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Handbook for Municipal Officials HANDBOOK FOR MUNICIPAL OFFICIALS Published by the Michigan Municipal League Printed July, 2004, 2006, 2015 © Copyright Michigan Municipal League, July 2004. No portion of this book may be reproduced by any means without permission of the Michigan Municipal League. ISBN 1-929923-03-1 Upon publication, one copy was distributed as a Michi- gan Municipal League member service to each member city and home rule village. Copies are available online at mml.org, and hard copies are mailed upon request. For additional copies, please contact: Michigan Municipal League 1675 Green Rd Ann Arbor, MI 48106-1487 Phone: 734-662-3246 or 800-653-2483 Fax: 734-662-8083 ii Preface Better Communities. Better Michigan. The Michigan Municipal League is the one clear voice for Michigan communities. Through advocacy at the state and federal level, we proactively represent municipalities to help them sustain highly livable, desirable, and unique places within the state. We create and offer our members services and events that range from traditional to cutting edge, in order to help educate and inspire them to remain focused on their passion for the area they represent. We are a nonprofit, but we act with the fervor of entrepreneurs; our people are dynamic, energetic and highly approachable, passionately and aggressively pushing change for better communities. We salute the officials across the state that give freely of their time and show great dedication to their communities. Acutely aware that knowledge is the key to effective decision-making, the League and the MML Foundation present this Handbook for Municipal Officials with the hope that it will provide you with excellent information and act as an important aid as you carry out your local government responsibilities. Every four years, over 5,000 officials are elected across the state to local government. Of these, approximately 3,600 are first-time officials, and often have little or no government experience. The League’s objective is to educate these new officials on municipal issues by offering educational training and information. The Handbook for Municipal Officials is one of the many tools the League has developed to offer basic local government information for local officials and to familiarize them with the responsibilities they face as policymakers. The Handbook for Municipal Officials is a collaborative effort of the Michigan Municipal League and the Michigan Municipal League Foundation. Daniel P Gilmartin CEO & Executive Director Table of Contents Section 1: Local Government Chapter 1: Welcome to Public Service ...................................................................................... 1 Chapter 2: Structure of Local Government ............................................................................... 6 Chapter 3: Charter Revision and Amendment ......................................................................... 12 Chapter 4: Boundaries and Annexation ................................................................................... 17 Section 2: Roles & Responsibilities Chapter 5: Duties of City and Village Officials ...................................................................... 21 Chapter 6: Successful Meetings .............................................................................................. 27 Chapter 7: Local Ordinances ................................................................................................... 32 Chapter 8: Ethics ..................................................................................................................... 36 Chapter 9: Influencing State and Federal Legislation ............................................................. 41 Chapter 10: Training of Municipal Officials ........................................................................... 45 Section 3: Operations Chapter 11: Written Policies and Procedures .......................................................................... 47 Chapter 12: Municipal Service Options .................................................................................. 51 Chapter 13: Employment and Personnel ................................................................................. 56 Chapter 14: Labor Relations .................................................................................................... 61 Chapter 15: Municipal Liability .............................................................................................. 64 Chapter 16: Planning and Zoning ............................................................................................ 66 Chapter 17: Selecting and Working with Consultants ............................................................. 73 Section 4: Basic Finance Chapter 18: Authority and Internal Controls ........................................................................... 77 Chapter 19: Budgeting ............................................................................................................. 82 Chapter 20: Purchasing ........................................................................................................... 86 Chapter 21: Financing Capital Improvements ......................................................................... 90 Chapter 22: Special Assessments and User Charges ............................................................... 95 Chapter 23: Limits of Municipal Expenditures ....................................................................... 99 Appendices Appendix 1: Glossary ............................................................................................................ 102 Appendix 2: Michigan Laws of Interest to Cities and Villages............................................. 106 Appendix 3: Overview of the Michigan Open Meetings Act ................................................ 115 Appendix 4: Overview of the Michigan Freedom of Information Act ................................... 118 Appendix 5: Sample Council Rules of Procedure ................................................................. 122 Appendix 6:Sample Budget Ordinance ................................................................................. 129 Appendix 7: Questions and Answers .................................................................................... 134 Appendix 8: For More Information ....................................................................................... 143 Index .................................................................................................................................... 148 iv Section 1: Local Government Chapter 1: Welcome to Public Service The flush of election victory has faded a interpreting them—as well as your city little and you’ve taken the oath of office. or village charter. Now you’re probably asking yourself, Know your city or village. Know its “What do I do next?” history, its operations and its finances. Serving as an effective official requires Review all reports from the mayor dedication, knowledge and a substantial (and/or manager if your municipality commitment of time and effort. No matter has one), department heads and citizen your motivation or background, as a boards and commissions. member of the council/commission you Become familiar with your have the opportunity to make important municipality’s plans. Review the contributions to shape the future of your master plan, the parks and recreation community. For this reason, becoming a plan, the infrastructure and economic local elected official can be one of the most development plans. There may also be a rewarding experiences of your life. number of other documents outlining the goals, objectives and plans for your city On Being an Elected Official or village. Being well informed, listening carefully and Be aware of current state and federal knowing how to make decisions will legislation, pending court cases and enhance those qualifications you need to other factors that affect local issues. succeed as a public official: integrity, The Michigan Municipal League and the intelligence and a genuine concern for National League of Cities frequently people. send materials to help you stay up-to- date. Being Well-Informed Talk to people with differing points of There is no substitute for thoroughly view and relevant information. Your understanding the issues as well as the constituents, officials in neighboring federal, state and local laws affecting these villages, cities, and townships, and issues. As a public official you will receive county and state officials will all have an enormous amount of information. It is important and different perspectives on important to be able to handle this material each issue. efficiently and effectively. Listening For starters: Although seventy percent of our waking day Become familiar with your city or is spent in some form of communication, village charter. Ask your clerk for a and at least six hours a day is spent listening copy of the charter. It is the governing to some form of oral communication. We document of your municipality. Think don’t always do this well. Yet, it is of it as the constitution of your city or imperative to listen actively and accurately village. to be an effective council/commission Know the duties and limitations of member. your office and of the municipality. This requires familiarity with the state and federal constitutions, local ordinances and the court cases Handbook for Municipal Officials 1 Published by the Michigan Municipal League, July 2015 (Section 1/Chapter 1)
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