City of Portage la Prairie

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					Elected Officials Handbook                                                                                        October, 2010




Contents
Introduction ................................................................................................... 3
   Overview of Municipal Government .............................................................................. 3
   Purpose of Municipal Government ................................................................................. 4
   Organizational Structure ................................................................................................. 4
Strategic Direction ........................................................................................ 6
   Corporate Values ............................................................................................................ 6
   Mission Statement........................................................................................................... 7
   Strategic Planning and Budgeting ................................................................................... 7
Role Statements ............................................................................................. 8
   Role of Council ............................................................................................................... 8
   Representative Role ........................................................................................................ 8
   Administrative Role ........................................................................................................ 9
   Managerial Role .............................................................................................................. 9
   Role of the Mayor ........................................................................................................... 9
   Role of the City Manager (Chief Administrative Officer)............................................ 10
   Role of Department Heads ............................................................................................ 11
   Council/Staff Team ....................................................................................................... 11
   Policy – Administration Dichotomy ............................................................................. 12
Legislative Structure and Organization ................................................... 13
   Council Meeting Dates and Times ................................................................................ 13
   Standing Committees – Procedural Guidelines ............................................................ 13
   Open vs. Closed Meetings ............................................................................................ 13
   Protocol ......................................................................................................................... 14
   Council Remuneration .................................................................................................. 16
   Council Travel .............................................................................................................. 16
Administrative Structure ........................................................................... 18
   The Council-Manager Plan ........................................................................................... 18
   Management Committee ............................................................................................... 18
   Department Profiles ...................................................................................................... 19
   City Manager-Functions List ........................................................................................ 20
   Department of Finance - Functions List ....................................................................... 21
   Economic Development-Functions List ....................................................................... 22
   Economic Development ................................................................................................ 22
   Department of Operations - Functions List .................................................................. 23
   Department of Public Safety-Functions List................................................................. 24
   Organizational Chart ..................................................................................................... 25
Communication Process ............................................................................. 27
   How the Day-To-Day Issues are administered ............................................................. 27
   Pass the Issue to Administration ................................................................................... 27
   Bring it to Committee ................................................................................................... 27
   Bring it to Council ........................................................................................................ 27
   Policy Development ...................................................................................................... 27

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Current Issues ............................................................................................. 29
   Budgeting/Financial Position ........................................................................................ 29
   Strategic Planning ......................................................................................................... 29
   Nutrient Removal .......................................................................................................... 29
   PCU Centre ................................................................................................................... 29
Policies .......................................................................................................... 30
Council Conflict of Interest and Ethics .................................................... 31
   Council Conflict of Interest .......................................................................................... 31
   Council Ethics ............................................................................................................... 31
Information on Dealing with the Media ................................................... 32
Organization and Procedure By-law ........................................................ 33
City Manager By-law.................................................................................. 34




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                       City of Portage la Prairie
                      Elected Officials Handbook

Introduction
Overview of Municipal Government
       The City of Portage la Prairie is a Municipal Corporation officially chartered
       under an Act of the Province of Manitoba. As a creation of the Province, the City
       relies on Provincial Legislation to provide the authority necessary for it to fulfill
       it’s mandate of providing services to citizens within its corporate boundaries.

       The text which follows outlines further the mandate of the City, portrays the
       political and administrative systems currently in place and the process for
       decision-making.

       George Cuff is a well known municipal management consultant and speaker who
       as a past Mayor, past municipal department head and past President of the
       Federation of Canadian Municipalities has a great deal of experience in Canadian
       municipal government. In his book Cuff’s Guide for Municipal Leaders he lists
       the 10 principles that are essential for a sound governance system:
      1. Clear mandate
           ◦ Council responsible for the direction, actions and outcomes of the
               municipality’s business
      2. Clear authority
           ◦ Define who is responsible for what
                    Hire and fire
                    Power to delegate
                    Expenditure approval and to what level
                    Authorities of committees
      3. Public accountability and responsiveness
           ◦ Decisions must be based on best interests of the public
           ◦ Advise public of decisions made
           ◦ Access by the public to Council
      4. Clear sense of purpose
           ◦ Mandates, goals, objectives and strategies
           ◦ Ensure public input
      5. Full disclosure
           ◦ Full and complete reporting by administration to Council
      6. Sense of integration
           ◦ CAO needs to ensure coherence within departments
      7. Council/CAO sound relationship
           ◦ Openness, trust, respect, confidence, caring
      8. Independence of Council
           ◦ Act of governing is Council’s
                    Must have independence to do its job
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    9. Orientation and succession planning
         ◦ Both required to ensure a sound governance-administrative system
    10. Ongoing performance assessment
         ◦ Annual report card for Council

      The Province of Manitoba and past City Councils have put in place a
      legislative framework of Provincial Acts and City BY-laws, resolutions and
      policies that establish how the City is governed and operates. City staff have
      established various processes and procedures to provide services and to
      operate the City within this legislative framework.

Purpose of Municipal Government
      Municipal Governments have basically two reasons for existence:
         To complete those tasks assigned to them by Provincial Government, and
         To provide those services required by the residents who pay for its
            existence.

      The City of Portage la Prairie’s Mission Statement further expands on the City’s
      purpose as follows:
      “The Mission of the Council of the City of Portage la Prairie is to facilitate or
      provide quality services to enable the community to enhance its living
      environment through an accountable, accessible and equitable process of
      civic government.

