2019 Handbook for Mayors and Councilmembers - Texas ...

Handbook for Mayors

and Councilmembers

1

2019HandbookforMayorsand

Councilmembers

TexasMunicipalLeague

1821RutherfordLane,Suite400,Austin,Texas78754

Copyright©,TexasMunicipalLeague,2019

All materials are subject to copyrights owned by the Texas Municipal League (TML). Any

reproduction,retransmission,orrepublicationofallorpartofthisdocumentisexpresslyprohibited,

unlessTMLhasexpresslygranteditspriorwrittenconsenttosoreproduce,retransmit,orrepublish

thematerial.Allotherrightsreserved.

Thenames,trademarks,servicesmarks,andlogosofTMLonthisdocumentmaynotbeusedinany

advertisingorpublicity,orotherwisetoindicateTML’ssponsorshipoforaffiliationwithanyproduct

orservice,withoutTML’spriorwrittenpermission.

2

2019HandbookforMayorsandCouncilmembers

Foreword

Servingasalocalelectedofficialisoneofthemostdemanding—andoftenthankless—tasksacitizen

can perform. Municipal officials can be called upon day and night. They are subject to constant

criticism,andalmosteverythingtheydowillbewronginsomeone’sopinion.Manyspendtheirown

moneytocampaignforelection;mostreceivelittle,ifany,payforthejob.

Butservinginlocalofficecanalsoberewardingandproductive.Formany,itismoreimportantthan

beinginCongressorthestatelegislaturebecausethecityistherealworldwheremunicipalofficials

canmakegoodthingshappenfortheirfellowcitizens.

Wehopethishandbookwillofferafewsuggestionsthatwillmakeyourjobeasier.Obviously,sucha

guidecannotpossiblytouchuponeveryrelevantsubject,but itdoes includewhatwethinkarethe

most important topics. Throughout, however, it shouldbe recognized that thishandbook is only a

guideandthatthereisnosubstituteforcompetentlegaladviceregardinginterpretationsofthelaw

andotherquestionsthatmightariseinspecificsituations.

Ifyoudon’tfindtheanswerstoyourquestionsaboutthepartofcitygovernmentyouarecoveringor

theissuesfacingcitiestoday,we’rereadytoassistyouinanywaywecan.Justgiveusacallat512-

231-7400,[email protected],orvisitourwebsiteatwww.tml.org.

Wewishyougreatsuccess.

BennettSandlin

TMLExecutiveDirector

3

TableofContents

Introduction......................................................................................................................................................6ChapterOne:LocalGovernmentinTexas..............................................................................................7UnitsofLocalGovernment......................................................................................................................................7CategoriesofGeneralLawCities...........................................................................................................................8CityManagerPlan....................................................................................................................................................10TheHomeRuleConcept.........................................................................................................................................11InherentPowersofHomeRuleCities...............................................................................................................12LimitationsonHomeRulePowers.....................................................................................................................14TheCharterDocument...........................................................................................................................................14FormsofHomeRuleCityGovernment..............................................................................................................15

ChapterTwo:RolesandResponsibilitiesofOfficersInGeneralLawCities............................17OfficeoftheMayor...................................................................................................................................................17OfficeoftheMayorProTem.................................................................................................................................21OfficeofCouncilmember.......................................................................................................................................22Qualifications............................................................................................................................................................22TermsofOffice..........................................................................................................................................................23Vacancies....................................................................................................................................................................23Absences.....................................................................................................................................................................23Removal.......................................................................................................................................................................24Compensation...........................................................................................................................................................24ExpenseReimbursement......................................................................................................................................24

ChapterThree:RolesandResponsibilitiesofOfficersinHomeRuleCities............................25OfficeoftheMayor...................................................................................................................................................25OfficeoftheMayorProTem.................................................................................................................................27OfficeofCouncilmember.......................................................................................................................................27Qualifications............................................................................................................................................................28TermsofOffice..........................................................................................................................................................29Vacancies....................................................................................................................................................................29Compensation...........................................................................................................................................................30

