Egvsys miamidade gov inmate search

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

Environmental management and employee development in Kent County, Delaware . . . 204

Succession planning in Westminster, Colorado. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 206

Criteria for prioritizing capital improvement projects in Mountain View, California . . . 213

Sustainable design in Austin, Texas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 214

GIS-based asset management in Saco, Maine . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 218

GIS maps showing drainage, Pierce County, Washington (Figure 9–1) . . . . . . . . . . . . . 219

Recycled water in small California cities (cites Calistoga, Ceres, Lodi, Los Banos, Palo Alto, Ridgecrest, Scotts Valley, Simi Valley, and Upland) . . . . . . . . . 227

Marketing a new trash collection system in Lynchburg, Virginia . . . . . . . . . . . . . . . . . 229

Recycling a landfill in Mountain View, California . . . . . . . . . . . . . . . . . . . . . . . . . . . . 231

Public Parks and Recreation

Creating small parks in Lakewood Township, New Jersey . . . . . . . . . . . . . . . . . . . . . . 236

Promoting public life in Stroud Township and Bucks County, Pennsylvania . . . . . . . . . 236

The Virginia Creeper Trail (involves the towns of Abington and Damascus) . . . . . . . . . 237

A sample public-private recreational contract: Stokes County, North Carolina . . . . . . . 240

School district recreation departments (cites Sheboygan, Wisconsin, and cities in South Orange County, California) . . . . . . . . . . . . . . . . . . . . . . . . . . . . 241

Promoting Leisure Activities for Youth (PLAY) in Virginia Beach, Virginia . . . . . . . . . . 242

Public input survey in Washoe County, Nevada . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 243

Adopt-A-Park in Elmhurst, Illinois . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 244

A multigenerational park in Lewisburg, Pennsylvania . . . . . . . . . . . . . . . . . . . . . . . . 249

Health and Human Services

Hire-A-Youth in Glendora, California . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 257

Residential alternatives for elderly citizens in Catawba County, North Carolina . . . . . . 258

Integrated approach to rehabilitation in Gaithersburg, Maryland . . . . . . . . . . . . . . . . . 259

Home rehabilitation loan program in Englewood, Colorado . . . . . . . . . . . . . . . . . . . . 260

Meeting transportation needs in James City County, Virginia . . . . . . . . . . . . . . . . . . . 261

Integrated service provision in West Hollywood, California . . . . . . . . . . . . . . . . . . . . 264

Environmental health problems in Nashua, New Hampshire . . . . . . . . . . . . . . . . . . . 265

Women’s Wellness and Maternity Center in Monroe County, Tennessee . . . . . . . . . . . 266

Keeping children active in Santa Monica, California . . . . . . . . . . . . . . . . . . . . . . . . . . 267

Living-wage ordinances in Sonoma, California, and Durham County, North Carolina . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 269

The Ben Gordon Center in DeKalb County, Illinois . . . . . . . . . . . . . . . . . . . . . . . . . . . 274

Coordinated human services in the schools in Catawba County, North Carolina . . . . . 275

Community-oriented policing project in Southern Pines, North Carolina . . . . . . . . . . . 277

Neighborhoods in Action in Orem, Utah . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 278

Reaching out to immigrant communities (mentions Santa Barbara, California) . . . . . . 279

Emergency Management

Emergency plans for businesses in Orlando, Florida . . . . . . . . . . . . . . . . . . . . . . . . . . 290

Disaster preparedness video in Arlington Heights, Illinois . . . . . . . . . . . . . . . . . . . . . 293

Community emergency response in Clearwater, Florida . . . . . . . . . . . . . . . . . . . . . . . 299

Animal evacuation plan in Apple Valley, California . . . . . . . . . . . . . . . . . . . . . . . . . . 300

Thunderstorm and tornado warnings in Edmond, Oklahoma . . . . . . . . . . . . . . . . . . . 301

Police Services

Community policing in Arlington County, Virginia . . . . . . . . . . . . . . . . . . . . . . . . . . . 320