      The Province of Manitoba has provided enabling legislation in the Municipal Act,
      the Planning Act, the Labour Relations Act, the Employment Standards Act, the
      Highway Traffic Act, the Emergency Measures Act, etc. that provide the rules for
      the operation of the City.

Organizational Structure
      In 1988 the City of Portage la Prairie determined that it would be beneficial to
      move the organization to a Council-Manager form of government. To be
      effective, there are some simple premises, which must be established to provide
      good government to constituents:
      a)      Clear identification of roles
      b)      An efficient and effective organizational structure
      c)      An established and well understood communication system to promote
              decision making
      d)      A clear description of the Mission, Values and Goals of the organization
              so that all parts are working together.

      Various parts of this Management System have been initiated at different points
      since the Council-Manager-Plan was implemented. The Structure was changed
      dramatically in 1989 and again in 1994, 1998 and 2007. The Communication
      process was initiated in 1990 and an effective process for reviewing Values,
      Mission and Goals and Objectives was implemented in 1993 and a formal

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      communication process was adopted in 2010. In 1998, a policy to formalize the
      City’s Strategic Planning and budgeting process was approved by Council.

      The City of Portage la Prairie has determined a need to employ personnel to
      carry out the needs of the citizens as perceived by Council and they have
      created an organizational structure to achieve the agreed upon goals and
      level of service.

      In addition, Council has recognized that to operate effectively, the activities of
      these employees should be broken into functional departments. To administer the
      activities of these departments who are cooperating to accomplish common goals,
      Council has chosen to adopt the Council-Manager System of government.




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Strategic Direction
Corporate Values
      It is very important that an organization have well defined and clearly articulated
      values. The Council of the City of Portage la Prairie has affirmed seven
      fundamental values essential to achieving our mission and our success as a
      municipal corporation:

1.    Good Service:
      The Citizens of Portage la Prairie entrust their elected and appointed officials the responsibility of
      ensuring that municipal services are provided consistently and fairly.

2.    Fiscal Responsibility:
      The citizens of Portage la Prairie entrust their elected and appointed officials the responsibility of
      prudent financial management and the obligation to keep them informed of our positions.

3.    Dedication to the Environment:
      The citizens of the City of Portage la Prairie entrust their elected and appointed officials to make
      decisions that will reflect the true value of our fragile ecosystem on which we depend for our health
      and well being.

      Council shall encourage and support those sustainable development opportunities that will provide
      for ongoing wealth and goods and services for both present and future citizens of our community.

4.    Productivity Through People:
      Council regards their employees as an invaluable resource and believes that the public interest is
      best served by the development of a secure and positive working environment.

5.    Community Involvement:
      Council and their appointed representatives are committed to a democratic, open and responsible
      government and will ensure that the public will have an opportunity to influence municipal
      decision-making.
6.    An Orientation to the Future:
      The citizens of Portage la Prairie entrust their elected and appointed officials to proactively plan to
      meet the challenges that will occur in our future.

7.    Public Communication:
      City Council is committed to promote public accountability of their actions to the citizens of
      Portage la Prairie through the dissemination of information and prompt responses to all citizen
      inquiries.



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Mission Statement
      Mission is the theme of underlying premises of the organization. It is the
      contribution that the organization makes to society in terms of public service
      programs and activities. Mission is based on values, tradition and legal mandates.

      The Mission of the Council of the City of Portage la Prairie is to facilitate or
      provide quality services to enable the community to enhance its living
      environment through an accountable, accessible and equitable process of civic
      government.

Strategic Planning and Budgeting
      On April 13, 1998 the City’s Strategic Planning and Budgeting process was
      formalized when Council adopted Policy CL-AS to establish procedures and
      timelines for Strategic Planning and Budgeting. The Strategic Planning/Budget
      Policy states that: “The City of Portage la Prairie is committed to a continuous
      structured strategic planning and budgeting process that allows City Council and
      Staff to provide organizational direction and establish priorities for action.”

      This is the time, during the strategic planning and budgeting processes, to raise
      and discuss any important issues that you think need to be addressed.




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Role Statements
Role of Council
        With Municipal Government, Council is the ultimate authority, subject to
        provincial law for all actions taken on behalf of the municipal cooperation.
        Within its mandate, there is clearly responsibility for legislative and executive
        duties, but also distinguishable are the more specific roles or representing the
        electorate, administration and to a certain extent, management.

        Section 83 (1) of The Municipal Act establishes general duties of members of
        Council as follows:

        “General duties of members
        83(1) Each member of Council has the following duties
        a)      to consider the well-being and interests of the municipality as a whole and to bring to the
                Council’s attention anything that would promote the well-being or interests of the
                municipality;
        b)      to participate generally in developing and evaluating the policies and programs of the
                municipality;
        c)      to participate in meetings of the Council and of Council committees and other bodies to
                which the member is appointed to Council;
        d)      to keep in confidence a matter that is discussed at a meeting closed to the public under
                subsection 152(3) and that the committee decides to keep confidential until the matter is
                discussed at a meeting of the Council or of a committee conducted in public;
        e)      to perform any other duty or function imposed on the member by the Council or this or
                any other Act.”

Representative Role
        In Portage la Prairie, decisions are made by consensus rather than under the party
        system or ward system. In our situation, each Council member represents equally
        the same number of people. Council members are a delegate of the local
        citizenry, given a mandate during their term of office to govern to the best of their
        ability and to exercise their judgment as to the most appropriate, and not
        necessarily the most popular, courses of action.

        Being generally responsible for everything and not responsible for anything
        specific, Councillors must be aware that they are held accountable for the overall
        operation of the municipal government by the electorate.

