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ICMA is the premier local government leadership and management organization. Its mission is to create excellence in local governance by developing and advocating profes- sional management of local government worldwide. ICMA provides member support; publications, data, and information; peer and results-oriented assistance; and training and professional development to more than 8,200 city, town, and county experts and other individuals throughout the world.

Established in 1931, the Institute of Government provides training, advisory, and research services to public officials and others interested in the operation of state and local govern- ment in North Carolina. The Institute and the university’s Master of Public Administration Program are the core activities of the School of Government at The University of North Carolina at Chapel Hill. For more information about the School, the Institute, and the MPA program, visit the Web site (www.sog.unc.edu) or call 919-966-5381.

Library of Congress Cataloging-in-Publication Data

Managing local government services : a practical guide / edited by Carl W. Stenberg and Susan Lipman Austin.

p. cm. “A completely revised and updated version of Managing small cities and counties.” Includes bibliographical references and index. ISBN-13: 978-0-87325-709-5 (alk. paper) ISBN-10: 0-87326-709-5 (alk. paper)

1. Municipal services—United States—Management. I. Stenberg, Carl W. II. Austin, Susan Lipman. III. International City/County Management Association. IV. Managing small cities and counties.

HD4605.M25 2007 363.6068--dc22

2006039422

Copyright © 2007 by the International City/County Management Association, 777 North Capitol Street, N.E., Suite 500, Washington, D.C. 20002. All rights reserved, including rights of reproduction and use in any form or by any means, including the making of copies by any photographic process, or by any electrical or mechanical device, printed, written, or oral or recording for sound or visual reproduction, or for use in any knowledge or retrieval system or device, unless permission in writing is obtained from the copyright proprietor.

Design: Charles E. Mountain

Printed in the United States of America

2013 2012 2011 2010 2009 2008 2007

5 4 3 2

Contents

Foreword . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .ix

Preface . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .xi

Chapter 1 Meeting the Challenge of Change / Carl W. Stenberg . . . . . . . . . . . . . . . . 1

Chapter 2 The Legal Foundations of Local Government / David R. Berman . . . . . . 29

Chapter 3 The Clerk / Drew A. Dolan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49

Chapter 4 Budgeting and Financial Management / John W. Swain . . . . . . . . . . . . . 67

Chapter 5 Human Resource Management / Gregory Streib and David W. Pitts . . . . . 95

Chapter 6 Planning / Stuart Meck . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 129

Chapter 7 Economic Development / Donald T. Iannone. . . . . . . . . . . . . . . . . . . . 157

Chapter 8 Community Development and Affordable Housing / Anita R. Brown-Graham and Jonathan Q. Morgan . . . . . . . . . . . . . . . . 181

Chapter 9 Public Works / Cathy R. Lazarus . . . . . . . . . . . . . . . . . . . . . . . . . . . . 201

Chapter 10 Public Parks and Recreation / Candace Goode Vick . . . . . . . . . . . . . . . 235

Chapter 11 Health and Human Services / Abraham David Benavides . . . . . . . . . . 253

Chapter 12 Emergency Management / Bob Hart . . . . . . . . . . . . . . . . . . . . . . . . . . 285

Chapter 13 Police Services / Gary Cordner . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 313

Chapter 14 Fire and Other Emergency Services / John W. Swain . . . . . . . . . . . . . . 341

Chapter 15 Service Delivery Alternatives / Gordon P. Whitaker . . . . . . . . . . . . . . . 369

Chapter 16 A Manager’s Toolbox / William C. Rivenbark . . . . . . . . . . . . . . . . . . . 391

For Further Reference . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 413

About the Authors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 431

Index . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 437

Supplementary Material Online . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 455

Meeting the Challenge of Change

Volunteers teach community preparedness in Westminster, Colorado . . . . . . . . . . . . . . . 4

Technology brings information to citizens in Lucas County, Ohio . . . . . . . . . . . . . . . . . 13

Working across boundaries in Englewood, Colorado . . . . . . . . . . . . . . . . . . . . . . . . . . 17

Communities cooperate to handle household hazardous waste in Lewiston, Maine . . . . 19

The Clerk

The office of the clerk in Bisbee, Arizona . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51

Technological efficiency in Lexena, Kansas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 52

Managing records in Great Falls, Montana . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 54

Voter information on the Web in Wasilla, Alaska . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 56

License and permit information on the Web in Wauwatosa, Wisconsin . . . . . . . . . . . . . 58