Volunteers in the Billings, Montana, police department . . . . . . . . . . . . . . . . . . . . . . . 321

Interagency cooperation in Wisconsin (among Dodge, Jefferson, Kenosha, Racine, and Walworth Counties) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 326

The school resource officer in Oskaloosa, Iowa . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 328

A mutual aid pact for police in Massachusetts and Connecticut (among the towns of Brimfield, Holland, Sturbridge, Wales in Massachusetts and Union, Connecticut) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 334

Fire and Other Emergency Services

Sprinklers (mentions Scottsdale, Arizona, and Prince Georges County, Maryland) . . . . 343

Cooking with the Fire Department in Old Town, Maine . . . . . . . . . . . . . . . . . . . . . . . 345

A fire academy in Sugar Land, Texas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 353

Private sector fire protection in Scottsdale, Arizona . . . . . . . . . . . . . . . . . . . . . . . . . . 360

Interlocal cooperation in Illinois (among the villages of Flossmore, Hazel Crest, Homewood, Glenwood, and Matteson) . . . . . . . . . . . . . . . . . . . . . . . . 360

Senior fire volunteer program in San Marcos, California . . . . . . . . . . . . . . . . . . . . . . . 361

Working together in Mesa, Arizona . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 364

Service Delivery Alternatives

Public-private partnership in Santa Clarita, California . . . . . . . . . . . . . . . . . . . . . . . . 376

A public-private partnership for recreation in James City County, Virginia . . . . . . . . . . 376

Intergovernmental cooperation in Dowagiac, Michigan . . . . . . . . . . . . . . . . . . . . . . . 377

Competitive services policy in Arlington, Texas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 378

Living-wage requirement for contractors in Brookline, Massachusetts . . . . . . . . . . . . . 381

Mutual accountability in Charlotte, North Carolina . . . . . . . . . . . . . . . . . . . . . . . . . . 383

Criteria for public works contracts in Monmouth, Illinois . . . . . . . . . . . . . . . . . . . . . . 384

When local governments resume service production and delivery (cites Savannah, Georgia; Independence, Iowa; Fort Collins, Colorado; Charlotte, North Carolina; and Whittier, California) . . . . . . . . . . . . . . . . . . . . . . . . 385

A Manager’s Toolbox

Organizational goals in Scottsdale, Arizona . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 394

Alignment of organizational and programmatic goals in Saco, Maine (Figure 16–1) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 395

Performance measures for the Fairfax County [Virginia] Public Library (Figure 16–2) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 398

Performance measures for the building division, Newberg, Oregon (Figure 16–3) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 399

Communications department budget in Concord, North Carolina: Mission statement, past performance, goals, and objectives (Figure 16–4) . . . . . . . . 402

Communications department budget in Concord, North Carolina: Budget summary and performance summary (Figure 16–5) . . . . . . . . . . . . . . . . . . 403

Budget development calendar for Concord, North Carolina (Figure 16–6) . . . . . . . . . . 404

Winston-Salem and the North Carolina Benchmarking Project . . . . . . . . . . . . . . . . . . 405

Note: Unless otherwise noted, all populations shown in sidebars are July 2005 estimates from the U.S. Bureau of the Census.

Foreword

Managing Local Government Services is the third edition of ICMA’s popular Managing Small Cities and Counties: A Practical Guide, developed and ably guided through its first two editions by James M. Banovetz, professor emeritus, Northern Illinois University.

For the third edition, Carl W. Stenberg and Susan Lipman Austin of the School of Government at the University of North Carolina at Chapel Hill assembled a team of practi- tioners and academics to refocus and update the text in a number of areas. The first chap- ter, by way of introduction, places local government management firmly in the context of “governance”: the web of relationships that surrounds local program planning and service delivery. This chapter outlines demographic, economic, technological, and cultural trends that affect the management of service delivery.