        In the attached article titled “10 Habits of Highly Effective Councils” published in
        the November 1997 issue of Public Management magazine lists the following
        habits that effective Councils have:

   1.       think and act strategically
   2.       understand and demonstrate the elements of teams and teamwork
   3.       master small-group decision making
   4.       clearly define roles and relationships
   5.       establish and abide by a council-staff partnership

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   6.       make a systematic evaluation of policy implementation
   7.       allocate council time and energy appropriately
   8.       set clear rules and procedure for council meetings
   9.       get a valid assessment of the public’s concerns and an evaluation of the
            council’s performance
   10.      practice continuous personal learning and development as a leader.

Administrative Role
         The most obvious role of Council is probably the provision of various programs
         and services. This is the role that most citizens identify most readily, and indeed
         there is a tendency to view municipal government mainly as a vehicle for service
         delivery. In some instances, this role involves Councillors closely with staff since
         it is the latter who administer the programs and services of the municipality.

         The administrative role of Council is the determination of the most appropriate
         policies for the municipality and the setting of priorities for the allocation of the
         scarce financial resources.

         As mentioned previously, Council can only take direction where the provincial
         government has provided express legal authority.

Managerial Role
         Council’s managerial role is perhaps the least clearly defined role and the one,
         which is most often neglected. Most Councillors when assuming office for the
         first time have a basic idea or their representative and administrative role, but few
         realize that upon being elected they become the Board Member of a multi-million
         dollar corporation.

         City Council is ultimately responsible for ensuring that the scarce financial and
         personnel resources of the municipality are deployed consistently with the overall
         goals and objectives of the municipality. Council is also responsible for
         monitoring and reviewing the performance of the administration to measure its
         effectiveness and efficiency and to identify areas, which need a change of
         direction.

Role of the Mayor
         Of the executive positions allowed for in The Municipal Act, the Mayor, as the
         Chief Executive Officer of the municipality, is the only position to have
         individual duties addressed. It should be clearly understood and accepted that the
         Mayor’s role is unique. The Mayor is elected separately and has specific duties
         set out in The Municipal Act. Included in these roles is a responsibility for
         causing the laws of the Council to be executed, and ensuring that Council is
         properly informed about the operations of the City. In addition to these specified
         duties, the Mayor is also expected to provide initiative and direction to the
         Council in policy matters.


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       However, it should be understood that the method of executing these
       responsibilities will be influenced to a large extent by the abilities, experience and
       inclination of each incumbent.

       Clearly, the primary role of the Mayor and Council is to deal with the very
       demanding and complex problems related to broad policy matters, although the
       Mayor also has ongoing management duties assigned to him by Section 83(2) of
       The Municipal Act as set out below:

      Duties of the Head of Council
               83(2) In addition to performing the duties of a member of Council, the head of
      Council has a duty
   a) to preside when in attendance at a Council meeting, except where the procedures by-law or this or
      any other Act otherwise provides.
   b) to provide leadership and direction to the council; and
   c) to perform any other duty or function assigned to the head of Council by the Council or by this or
      any other Act.”

       The Mayor’s role is essentially one of the executive leadership and his/her
       involvement on a day-to-day basis is with matters and details related to this.

Role of the City Manager (Chief Administrative Officer)
       The City of Portage la Prairie has in place By-Law No. 02-8156 and 7868 which
       define the duties, responsibilities and authority of the City Manager. Generally,
       the By-Law calls for the City Manager to direct and manage the business affairs
       of the City in accordance with by-laws , resolution and plans enacted by Council;
       give general and specific guidance to staff; and prepare long and short range
       financial plans. The City Manager reports to Council as a whole, rather than the
       Mayor or individual councilors.

       Section 127 (2) of The Municipal Act also specifies duties of the City Manager as
       follows:

       “C.A.O’s administrative duties

      127 (2) The Chief Administrative Officer must ensure that
   a) the minutes of every Council meeting are made without note or comment;
   b) the by-laws and minutes of Council meetings and all other records and books of account of the
      municipality are kept safe and in accordance with Division 1 (Retention and Disposition of
      Municipal Records) of Part 9;
   c) the revenues of the municipality are collected;
   d) money belonging to or held by the municipality is deposited in the bank, credit union, caisse
      populaire, or trust corporation designated by the Council;
   e) the accounts for authorized expenditures of the municipality are paid;
   f) accurate records and books of account are kept of the financial affairs of the municipality; and
   g) any information requested of the municipality by the minister is provided within a reasonable
      time.”




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Role of Department Heads
      In Portage la Prairie, we have hierarchical units organized on the basis of function
      specialization. With a few mandatory exceptions, Council has a free hand in
      deciding how many and what staff to hire, assigning them duties and organizing
      the administrative function.

      The most basic role of staff is to administer the policies and programs of the City.
      Human nature dictates that once given a responsibility, the majority of people will
      do it to the best of their ability. In a segmented organization, this is often at the
      expense of the whole.

      The City of Portage la Prairie, with a move to a Council-Manager structure has
      implemented a Management Team whereby each of the Department Heads,
      chaired by the City Manager, meet weekly to ensure that reports and advice given
      to Council are coordinated.

      For good decision-making, it is critical that information and advice given to
      Council not be fragmented. Many of the issues facing the community go beyond
      the perspective of one or two departments. As a result, it is important that the
      opinions coming from the various departments is coordinated into a cohesive
      statement which can provide a basis for Council’s decision making.