ChapterFour:PowersandDutiesofCities..........................................................................................31AdministrativeOversightinGeneralLawCities...........................................................................................31AdministrativeOversightinHomeRuleCities..............................................................................................33ThePolicePower.....................................................................................................................................................33Planning,SubdivisionControls,andAnnexation..........................................................................................34RegulationofStreetsandOtherPublicPlaces...............................................................................................35ConstructionofPublicFacilities.........................................................................................................................35DonationsofCityFunds.........................................................................................................................................35PaymentofBonusestoCityEmployees............................................................................................................36Bids...............................................................................................................................................................................36CityDepository.........................................................................................................................................................37UniformElectionDates..........................................................................................................................................37OfficialNewspaper..................................................................................................................................................37FederalVotingRightsAct......................................................................................................................................37DelegationofLegislativePowers........................................................................................................................38

ChapterFive:TheCityCouncilatWork:Meetings............................................................................39

4

LegalRequirements................................................................................................................................................39TexasOpenMeetingsAct.......................................................................................................................................39PublicInformationAct...........................................................................................................................................42FormalMeetingsoftheCouncil/TheAgenda................................................................................................44RulesofOrderandProcedure.............................................................................................................................46Motions........................................................................................................................................................................46StreamliningCouncilMeetings............................................................................................................................49CouncilWorkSessions...........................................................................................................................................51CitizenParticipation...............................................................................................................................................51PublicHearings.........................................................................................................................................................52

ChapterSix:FinancialAdministration..................................................................................................54RevenueSources......................................................................................................................................................54Budgeting....................................................................................................................................................................58MunicipalBorrowing..............................................................................................................................................61GeneralObligationDebt........................................................................................................................................62RevenueBonds.........................................................................................................................................................63BondRatings..............................................................................................................................................................64BondElections..........................................................................................................................................................65InstallmentObligations.........................................................................................................................................65AnticipationNotes...................................................................................................................................................65CapitalImprovementsProgramming...............................................................................................................65FinancialReporting.................................................................................................................................................66Investments...............................................................................................................................................................67FinancialWarningSignals....................................................................................................................................68

ChapterSeven:OrdinancesandResolutions.....................................Error!Bookmarknotdefined.CompatibilityofOrdinanceswithStateandFederalLaws........................................................................70Reasonableness.......................................................................................................Error!Bookmarknotdefined.FormoftheOrdinance...........................................................................................................................................70

ChapterEight:ConflictsofInterest........................................................................................................74DualOffice-Holding.................................................................................................................................................74CityActionsthatBenefitMayorsandCouncilmembers..............................................................................75Nepotism.....................................................................................................................................................................77Purchasing..................................................................................................................................................................78

ChapterNine:PersonalLiabilityofCouncilmembers......................................................................79PublicOfficialLiability..........................................................................................Error!Bookmarknotdefined.LiabilityUnderStateLaw.....................................................................................Error!Bookmarknotdefined.LiabilityUnderFederalLaw................................................................................Error!Bookmarknotdefined.

ChapterTen:SourcesofInformation....................................................................................................82LocalSources.............................................................................................................................................................82TexasMunicipalLeague.........................................................................................................................................82NationalResources..................................................................................................................................................82

5

AbouttheTexasMunicipalLeagueIn the summerof1913,ProfessorHermanG. James,Directorof theBureauofMunicipalResearch

andReferenceat theUniversityof TexasatAustin, andA.P.Woolridge, then theMayorofAustin,

formedtheLeagueofTexasMunicipalities.

ThetwomeninvitedrepresentativesfromallTexascitiestocometoAustinonNovember4,1913,for

an organizational meeting. Fourteen cities sent representatives to Austin. At that first meeting, a

modestmembershipfeewasapprovedalongwithaconstitutiontogoverntheassociation.

Sincethattime,theLeaguehasgrownintooneofthelargestandmostrespectedorganizationsofits

kind in the nation. From the original 14 members, TML’s membership has grown to 1,160 cities.

Membership is voluntary and is open to any city in Texas. More than 16,000 mayors,

councilmembers, citymanagers, city attorneys, anddepartmentheads arememberofficials of the

Leaguebyvirtueoftheircities’participation.

