local governments to contract with one another. Tl proposal calls for a mayor chief administrative officer to head the government He would be elected r term to serve as at large for a the chief executive. A chief administrative officer would be appointed and removed by the major, subject to approval of either action by s vote of full membership of the ty four-yea- two-third- city-count- city-count- d y dty-count- y I"-'1- day-toda- y or tion. rOV- - transportare- lations, planning, and related activi-itie- s necessary in support of thee ved tax functions. , - Recomme of nds nda-tion-s achieve these areas are made in report three of the Local Government Modernization Study. The report outlines the internal organization of the proposed government fa the following terms: In ,, results ih's irne to ing, he, ited dty-count- y lie Duties of the Gty-Coun- ty Council:, The council would be the legislative body for the s government, with power by a vote to over-rid- e the mayors veto of ... g policy-makin- dty-coun- ty two-third- e is n. ork ime The council would adopt the annual e and budgets for the government. The would confirm the council appointments and removal of the chief administrative officer, and all department heads, boards and commissions appointed by the mayor. The counril would approve, modify, or disapprove polities and plans for local services proposed by community coun- ing. ves ngs long-rang- uni-- OX ssn. ider city-coun- ty dty-count- y to nie the dty-coun- ty cils. tity-coan- ty dty-count- two-third- e dty-count- y dty-count- multi-memb- er quasi-judicia- dty-count- long-rang- long-rang- j city-count- long-rang- The council would approve or disapprove annexation of municipalities to the government. dty-count- y The council would perform such other g functions as are approprig ate to the body of a mody em government ion, d in the policy-malrin- policy-makin- dty-count- The Duties of the Mayor: Mr. ided . He would serve as the chief executive y ef tiie government with ro the dty-count- mt's his iplv Local Financing liar, ioes Of Urban Needs Report number five, GuideUnes For Financing Utahs Urban Local Governments, makes suggestions to local governments within Salt Lake County for the use of much of the economic data compiled by the Modernization Study staff. The staff urges that past, present, and future financial situations of individ-men- t pt not live in is lily, his ace, j:y ?xas units be analyzed. Alternative revenue policies should be weighed on the basis of objective findings, rather than on emotional appeal nd subjective judgements. Local government financing polities should be related to local community problems. The focus from arbitrary opin-- I ions to single revenue and expenditure figures should be shifted to consideration of ratios, ranges, and trends. day. will for mch ably y of tters iver- - ia.'e ito a j 1 I By way of suggestions for possible im-- f provements in local government financ- ing. the committee report urges restrictions on local control of financing bp re--1 laxed; that financial policies help accom-- l plish community objectives; that greater f use of user service charges, based on cost accounting, be considered. The staff report recommends the ' 10US ting. LTr j. n How much local government Is needed fa Utahs urban communities? sponsibility to appoint and remove the chief administrative officer and all department heads, boards, and commissioners, subject to approval by the council of all such actions. annual and He would recommend coune budgets for cil action. He w ould exercise direction and control of all departments of the government, dealing with departments on administrative matters through the chief administrative officer. He would have veto power over legislation passed by the council, veto power over dty counand line-itey ty budgets, adopted by the LeRoy Harlow, left, discusses efficiency programs with Salt Lake City Commissioner E. J. Garn, during council, subject to the coundla power to s over-ridvet os by a majority advisory committee meetings of the Local Government Modernization Study. of its full membership. Duties of the chief administrative offi- and cooperative relations with other be responsible for potice, fire, traffic en- systems, and gas and electric power, If cer: units of government at all levels. gineering, weights and measures, and any. under the general direction of the defense. rivil 9 Transportation Report three of the proposed recomdepartment: mayor, he would supervise all departmoderniz5 Human development department: would have supervision of the airports mendations for and improving ments within the executive branch of the government, with decisions ing local government also indudes a would have responsibility for health and and mass transit districts. recreation social ser10 Boards, commissions, and special subject to appeal by department heads to breakdown of various departments hospitals, libraries, y vices, faduding counseling, economic opauthorities: with few exceptions, the the mayor whose decisions should be that should be induded in the government and a brief description of the portunities, and model dties. final boards, commissions, and (This would be a new department, spedal authorities would serve fa quasiThe chief administrative officer would work they would do. These are: l, one legislative, and advisory under the staffs recommendations 1 Planning department and planning y counattend meetings of the cil and provide the council with informaadvisory commission: should engage in that does not now exist fa such form fa ca parities, rather than as administrative e either the dty or the county.) research and community agendes. tion and advice as requested; he would e 6 Community The advantages cf the proposed orgadevelopment departbudget planning, be responsible for major adprepare annual and ministrative research and planning, and ment: would be responsible for area eco- nization, poin out LeRoy Harlow, study proposals on behalf of the mayor. nomic promotion and development, the director, would be: He would Initiate or review and rec- correlating