      Department Heads, beyond their responsibility to the Management Team, provide
      direction to staff and advice to the City Manager and Council. Each Department
      Head is charged with the responsibility of developing long-range plans for their
      departments; organizing their staff to carry out City programs; supervising;
      coordinating their staff and the work directed to them; and providing
      accountability for the actions of their department.

Council/Staff Team
      There are many requirements of the people who come together to make an
      organization work and many individuals are involved. Any group of people who
      share a complex but common responsibility must be organized. They function as
      a social system, interacting with each other in repeated ways and establishing
      what may be thought of as normal patterns of behaviour.

      We can have disorganized, turbulent, frustrating relationships or orderly,
      respectful and productive relationships or something in between. If we want to
      achieve our goals we have to choose cooperation most of the time and
      confrontation only occasionally.

      Attached is Article 14 – Expected Results of Council-CAO System from Off the
      Cuff; A Collection of Writings by George B. Cuff.




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Policy – Administration Dichotomy
      There will always be a certain amount of tension in the Council-Manager
      relationship. While there may be different reasons for this, an understanding of
      each other’s roles is essential, and indeed a blurring of roles can sometimes cause
      friction.

      When this natural tension is creative, a mutually acceptable balance is maintained
      through continuous high-level dialogue between Council and senior management.
      However, tension not channeled in creative ways can erode, and eventually
      destroy, the working relationship. In practice, the policy-administration
      dichotomy is best depicted as a continuum, with “pure” policy and administration
      at opposite ends of the spectrum and a large gray expanse in the middle within
      which many decisions fall.




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Legislative Structure and Organization
Council Meeting Dates and Times
        Council Meetings are typically the second and fourth Monday of the month.
        When Monday is a holiday, the meeting is moved to Tuesday. For July and
        August, November (because of AMM convention) and December (because of
        Christmas) there is only one meeting on a Monday sometime towards the middle
        of the month. Meeting dates are set by Council at the end of the year for the next
        year.

        Regular Council meetings start at 5:00 pm with an in-camera session and supper.
        The actual open Council meeting commences at 6:00, followed by an open
        Committee meeting of all Council Committees. Meetings are typically done by
        7:30 with an opportunity for the media to interview Council members individually
        afterward.

Standing Committees – Procedural Guidelines
   a)      All Committees are considered to be advisory to Council unless otherwise
           stated in the By-Law or resolution governing that Committee.
   b)      Unless specifically granted the power to do so, no Committee of Council has
           the power to pledge the credit of the City or commit the City to any particular
           action.
   c)      The minutes of all standing committees are to be recorded by the Manager of
           Administration to be considered at the next Council meeting for action or
           information. The Chairman of the Committee shall be given the first
           opportunity to speak to the items covered by the minutes.
   d)      The Council member appointed as Chairman of each standing committee shall
           present the minutes at Council.
   e)      No member of Council shall give specific direction to any staff member at any
           Committee meeting. The responsibility for giving specific direction to staff
           resides with the City Manager who shall receive his direction from the full
           Council at a duly assembled meeting.
   f)      Committee agendas, including full reports, shall be provided to all members
           of Council.
   g)      Committee meetings shall be recorded in sufficient detail to enable Council
           members to be conversant with the action required.

Open vs. Closed Meetings
Section 152 (1) of the Municipal Act provides that every Council shall hold its meetings
openly, including its sittings as a board of revision; and no person shall be excluded or
removed from any meeting except for improper conduct.

This is clear direction from the Provincial Government that municipal councils should do
their business openly.



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Section 152 (3) of The Municipal Act provides however, that under certain
circumstances, meetings of Council or Committee can be held in camera:

(a)    if
            (i)    in the case of Council, the Council decides during the meeting to
                   meet as a committee to discuss the matter; and

            (ii)   the decision and general nature of the matter are recorded in the
                   minutes of the meeting; and

(b)    if the matter to be discussed relates to
                       i.      municipal assistance,
                       ii.     an employee, including the employee’s salary, duties and
                               benefits and any appraisal of the employee’s performance,
                       iii.    a matter that is in its preliminary stages and respecting
                               which discussion in public could prejudice a municipality’s
                               ability to carry out its activities or negotiations,
                       iv.     the conduct of existing or anticipated legal proceedings.
                       v.      the conduct of an investigation under, or enforcement or, an
                               Act or by-law,
                       vi.     the security of documents or premises; or,
                       vii.    a report of the Ombudsman received by the head of Council
                               under clause 36 (1) (e) of The Ombudsman Act

There will be times sitting in a committee meeting when discussing a controversial issue
would be easier done in a meeting closed to the public. There will be arguments that
members would speak more freely if they could do so without public scrutiny.

There is no easy answer to this. There must be reconciliation between the members
possible reluctance to give a stated position in public and the need to provide greater
public access and accountability to the municipal decision making process through open
meetings.

Previous experience has shown that the residents and taxpayers of the community believe
they have the right to know not only the decision of Council, but also why members vote
the way they do.