A new chapter on alternative methods of service delivery addresses public-private options as well as intergovernmental service delivery approaches, and a new chapter on community development recognizes this increasingly important focus of management and service delivery. A new closing chapter presents the reader with “A Manager’s Toolbox,” five management practices that are fast becoming the standard for professional local government management. Other chapters cover the legal context in which cities and coun- ties operate, and the basic management functions and core services that were covered in earlier editions.

Why the name change? The short answer is that the volume you hold in your hand has been, for two decades, ICMA’s only text on the complete spectrum of services that the local government manager must make sure are provided. All local governments budget and plan, manage people to get work done, protect the health and safety of the commu- nity and its residents, promote economic growth, maintain the infrastructure, and work to uphold and improve the quality of life for all residents. The requirements for these basic services, defined and addressed in this book, are the same—although the level of demand may be higher in larger places.

Managing Local Government Services continues to highlight the problems and experi- ence of managers in small communities, because most local government managers serve in small cities and counties. Managers in many small cities and counties do not have the staff or the financial resources to introduce and maintain a full spectrum of sophisticated services. Many of these managers must personally see to everything from purchasing to tree removal. Many feel that change is more difficult in a small place. This book addresses the special concerns of local governments with limited resources and closes every chapter with a set of questions designed for managers of small communities.

With this revision, Managing Local Government Services also recognizes its relevance to local governmental units of all sizes and its function as the comprehensive text on the subject. Focused on services, this new text is a companion to The Effective Local Government Manager, which addresses the tasks and roles of the manager-leader.

As communities continue to evolve in a world that is growing smaller, more competi- tive, more informed, and more conscious of environmental uncertainty, Managing Local Government Services will be a touchstone for the aspiring as well as the experienced local government manager. ICMA is pleased to publish this practical guide to the core work of the profession.

Robert J. O’Neill Jr. Executive Director

ICMA

Foreword

Preface

This book has been written for local government professionals who lead and manage cities and counties and who are responsible for the efficient, effective, and equitable administration of services to citizens. It should be especially helpful to new or entry-level managers and those in smaller communities, to enable them to grasp the scope and com- plexity of local services and to appreciate the challenges and opportunities of governance.

A central theme of the book is that local managers operate in an increasingly complex environment, which involves building both a professional organization within their city or county and a capacity to engage with intergovernmental and intersectoral networks that are critical to successful problem-solving and service delivery. The knowledge, skills, and competencies needed to do so are wide-ranging, and call upon the manager to engage in organizational and community leadership.

The sixteen chapters have been organized to give the reader a broader and deeper perspective on the dynamic world of local government services. Our goal has been to produce a highly practical book that provides a “one-stop” overview of common organiza- tion, best practices, and challenging issues regarding management of core local services. Each chapter has been reviewed by a team of practitioners and academicians for accuracy, relevance, and state-of-the-art treatment.

A book like this involves contributions of many people. Susan Lipman Austin, project director at the University of North Carolina (UNC) at Chapel Hill Institute of Government, joined with me to co-edit this edition. She was particularly adept at managing communi- cations and paper flows between the editors, authors, and reviewers and keeping the pro- duction of chapters on track. Christine Ulrich, ICMA’s editorial director, provided valuable ideas and insights regarding topics, author selection, advisor recruitment, and substantive content. Jane Cotnoir, senior editor at ICMA, skillfully edited each of the chapters. We are indebted to the diverse team of authors who agreed to contribute their time and talent to the project. Finally, we would like to express our appreciation to Dean Michael Smith and our colleagues at the School of Government for their encouragement and support through- out this project.