TheTexasMunicipalLeagueexistssolelytoprovideservicestoTexascities.Sinceitsformation,the

League’s mission has remained the same: to serve the needs and advocate the interests of its

members.TheTMLconstitutionstates that thepurposeof theLeague is to“renderserviceswhich

individualcitieshaveneitherthetime,money,norstrengthtodoalone.”

Leagueservicestoitsmembercitiesincludelegaladviceandinformationonmunicipallegalmatters,

legislativerepresentationonthestateandfederallevels,informationandresearch,publicationofa

monthly magazine, conferences and training seminars on municipal issues, and professional

developmentofmembercityofficials.

6

Introduction

HowtoUseThisBook

In the past, the League has prepared two separate handbooks for city officials: one for those in

general law cities, andone for those in home rule cities. In the interest of efficiency, thosebooks

have been combined to form this Handbook for Mayors and Councilmembers. Most of the

informationisrelevanttoallcities.Butafundamentalunderstandingofthefactthattherearetwo

typesofcitiesinTexaswillhelpthereaderrecognizethoseareaswhereadistinctionismade.

ThetwotypesofcitiesinTexasaregenerallawandhomerule.Mostsmallercities(thosewith5,000

orfewerinhabitants)aregenerallawcities.Agenerallawcityoperatesexactlyasitsnameimplies:it

candoonlywhatstatelawexpresslyauthorizes.Themostimportantpartofthatauthorizationisthe

formofgovernmentofageneral lawcity.State lawdefinesthecompositionofthegoverningbody

andvarious items thatgowith that (suchas filling vacancieson thegoverningbody).Chapter two

describesindetailtherolesandresponsibilitiesofofficersingenerallawcities:TypeA,TypeB,and

TypeC. Themaindifferences in thepowersof thedifferent typesof cities are largelyof historical

interest,butthestatelawdirectingthemakeupofthegoverningbodyisstillveryimportant.

Whenageneral lawcityreaches5,000inhabitants, itmayfollowprocedures instate lawtodrafta

homerulecharter.Thedraft isthensubmittedtothevotersofthecityatanelection. Ifthevoters

approvethecharterattheelection,thecitybecomesahomerulecity.Ahomerulecityisgoverned

byitscharter(seechapterthreefortherolesandresponsibilitiesofofficersinhomerulecities)and

lookstostatelawforlimitationsonitspower.Thestatelegislaturehasfrequentlypassedlawsthat

limittheauthorityofhomerulecities,andstatelawalsofrequentlyimposescertainproceduresthat

mustbefollowedbyanytypeofcity.

This book ismeant to be a broad and general overviewof cities in Texas.Many of the topics are

covered inmuchmoredetail invariouspapersandmemosavailable fromtheLeague.Cityofficials

withquestionsaboutitemsinthisbookoranythingrelatingtothegovernanceorauthorityoftheir

city should visit the TML website at www.tml.org and/or contact the League’s legal services

departmentat [email protected],orotherinformationobtainedfrom

theLeague,shouldneverbesubstitutedfortheadviceoflocallegalcounsel.

7

ChapterOne:

LocalGovernmentinTexasUnderstandingcitygovernmentrequiressome

knowledgeofalllocalgovernments.This

chapterbrieflydiscussescounties,school

districts,councilofgovernments,andtypesof

citygovernments.

UnitsofLocalGovernment

Accordingto2010CensusofGovernment

figures,Texashas1,209cities,254counties,

1,082schooldistricts,and2,291special

districts.Duringthepast20years,thenumber

ofspecialdistrictshassteadilyincreased,due

mainlytotherapidcreationofwaterdistricts

inunincorporatedareas.Conversely,the

numberofschooldistrictshassteadily

declinedassmallersystemshaveconsolidated

withlargerones.Thenumberofcountieshas

remainedconstantfor100years,whilethe

numberofcitiesisincreasingatanaverageof

about10peryear.

TheUnitedStatesCensusBureaualso

recognizedthatfourofthe10citieswiththe

largestrecentpopulationgainswereinTexas

—SanAntonio,Dallas,FortWorth,andFrisco.

Texasalsohadsevenofthemostrecent15

fastest-growingcitiesbypercentage—New

Braunfels,Frisco,McKinney,Georgetown,

Rowlett,Midland,andRoundRock.