Protocol
Protocol is necessary for any group of people to work together cooperatively.

a)     Group Action

       We have already discussed that the authority for decision-making is vested in
       Council as a whole. There will be times when individual Council members do not
       agree with the majority. In those situations, it is necessary that the minority
       members put forth their arguments at the duly constituted Council meeting for

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      their associates and the public to hear. Once the matter has been decided upon,
      the majority rules and the decision is the decision of Council. It is not proper
      protocol for individual members to disparage other members of Council because
      they disagree with their opinion. Unless new information is provided or factors
      used to make the decision change, it is up to all members of Council to support
      the decision and see that it is carried out.

b)    Talk to the Issue – Not the Individual

      There is a line where members of council may disagree about an issue where that
      issue can be discussed objectively and impersonally. Should one member of
      Council cross the line and try to make a point at the expense of the credibility of
      another member of Council, often the issue is forgotten and personal attacks
      begin. It is not proper protocol to attack a member’s credibility to prove a point.
      Stick to the issue.

c)    Confidentiality

      Issues that need to be addressed confidentially were discussed in Section 4.3
      Open vs. Closed meetings. It should be generally accepted that Council and their
      committees should resist going in camera except when it is absolutely necessary.
      When it is necessary, those matters discussed in camera should be held
      confidential until released by Council at a duly constituted meeting.

      Simply because one member of Council does not want to go in camera to discuss
      a confidential matter is not sufficient justification for that member of Council to
      divulge the contents of the in-camera session to anyone outside of Council.
      Confidential sessions are not intended for Council’s use simply because an item is
      of significant public interest or is controversial.

      The penalties for breach of confidentiality can be severe. The Municipal Act
      provides that any member of Council who does not keep confidential any matters
      that are discussed in a closed meeting is disqualified from Council.

d)    Recognize the Chair

      Group discussions and group action require rules for their operation. Council has
      the rules of the Municipal Act, the Procedural By-Law and Bourinot’s Rules of
      Order as their basis for procedure in meetings.

      To allow the Mayor or a Committee Chairman the opportunity to carry out their
      role as Chairman, it is necessary that the members accord him/her the respect
      necessary to perform this function.




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       In a consensus government, it is necessary that each member have a chance to
       voice his/her opinion and have the chance to voice that opinion uninterrupted. In
       addition, it is necessary that a dialogue be carried out in a controlled manner.

       To accomplish these two objectives, questions and discussions must be addressed
       to the Chair. In this manner, the Chairman can ensure that each member will get
       an opportunity to speak and by the members addressing each other through the
       Chair, he/she ensures the possibility that the discussion is not dominated by the
       loudest voice.

       e)     Addressing the Mayor

       Council meetings, due to their long tradition, carry with them some formality.
       Certain terminology has developed over the course of the years and has been
       adopted as practice by the City of Portage la Prairie.

       The Mayor is commonly addressed as “Your Worship”.

       As indicated in the City Charter, members of Council should address each other
       as Councillor (last name).

Council Remuneration
City Council passed By-Law 08-8406 to establish Council salaries for 2010

                             Mayor          Deputy Mayor           Councillors
                             $34,488        $18,864                $13,524

One-third of Council salary is income-tax exempt. Your T-4 will show only two-thirds
of your salary (including travel per diems, see next section) as taxable income.

Council Travel
Travel Policy HR-AM was adopted by Council and outlines the policy, entitlements and
procedure for employees and members of Council traveling on City business.
Authorization for Council travel is provided either through the budget process or by the
Mayor and is limited to 12 days per year.

       “Required Authorization For Council Members.
        Councillors are allotted up to 12 days in each calendar year to use as their
          total travel per-diem, with funds approved through budget, by Mayor or by
          separate resolution.

        Travel Submissions are approved through the budget process of the City. A
         separate resolution is not required.

        If a Councillor’s request for travel is not included and approved in the budget
         process, approval is required either from the Mayor or by resolution of

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           Council. Approval for travel that is not included in budget is contingent on
           available budget funds.”

Reimbursement of costs related to dining (including gratuities) will be based on $50 per
day (without receipts) for each actual attended day of the function provided there are no
meals provided as part of the function. If some, but not all meals are provided during the
course of the function receipts must be kept for meals purchased and Council members
will be reimbursed actual costs.

Reimbursement for mileage is$.40 per kilometer. Council also receives a per diem of
$125/day when attending meetings/conferences on behalf of the City. This is considered
salary and two-thirds of your per diems received during the year is included on your T4 at
year-end. Claus 5 (f) and (g) of the attached policy lists items that are not claimable
expenses, including in room movies, liquor (unless approved by the Mayor) and fines.
Council travel is normally coordinated through the Human Resources Officer.




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Elected Officials Handbook                                                  October, 2010



Administrative Structure
The City’s organizational structure is built on the concept of functions. Similar
functions are combined into departments. For example, in Portage la Prairie we have the
provision of transportation and water works within one department. This makes sense
because the water and sewer lines are below the streets and often times work on one
means work on the other. In addition, the same equipment is required for both operations
making some economy of resources.

The Council-Manager Plan
The Federation of Canadian Municipalities (FCM) commissioned a report called “The
Management and Planning Capabilities of Small Municipalities” which found that a
Council-Manager system was the most prolific and successful structure across Canada.
City governments are big business, sometimes the largest in the community, and they
have revenue and expenditure levels compared to large private sector companies.

Currently the City has in place By-Law 7868, which establishes the position of City
Manager in Portage la Prairie and sets the duties and responsibilities thereof. This by-law
is attached for Council’s reference.

Management Committee
The Management Committee is composed of the Senior Department Heads with the City
Manager as Chairman.

A municipality is a very diverse organization. The City of Portage la Prairie provides
street maintenance, fire fighting, economic development, water and wastewater
treatment, etc. When developing an organizational structure, those functions with similar
missions are linked together into departments. In order to coordinate the information that
administration presents to Council, the Management Committee meets weekly to discuss
issues that must go to the standing committees of Council to make sure that all aspects of
the issue are covered.