The city clerk’s office on the Web in O’Fallon, Illinois . . . . . . . . . . . . . . . . . . . . . . . . . 59

Budgeting and Financial Management

Budget schedule, Pinecrest, Florida (Figure 4–2) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 69

Property tax bill for a single-family house in El Portal, Florida, 2005 (Figure 4–3) . . . . . 71

Period report for revenues and expenditures, McCall, Idaho (Figure 4–4) . . . . . . . . . . . 80

Point-in-time report of balances, McCall, Idaho (Figure 4–5) . . . . . . . . . . . . . . . . . . . . 81

Selected entries from the table of contents of a comprehensive annual financial report, St. George, Utah (Figure 4–6) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 87

Explaining city expenditures to citizens of Wilmington, North Carolina (Figure 4–7) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 88

St. George, Utah: Statement of Net Assets for the year ended June 30, 2004 (Figure 4–8) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 90

St. George, Utah: Statement of Activities for the year ended June 30, 2004 (Figure 4–9) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 91

Human Resource Management

Friends and neighbors referral program in Springfield, Missouri . . . . . . . . . . . . . . . . . 100

Better recruitment through technology in Medford, Oregon . . . . . . . . . . . . . . . . . . . . .101

A nontraditional approach to recruitment in Henrico County, Virginia . . . . . . . . . . . . 102

Pay for performance in a union setting in Hamilton County, Ohio . . . . . . . . . . . . . . . . .111

Pay for performance in Wells, Maine . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .112

Employee wellness in Boulder, Colorado . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .113

The Employee Health Connection in Catawba County, North Carolina . . . . . . . . . . . . .113

Developing an effective workforce in Wellington, Florida . . . . . . . . . . . . . . . . . . . . . . .119

Media training class in Stafford County, Virginia . . . . . . . . . . . . . . . . . . . . . . . . . . . . .119

Open communication in Champaign, Illinois . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 121

Telecommuting to fight pollution in Austin, Texas . . . . . . . . . . . . . . . . . . . . . . . . . . . 122

Sharing sick leave in Tumwater, Washington . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 123

Planning

Planning in action in Denton, Texas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 131

Lakewood, Colorado, reaches out to the Hispanic community . . . . . . . . . . . . . . . . . . 132

Pottawattamie County, Iowa, surveys residents on land use . . . . . . . . . . . . . . . . . . . . 136

A future land use map from a comprehensive plan for Delaware, Ohio (Figure 6–2) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 142

Excerpt from a zoning map for Oxford, Ohio (Figure 6–3) . . . . . . . . . . . . . . . . . . . . . 143

Code reform in Milwaukee, Wisconsin . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 146

Cooperative Web site in Washington State (among Bellevue, Bothell, Issaquah, Kenmore, Kirkland, Mercer Island, Sammamish, and Snoqualmie and Snohomish County) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 150

Smart growth for schools in Littleton, New Hampshire . . . . . . . . . . . . . . . . . . . . . . . . 151

Economic Development

Partnerships . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 160

The Fort Wayne–Allen County Economic Development Alliance

The Chain of Lakes Downtown Economic Enhancement Study in Michigan (includes the villages of Bellaire, Central Lake, and Ellsworth and the city of East Jordan)

The Southwest California Economic Alliance (among the cities of Lake Elsinore, Murrieta, and Temecula and Riverside County)

Economic development and the arts (discusses Santa Fe, New Mexico; Laguna Beach, California; Sedona, Arizona; Boulder, Colorado; and Paducah, Kentucky) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 161

Connecting downtown to the office parks in El Segundo, California . . . . . . . . . . . . . . 164

Scenario planning (cites Mooresville, North Carolina, and Charlottesville, Virginia) . . . 168

Supporting small manufacturers in Grants Pass, Oregon . . . . . . . . . . . . . . . . . . . . . . . 175

Community Development and Affordable Housing

New Choices Workforce Development Program in North Carolina (involves Halifax, Hertford, Northampton, Gates and Bertie Counties) . . . . . . . . . . . 185

Brownfields redevelopment (in Bridgeport, Connecticut; Clearwater, Florida, and Fayetteville, North Carolina) . . . . . . . . . . . . . . . . . . . . . . . 188

Green infrastructure planning in Kinston–Lenoir County, North Carolina . . . . . . . . . . 189

Affordable housing in Highland Park, Illinois . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 196

Public Works