We worked with an outstanding group of practitioner and academic advisors who read chapters from the second edition and suggested changes and additions in cover- age of topics, reviewed chapter outlines for the third edition for content and continuity, and commented on the preliminary and final drafts of the chapters. We are indebted to the following members of the advisory board for their help ensuring that the project goals were met: Mike Abels, city manager, DeLand, Florida; Arthur Anselene, director of

parks and recreation, Herndon, Virginia; Carol Bloodworth, city administrator (retired), Maize, Kansas; Frayda Bluestein, professor of public law and government, UNC–Chapel Hill; Barbara Blumenfield, regional vice president, ICMA Executive Board, and former city administrator of Oak Creek, Wisconsin; Jon Bormet, director, International Resource Cities Program; Octavio Chavez, resident advisor, ICMA-Mexico; Leon Churchill, manag- ing director, Reading, Pennsylvania; Carla Dicandia, recreation supervisor, Saddleback Valley Unified School District, Mission Viejo, California; Rex Facer, assistant professor of public management, Brigham Young University; Daniel Fitzpatrick, city manager, Peekskill, New York; Joyce Forbes, village clerk, Riverdale, Illinois; Candace Goode Vick, associate professor of parks, recreation, and tourism management, North Carolina State University; Charles Gossett, professor of political science, California State Polytechnic University; Rod Gould, city manager, Poway, California; John Granito, special advi- sor, Management Partners Inc., Cincinnati, Ohio; John M. Greiner, senior management and budget specialist, Montgomery County, Maryland; David Habecker, assistant fire chief, Flossmoor, Illinois; Harry Hayes, local government project director, University of Georgia; Mike Johnson, city administrator, Marshall, Minnesota; Wendy Kellogg, associ- ate professor of urban planning and environmental studies, Cleveland State University; Roger Kemp, author, consultant, and former manager of cities in California, New Jersey, and Connecticut; David Kilbane, village administrator, Round Lake Beach, Illinois; Kurt Kimball, city manager, Grand Rapids, Michigan; Greg Kuhn, senior associate, Northern Illinois University; Bob LaSala, city manager, Lancaster, California; Mark Levin, city administrator, Maryland Heights, Missouri; David Limardi, city manager, Highland Park, Illinois; J. Thomas McCarty, county administrator, Eau Claire County, Wisconsin; David McEntire, associate professor of emergency administration and planning, University of North Texas; Jonathan Q. Morgan, assistant professor of public administration and gov- ernment, UNC–Chapel Hill; William Nelson, city manager, Dowagiac, Michigan; Brian Nickerson, associate professor of public administration, Pace University; David Niklaus, adjunct faculty, Southern Maine Community College; William C. Rivenbark, associate professor of public administration and government, UNC–Chapel Hill; Bruce Romer, chief administrative officer, Montgomery County, Maryland; John Rukavina, director of public safety, Wake County, North Carolina; John W. Swain, professor of public administration, Governors State University; Dave Timmons, city manager, Port Townsend, Washington; Victor Vasquez, assistant city manager, Grand Rapids, Michigan; Kenneth Vittum, town manager, Pearisburg, Virginia; and Gail Weniger, township manager, Warwick, Pennsylvania.

James M. Banovetz, editor of the first two editions, dedicated the book to local govern- ment leaders, who must anticipate and adapt to the challenge of change; develop goals and objectives for their communities; and manage the programs and services to achieve their vision. We too salute these leaders, to whom Americans have entrusted the quality of life in their communities, and dedicate the third edition to them.

Carl W. Stenberg Chapel Hill, North Carolina

Preface

1 Meeting the Challenge of Change Carl W. Stenberg

How cities and counties can adapt to the new economy and the information age is a key topic of debate among government reformers, public offi cials, civic groups, and students of local government. Increasingly, boundaries between local governments are blurring, responsibilities for service delivery are being shared, and partnerships and col- laborative approaches across jurisdictions and sectors are becoming common. Citizens expect local governments to be entrepreneurial and equitable, as well as effi cient and effective. And professional local government managers fi nd themselves working as com- munity leaders and change agents.

It wasn’t always this way. Historically, cities and counties were responsible for basic services to support their communities, such as public safety, libraries, public utilities, public works, and cemeteries. Counties acted as arms of state government in unincorpo- rated areas, and townships served citizens in rural areas in twenty states. Public education was provided by school districts, which were usually separate from general-purpose local governments. In most cases, these functions were predominantly or exclusively local, in the sense that their performance entailed little or no collaboration with other local juris- dictions or units, receipt of external funds, or regulation by state and federal authorities.