A major concern in any large organization is establishing a process by which issues can
be investigated, resolved and sent forward for a decision. The Management Committee is
the conduit between administration and Council. At the Management Committee
administrative recommendations are formed, which are then sent to a Standing
Committee of Council where a Committee recommendation is formed which is then sent
to Council where a decision is made. All components of this communication system are
important to good decision-making.




                                                                                        18
Elected Officials Handbook                                 October, 2010


Department Profiles
   1.     City Manager

   2.     Department of Finance

   3.     Department of Economic & Community Development

   4.     Department of Operations

   5.     Department of Public Safety

   6.     Organizational Chart




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Elected Officials Handbook                                             October, 2010



                                  City of Portage la Prairie

City Manager-Functions List


Legislative                                                    Human Resources
-Chief Policy Advisor to Council                               - Labour negotiator
-Coordinates Committee and Council agendas                     - Grievance administration
-Orientation for newly elected officials                       - Staff relations
-Accountability for all administrative functions               - Organizational structure
-Coordination and implementation of Corporate Strategic Plan   - Staff coaching
-Advisor to Council's corporate image program                  - Recruitment and hiring
-Information Process – Council/Administration                  - Benefits administration
                                                               - Employee training
                                                               - Contracts administration
                                                               - Personnel policy
Administrative                                                 - Job analysis and design
- Coordination of the Management Committee
- Administrative direction to staff
- Administrative research and evaluation
- Management Committee Performance Evaluations                 Emergency Preparedness
- Legal/Solicitor coordination                                 - Emergency Plan
- Strategic Planning and Management                            - Emergency Response Mgr
-Insurance/Risk management                                     -Emergency Training
- Financial management
- Budget development and presentation
- Agenda and minute preparation                                RCMP
- Records management                                           - Contract administration
- By-Law preparation                                           - Municipal employees
- Public notices




                                                                                  20
    Elected Officials Handbook                                                   October, 2010



                                        City of Portage la Prairie

    Department of Finance - Functions List


    Finance                                                       Information Technology
-   Accounts Payable/Receivable                                   -Networking systems management
-   Payroll                                                       -Web site management
-   Business Licenses                                             -Electronic data backup
-   Utility revenue collection                                    -Firewall protection to City networks
-   Tax collection                                                -Computer servicing & user support
-   Financial Statements                                          -Accounting System support
-   Budget preparation and administration                         -Blackberry Server management
-   Cash management and investments                               -IT services to 3rd parties (Portage
-   Capital financing and control                                 Landfill Authority, Planning District
-   Accounting and audit                                          and PRRA)
-   Management Information Systems
-   Front counter reception
-   Parking ticket collection
-   Purchasing By-law interpretation
-   Donation tracking and receipts
-   Financial services to 3rd parties (Portage Landfill Authority and PRRA)
-   Purchasing controls
-   Fixed asset controls
-   Tendering coordination
-   Pet Licenses
-   Mail distribution




                                                                                             21
Elected Officials Handbook                                   October, 2010



                                City of Portage la Prairie

Economic Development-Functions List


Economic Development
- Business Development
- Industrial Development
- Tourism Development
- Marketing Strategies
- Public Relations

Property Management and Sales
- Inventory
- Land Management
- Land Development
- Land Sales/Purchases

Leisure Services
- Arts/Library Liaison
- Grants Administration
- Community Club Liaison
- Community Group Liaison




                                                                       22
    Elected Officials Handbook                                                   October, 2010


                                         City of Portage la Prairie

    Department of Operations - Functions List


    Water Treatment Plant Division                               Public Works Division
    - Potable Water Production                                   - Transportation
    - Potable Water Distribution                                 - Mtce. of paved and gravel roads
    - Water Meter Reading and Repair                             - sidewalk construction and mtce.
                                                                 - operation and mtce. of landfill
    Waste Water Treatment Division                               - collection of solid waste
    - Wastewater Treatment & Sludge Disposal                     - snow clearing and removal
    - Wastewater Collection                                      - street signage, lighting, decoration
    - Bulk Water Dispenser                                       - urban forest management
                                                                 - land drainage
                                                                 - operation and mtce. of underground
    Engineering Division                                                  utilities
    - Waterworks                                                 - maintenance of fire hydrants
    - Construction/ Rehabilitation                               - Equipment Maintenance
    - road building and overlays
    - underground utility renewals
    - Plan Management                                            Parks and Facilities Division
    - Planning/ Support                                          - Cemetery operation and mtce.
    - infrastructure studies                                     - Grass cutting contract
    - material testing                                           - Parks planning and maintenance
    - survey services
    - lot grading for building permits
    - curb cut approvals
    - building service connections
    - drafting services                                          Municipal Building maintenance
                                                                 - City Hall
                                                                 - Library/ Arts Centre
                                                                 - Fire Hall
                                                                 - Public Safety Building

    Utility Maintenance Unit
-   Maintenance of Water Treatment Plant ,
    Water Pollution Control Facility,
    sewage lift stations, raw water
    intake, treated water reservoir




                                                                                            23
Elected Officials Handbook                                             October, 2010


                                 City of Portage la Prairie

Department of Public Safety-Functions List


      Emergency Services                                 By-Law Enforcement
      Fire suppression                                   - Animal Pound contract
      Fire prevention                                    - Dog and Cat by-law
      Public education and fire safety                   - Parking Meter enforcement
      Fire Code inspection and enforcement
      Search and rescue                                  Emergency Preparedness
                                                         -Assisting with Emergency
                                                         updates and training