economic, social, and governBalance would be provided between ommend all proposals for transfers of mental efforts for the benefit of the tivic auditorium, zoning, subdivision regentire community. code the executive office of the mayor and the ulations, building inspections, personnel, facilities, and equipment for 2 Finance department: enforcement, water and air pollution conresponsible council; staff and line units changes in operating procedures and in trol, land acquisition, real property manfor and e would be identified and distinguished the annual and assessing, collection, custody, budgets, and agement and redevelopment. revenues, for reorganizations within and among the disbursement of all from each other, and functions would be and 7 Public works department: duties grouped on a logical basis consistent functions, of accounting the controllership executive departments centralized purchasing, central services, would indude streets and highways, with purpose and. where appropriate, government. and licensing. flood control, refuse collection and disoperational methods. He would install and maintain modem 3 Law department: this department posal, parks, cemeteries, mosquito abateIn addition, there is the advantage of budgeting and accounting systems based would be staffed by fulltime, carter atment, facilities maintenance, vehicle a manageable span of control, the chief on performance and on detailed unit remaintenance, and engineering services. executive is provided with essential staff torneys who would represent the cording costing of operations. in all litigation, and serve as He would conduct continuing studies 8 Utilities department: would manassistance, and boards, to reduce the unit costs and Increase the legal counsel to all departments of the age and operate, except for revenue col- commissions, etc., are used as consuly government lection, the water system, interceptor tants and advisors, not as administrative government efficiency of would 4 liaison he maintain Public safety department: would sanitary sewers and water reclamation agendes. operations; long-rang- of ge-- city-count- y In Urban Areas? city-coun- ty works, mlt of city-coun- How The Council Would Function city-coun- ty irp- rti- - city-coun- ty Are Needed The work required of a modem government Includes public safety. human development, community depublic velopment, u ti1 ldi- - mate responsibility and authority for execution of policies. Thus, the professional urban specialist is on tap, but not on top. 9 The plan is designed to bridge the gaps in understanding and concern between the local urban government wh:ch have tlie problems and state government which has the power to da something about them. 10 The plan would reduce and eventually ehminate double taxation. Of particular interest to the study staff was that 13 variations or alternative types of local government reviconsolidation was fasion, citizens advored more by the than other commitee form. any visory That favorable approval was reached by the citizens group independently after study of the 13 alternatives. funcThe full list of the lb area-wid- e tions which the government would supervise are: regPlanning, zoning arid ulation; economic promotion and development; police and jail services; civil defense; health and hospital services; refuse disposal; water supply and distribution; flood control; interceptor sanitary sewers; sewage treatment and disposal; building inspection code enforcement; transportation, including mas transit, airports, and arterial highways. Also air and water pollution control; parks; traffic engineering; assessing, and elections. What Services iey two cf the government, it leaves with the peoples elected chief executive the ulti- INTERNAL ORGANIZATION Idi- - nd would city-count- y city-count- y census tract boundaries in deternnmrg vices. maintain or create special service areas to provide flexibility cf service levels. Facilities, personnel, and operations would be transferred to the government; all Indebtedness would continue against the ' debted territory until ment organization proposes a consolida-e- d government for the Salt Lake area. The government would have powers now held by Salt Lake City and Salt Lake County. The government would funchave authority to assume area-wid- e tions throughout the county, both within and without the incorporated areas. Existing municipalities other than Salt Lake City would be exempt from the nd ho i city-count- y most exciting of the of the Local Government Study which was released IDesere rn consolidation. However, municipalities would have the privilege of annexing to the new government if they desired. Annexation action would be initiated practice cf land tanking the acquiring of land years before it will be needed to void inflation costs. city-count- y city-count- y dty-coun- ty multi-memb- dty-count- dty-count- y Managing For Efficiency, Economy Recommendations in six management areas are made by the Modernization of Local Government Study staff. Staff members stress that most of these recommendations do not require far reaching formal action such as to legislation achieve, but can be put into effect now. Most of these recommendations can be effected im- emphamediately, sized LeRoy Harlow, study director. But whether they will be, is another matter. It is really a matter of public desire that they be put Into practice. If the citizens demand that effiriency and economy be a part of their local government, they will be, he said. attitude If the pubfic has a about the whole thing, then it is oossible that not much will be done. ho-hu- The six areas in which recommendations are made are: Top Management management responsibilities; personnel management; budgeting and accounting; work methods and measurements; public information and communications; and advanced technology. Top Taking these areas one by one, the recommendations are: Greater use of the planning organization as a staff arm to top management needs to be made; community data centers fa planning departments to provide for coordination and exchange of data need to be