Counties

Countiesareknownas“generalpurpose”

governmentsduetothemanydifferent

functionstheyperform.Countiesservethe

dualpurposesofprovidinggovernmental

servicesforthebenefitoftheirresidentsand

administrativeservicesonbehalfofthestate.

Majorgovernmentalservicesincluderoad

constructionandmaintenance,jailsand

courts,welfare,health,andlawenforcement.

Administrativeservicesperformedbycounties

asagentsofthestateincludevoter

registrationandmotorvehiclelicensing.

SpecialDistricts

Schoolsandthemanytypesofspecialdistricts

areknownas“single-purpose”governments,

sincetheyusuallyperformjustonefunction,

suchaseducation,watersupply,orhospital

care.Mostspecialdistrictsservealimitedgeo-

graphicalareaandwerecreatedbecauseof

theinabilityofgeneralpurposelocal

governmentstoprovideaparticularservice.

CouncilsofGovernments

Councilsofgovernments(COGs)arealso

knownas“regionalplanningcommissions.”

COGsaredefinedas“politicalsubdivisionsof

thestate”underTexaslaw.However,COGs

differconsiderablyfromcities,counties,and

otherconventionallocalgovernmentsbecause

theycannotlevytaxesnorincurdebt.

COGsarevoluntary,area-wideassociationsof

localgovernments.Theirfunctionistofoster

localcooperationamonglocalitiesbyserving

asforumsforintergovernmentalproblem-

solvingandbyplanninggovernmental

programsandfacilitiesonaregionalbasis.

Thoughtheydonothavebroadpowerto

executeprojects,manyofthestate’sCOGs

providedirectservicesonalimitedbasis.

8

EachCOGoperatesunderthesupervisionofa

governingbodycomposedofelectedofficials

representingparticipatinglocalgovernments.

Financingisprovidedbyacombinationofdues

paidbymembergovernmentsandfederaland

statefunds.

Cities

Amongallofthedifferenttypesoflocal

governments,citiesperformthegreatest

numberoffunctions,bothgovernmentaland

proprietary.

Statelawspecificallydefinesandlistscertain

activitiesaseithergovernmentalor

proprietaryfunctionsintheTexasTortClaims

Act.Thelawlists36functionsthataregovern-

mental.Includedamongthemarepoliceand

fireprotection,healthandsanitationservices,

streetconstructionanddesign,transportation

systems,establishmentandmaintenanceof

jails,andenforcementoflanduserestrictions.

Threefunctionsarelistedasproprietary:the

operationandmaintenanceofapublicutility,

amusementsownedandoperatedbyacity,

andanyactivitythatisabnormallydangerous

orultra-hazardous.Functionsthatarelistedas

governmentalarenotincludedasproprietary

functions.

TherearetwocategoriesofcitiesinTexas:

homeruleandgenerallaw.

Homerulecitiesarelargercitieswithmore

than5,000inhabitantsinwhichthecitizens

haveadoptedahomerulecharter.Acharteris

adocumentthatestablishesthecity’s

governmentalstructureandprovidesforthe

distributionofpowersanddutiesamongthe

variousbranchesofgovernment.

Thelegalpositionofhomerulecitiesisthe

reverseofgenerallawcities.Ratherthan

lookingtostatelawtodeterminewhatthey

maydo,asgenerallawcitiesmust,homerule

citeslooktothestateconstitutionandstate

statutestodeterminewhattheymaynotdo.

Thus,ifaproposedhomerulecityactionhas

notbeenprohibited,limited,orpre-emptedby

thestate,thecitygenerallycanproceed.

Generallawcitiesaresmallercities,mostof

whicharelessthan5,000inpopulation.All

generallawcitiesoperateaccordingtospecific

statestatutesprescribingtheirpowersand

duties.Generallawcitiesarelimitedtodoing

whatthestateauthorizesorpermitsthemto

do.Ifstatelawdoesnotgrantgenerallaw

citiestheexpressorimpliedpowertoinitiatea

particularaction,nonemaybetaken.

Approximatelyseventy-fivepercentofall

Texascitiesoperateunderthegenerallaws;

theremainderarehomerulecities.“General

law”isatermusedtodescribeallofthestate

lawsapplicabletoaparticularclassofthings.A

generallawcity,therefore,isonethatis

subjecttoallofthestatelawsapplicableto

suchcities,manyofwhicharefoundinthe

LocalGovernmentCode.