                                                                                     24
Elected Officials Handbook                                                                                                                        October, 2010
                                                                                               Mayor and Council
Organizational Chart
                                                                                                                  Dale Lyle
                                                                                                                City Manager


                                                               Brandy Smith                                                         Sharon Williams
                                                           Human Resources Officer                                               Manager of Administration




                                                                                                                                        Terrie Todd
                                                                                                                                .6 - Administrative Assistant


                                                                  RCMP Contract                                                      Kathy McGregor
                                                                 27 RCMP Officers                                                 Economic Development
                                                                                                                                  Administrative Assistant


                                         Lorna Long
                                 City Administrative Assistant



                                                                                       City Shift Clerks
                                                                                             (5.3)


                                                                                         Valerie Burke
                                                                                    City Ops Support Clerk


                                                                                         Kathy Ward
                                                                                City Detachment Office Clerk


                                                       Economic Development Contract
                                                           HMC Management Inc.




                                             Nettie Neudorf                                                                            Phil Carpenter                                  Kelly Braden
                                           Director of Finance                                                                           Fire Chief                               Director of Operations
                                                                                                                                                                                     (see next page)


                                                                                                           Sharon Thorsteinson
                       Tieny Kirchner                            Darren Jones                      Administrative Assistant - Public Safety
                     Manager of Finance                 Manager of Information Technology


                                                                                                                                      David Holmes
 June Outingdyke                             Ashley McLean                                                                           Deputy Fire Chief
 Waterworks Clerk                             Payroll Clerk


                                                                                                                    Captains                             Animal Control Officer
  Clara Griffiths                            Val McCorrister                                                          (4)                                      Contract
    Tax Clerk                             Accounts Payable Clerk



   Barbara Dyck                  Stephanie Penner&Susan Gascoigne
  Finance Clerk II                         Finance Clerk I                                                          F/T ESP                                  Parking Meter
                                               (1.50)                                                                 (16)                                     Contract



                                                                                                                    P/T ESP                                  Animal Pound
                                                                                                                    (3 FTE)                                    Contract



                                                                                                                                                                           25
                                                                                                                Mayor and Council
       Elected Officials Handbook                                                                                                                                                                                October, 2010


                                                                                                                       Dale Lyle
                                                                                                                      City Manager



                                                                                                      Other Departments               Kelly Braden
                                                                                                       (see other page)          Director of Operations


                                                                                                                    Diane Van Aert                 Janitorial Contract
                                                                                                                  Administrative Asst.                  (1 FTE)



                                                                                                                   Operations Clerk
                                                                                                                         (2)




  Wayne Wall                   Rick Ingram            Doug Campbell                                                                       Brian Taylor                                                              Dave Green                                            Ian Milne
Manager of WPCF           Maintenance Foreman         Manager of WTP                                                                 Manager of Public Works                                                      Manager of Parks                                   Manager of Engineering


                                                                                                                                                                                                      Lloyd Viivier               Lionel Brown
     Rick Yanchycki            Facility Maintenance        Mike Sandney                                                                                                                             Cemetery Foreman             Parks Foreman            Engineering Tech.       Construction Contracts
   Operations Foreman                    (3)               WTP Foreman                       Keith Barron               Terry Thompson        Keith Henderson               Solid Waste Contracts                                    (.6 FTE)                    (2)                 (Variable FTE)
     WPCF Facility                                                                        Waterworks Foreman          Auto Diesel Mechanic Transportation Foreman               (Variable FTE


                              Pumping Station Mtce                                                                                                                                                   Ricky Lavallee             Parks Labourers
    Operators, WWT                    (2)                        Operators                                                                                                                           Cemetery Mtce.                (3.6 FTE)                 Rodperson
          (4)                                                       (5)                         Keith Ellwood            Shane Pierson                     Transp. Op. A      Landfil Contract                                                                  (.5)
                                                                                                Sr. WW Mtce.           Assistant Mechanic                       (3)
                                                                                                                                                                                                     Mark Palendat
      Karly Friesen                                             Dave Hay                                                                                                                            Parks Lead Hand
       Lab Tech                                              Water Meter Mtce                                                                              Transp. Op. B.
                                                                                  Charles Ward            Terry Lowdon                                          (2)
                                                                                 Waterworks Mtce         Waterworks Mtnce
                                                             Michelle Thurston                                                                                 Labourers                                                             Grass Cutting
     Aaron Stechesen                                        Water Meter Reader                                                                                 (2.5 FTE)                                                               Contract
   Asst. Lab Tech. Term                                             (.5)
                                                                                    Labourers
        Labourer                                                 Labourer           (1.2 FTE)                                                                                                                                    Arena Contract
          (.25)                                                    (.3)


                                                                                                                                                                                                                                                     26
     Sludge Disposal
        Contract
Elected Officials Handbook                                                    October, 2010


Communication Process
How the Day-To-Day Issues are administered
What do you do if an irate citizen calls you, as their elected representative, to complain
that their water bill is too high?

A newly elected official soon learns that their life is no longer their own. You will get
complaints about potholes in the roads, loose dogs and cats, parking tickets, too little
snow clearing, too much snow clearing, complaints about neighbours, welfare and the
condition of the arena and any other number of issues. What do you do?

With complaints that come from citizens or for ideas that members of the Council have to
improve the organization, there are a number of ways to enter those into the system to
make sure they are addressed.