estabBshed; planning, zoning, subdivision designing, and building code powers to local governments need to be granted; mandatory referral of certain items to the planning departments needs to be required. organizational principles to meet services need to be formally analyzed at least every three to four years, if not oftener. Proven methods of effective direction Instruction, facilitation, commanding, coordinating, motivating and controlling need to be adopted; a management audit every four years Is recommended. extra-territori- al Personnel Management Organization and operations of personnel systems need to be modernized by adopting similar policies, rules, regulations, including common position classification descriptions and codes; work should be coordinated to eliminate duplication of efforts; personnel information should be exchanged when it will reduce costs and improve personnel administration; cooperation with state, federal, a ad private personnel agendes should be encouraged. Personnel agencies should be recognized as units to facilitate governmental operations through stafE support rather than as regulatory agencies. Comprehensive manuals for information and guidance of officials, employes and citizens should be acquired and distributed, and administrative procedures and records control of that provide business-lik-e appointments, payrolls, employe benefits, and terminations should be adopted. A comprehensive compensation program suited to an age of specialization, including wages and fringe benefits. Is Total compensation recommended. of local government employes should be kept abreast of the competition for qualified manpower, urges the staff report. Bodgeting and Accounting: The committee staff recommends adoption of a modern performance budget system, and the exercising of budgetary control through fiscal control of contingency reserves, allotments, encum- brances, and revenue and expenditure reports. Also recommended are the adoption of five- - and program and capital budgets; and enforcement of a uniform budgeting and accounting system for local governments throughout the state. (This lattpr item will likely require slate six-ye- legislation). Work Methods and Measurements Work simplification by improving oft and work flow fice and shop should be Introduced; work distribution and work processes need to be more thoroughly analyzed, and work counts need to be utilized. lay-ou- offered are needed. The conclusions are reported by the study staff and in are general with agieement the special citizens advisory committee. The committee met earlier this year and reviewed more than 90 services presently being offered fa Salt Lake County by the county government and local incorporated units. These services range everywhere from agriculture information and guidfrom a to z. ance to zoning Chief among the services are, of course, flood control, health services, public safety, such as fire and police protection, legal services, licensing, parks, planning, streets and highways, traffic control, voting and welfare assistance. Other services include licensing and sheltering of animals, auditing, airport construction, maintenance and operation, perpetual care of cemetery lots, standardization and control of weights and measures devices, operation of the Salt Palace, area industrial promotion, purification of watei, mosquito abatement, enforcement of construction codes, and extended care services. Members of the advisory group differed individually as to the degree of each service, and to the methods fa which some services were being given. The majority, however, felt that most services should be continued. All favored improving the effidency fa the administrative application of each service. Data for the services being offered as collected and researched fa 23 communities or sub areas fa Salt Lake County. studies to improve work areas, change work areas that will conserve energy, and personal effidency should be considered. Public Information and Communications Nine recommendations for improvement in local government are made in this area and include: Maintaining dy are that most services now being w Work measurements, such as standard times and production standards should be adopted, and motion economy a Conclusions of the Local Government Modernization Stu- Social data collected included population and age groups, area, land use and density, housing, education, welfare, health. Economic data Induded Informaabout income unemployment tion payments, and assessed valuation reports. Government data induded information on voting, police, fire, revenues, and expenditures. 129 Citizens Acted comprehensive program of pubfic information and communications; holding official meetings at different locations and at different times of the day; establishing service desks at local government headquarters to receive, route, and follow-uon rilizen service requests; extend employe training to include pubfic information and courtsey. one-sto- p p Advanced Technology A high level administrative employe should be assigned the responsibility of monitoring professional publications for suggestions on modernizing local government He should be given the authority and the budget to install and cost out pilot projects cf the most promising suggestions. Before computerizing local government operations is undertaken, more thorough feasibility studies are needed. A branch library devoted to general public administration, urban affairs, and community data should be established. As Advisory Panel Because any study calling for recommendations on revision of dty and coun- ty government has such Implications, officials of the Modernization Study sought the opinions of local citizens. A citizens advisory committee was organized to provide maximum citizens and official input into the study. The group did not assume responsibility for the work of the study nor the recommendations. But members were asked to join fa thinking through the issues and alternatives, and in providing solid infoimatkm and feedback to assist the staff in reaching its ultimate conclusions. gtc-- f t |