Pass the Issue to Administration
Either have the affected party call, or you call, the City Manager or the appropriate
Department Head that can deal with the matter. For those issues that are controlled by
policy, administration can provide the answer immediately. For those issues that fall
outside policy, administration will review alternatives for resolving it and provide the
necessary research on legislation, precedent, funding, etc.

Bring it to Committee
Each of Council’s standing committees has well-defined terms of reference. A member
may simply choose to raise a matter at the appropriate committee for discussion.

Bring it to Council
There may be some issues that a member may wish to bring directly to the formality of a
council meeting for a decision. The council agenda allows for this under the New
Business section. Typically, however issues are raised first in Committee.
Administration is then able to provide are report with the background information
necessary for the Committee to make a recommendation to Council.

Policy Development
A policy is defined as a generalized statement of interest or guideline, based on a body of
principles, which describes the direction of the organization with regard to that particular
matter. It involves the use of discretion by those administering the policy so it is
important that staff realize the intent of Council.

Policies are very valuable to any organization in that they serve to maintain the separation
of elected officials charged with setting policy and administrators who are expected to
carry out policy.

For policies to be effective they must be written down and they must be thoroughly
discussed by staff, Committees and Council. This reduces the uncertainty as to how each

                                                                                             27
Elected Officials Handbook                                                    October, 2010


party is expected to react in certain situations and promotes continuity, stability and
consistency of decision-making.

Perhaps most importantly, it allows Council to delegate the little issues that can eat up so
much of Council’s time. Without the development of key policies by Council, staff is
encouraged to delegate upwards virtually all decisions regardless of their scope or
significance. This tends to draw Council into accepting hands on managerial role, which
limits the need for your senior people to be accountable for their decisions. In effect, the
lack of policies weakens the development of the administrative side of your organization
and causes Council to spend an inordinate amount of time on relatively minor issues.

There is a very real danger in any community that dos not have a strong policy setting
procedure for Council to miss out on the big issues facing the community, due to the
requirement to take care of the little issues.




                                                                                          28
Elected Officials Handbook                                                   October, 2010



Current Issues
Some of the current issues that City Council will be dealing with include:

Budgeting/Financial Position
Budget meetings typically should commence in November or December, at Council’s
discretion. The 2011 budget will be particularly challenging. Attached is financial
information on the City’s current financial position.

Strategic Planning
Council usually commences a Strategic Planning process in November to set a direction
for the City for the next 4 years. Attached is the 2010 strategic plan.

Nutrient Removal
The Province has mandated removal of Phosphorous and Nitrogen from the City’s
sewage effluent. Timelines and Provincial funding for this are in a state of flux, however,
it is likely that construction of this project will commence sometime during this Council’s
mandate. Total project cost is currently estimated at $25 million, but that amount will
change , likely significantly, as more detailed design and engineering estimates are
received.

PCU Centre
The PCU Centre has only been in full operation for a couple of months. The Council
members appointed to the Portage Regional Recreation Authority Board will make
decisions to create and revise policies, programs and funding for the new facility. PCU
operations could have a significant impact on the City’s budget.




                                                                                          29
Elected Officials Handbook                                                                                      October, 2010




Policies
There are over 100 policies and over 30 regulatory type by-laws that govern various
aspects of City governance. Attached are some of the policies passed by Council that may
be of interest to Council Members.

     Procurement and Disposal of Material ............................................. AC-AW
     Council Meeting News Coverage ...................................................... CL-AF
     Council Member Ethics ..................................................................... CL-AG
     Council Participation Policy .............................................................. CL-AQ
     Council Travel Per Diem ....................................................................CL-AR
     Strategic Planning/Budget Policy ....................................................... CL-AS
     Municipal Promotional Items ................................................... ECD-ED-AA
     City Clothing Program....................................................................... HR-BG
     Travel Policy..................................................................................... HR-AM




                                                                                                                          30
Elected Officials Handbook                                                   October, 2010



Council Conflict of Interest and Ethics
Council Conflict of Interest
Time honored principles have established public office as a public trust. Furthermore,
rules of equity dictate that a member of public office shall not make a profit from his/her
office. In the past, to a large extent, these and other complementary principles reflecting
public norm, once enshrined in law, have protected the public from what might constitute
abuse of power by public officials.

In more recent times, the tendency has been to expect that standards in government must
be seen to be higher than those existing in the community generally. Consequently, the
establishment of realistic, legislative rules, governing the conduct of elected and
appointed officials in local government has assumed renewed importance.

Subsection 5(1) of The Municipal Council Conflict of Interest Act requires a member of
council to disclose any matter, discussed during a meeting, in which the member has a
direct or indirect pecuniary (monetary) interest. The disclosure extends to the pecuniary
interest of a spouse or child residing with the member. Failure to comply with the
Municipal Council Conflict of Interest Act can lead to disqualification from Council and
an order for restitution.

The member must:
    Disclose the general nature of the interest.
    Withdraw from the meeting without voting or discussing the matter, and
    Refrain from influencing the matter.

The Conflict of Interest Act also requires that members of Council annually not later than
November 30th each year file a statement of assets and interest with the City Manager.
This statement is available to the public for viewing.

Council Ethics
On September 20, 1994, Council adopted the Policy CL-AG concerning Council member
ethics. This Policy is attached in Section 8, Policies.




                                                                                         31
Elected Officials Handbook                             October, 2010




                   Information on Dealing with the Media




                                                                       32
Elected Officials Handbook                               October, 2010




                     Organization and Procedure By-law




                                                                         33
Elected Officials Handbook                         October, 2010




                             City Manager By-law




                                                                   34

				
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