Generallawcityofficialsoccasionallycallthe

TexasMunicipalLeagueofficetorequesta

copyoftheir“citycharters.”Unlikehomerule

cities,generallawcitiesdonothavecharters.

Thecreationofagenerallawcityis

documentedinitsincorporationpapers,filed

atthecountycourthouse,whichdescribe

whenthecitywasestablishedanditsoriginal

boundaries.

CategoriesofGeneralLawCities

Therearethreecategoriesofgenerallaw

cities:TypeA,TypeB,andTypeC.Althoughit

issometimesdifficulttodistinguishbetween

9

thetypes,itisnecessarytoknowthe

differenceinordertodeterminewhichstate

lawsapply.

TypeBGeneralLawCities

MostnewcitiesbeginasTypeBgenerallaw

citiesunderastatelawthatpermitsthe

incorporationofanyareacontaining201to

10,000inhabitants.Later,asthepopulationof

acitygrowsto600ormore,itcanmakea

transitiontoTypeA.

InaTypeBgenerallawcitywiththe

aldermanicformofgovernment,thegoverning

bodyisknownasthe“boardofaldermen”and

includessixmembers(amayorandfive

aldermen),allofwhomareelectedat-large.At

itsdiscretion,theboardofaldermenmay

providebyordinancefortheappointmentor

electionofsuchadditionalofficersasare

neededtoconductthebusinessofthecity.

TypeAGeneralLawCities

TypeAgenerallawcitiesareusuallythelarger

generallawcities.Mostwereincorporated

underTypeBstatusandthenswitchedtoType

Astatuswhentheirpopulationincreasedto

600ormore,orwhentheyhadatleastone

manufacturingestablishment.

Thegoverningbodyofacityoperatingasa

TypeAgenerallawcityistechnicallyknownas

theboardofaldermen,althoughmanycities

refertoitasthe“citycouncil.”Itvariesinsize

dependingonwhetherthecityhasbeen

dividedintowards.Ifthecityhasbeendivided

intowards,thecouncilconsistsofamayorand

twocouncilmembersfromeachward—

whateverthenumber.Ifthecityhasnotbeen

dividedintowards,thegoverningbodyalways

consistsofamayorandfivecouncilmembers.

Inadditiontothecitycouncil,othermunicipal

officersincludeamarshal,treasurer,tax

assessor-collector,citysecretary,cityattorney,

andengineer.Whethertheseofficesare

electiveorappointivedependsonthemethod

selectedbythecitycouncilforfillingthem.

Moreover,thecitycouncilmayprovideby

ordinancefortheappointmentorelectionof

suchothermunicipalofficersasitdeems

necessary.

TypeCGeneralLawCities

ATypeCcityoperateswiththecommission

formofgovernment.Thegoverningbodyis

knownasthe“boardofcommissioners”and

alwaysconsistsofamayorandtwo

commissioners.Nootherelectiveofficersare

required;however,theboardof

commissionersmustappointacityclerk,and

mayprovidebyordinancefortheelectionor

appointmentofsuchotherofficersasare

required.

InaTypeCcityof500orlesspopulation,the

boardofcommissionersmustfollowthe

requirementsapplicabletoaTypeBgeneral

lawcity—thatis,theboardofcommissioners

hasthesamepowersanddutiesastheboard

ofaldermeninaTypeBgenerallawcity,

exceptwherespecificallyprovidedotherwise.

Inacityofover500population,theboardof

commissionersmustfollowtherequirements

ofaTypeAgenerallawcity,exceptwhere

specificallyprovidedotherwise.

Anycityoperatingunderthecommissionform

ofgovernmentcanchangeovertothe

aldermanicformofgovernment,andvice

versa.Thecommissionformofgovernmentin

agenerallawcityshouldnotbeconfusedwith

thecommissionplanadoptedbytheCityof

Galvestonattheturnofthecentury.Under

theGalvestonplan,eachmemberofthe

10

municipalgoverningbody—thecity

commission—simultaneouslyservedas

legislatorsandheadsofthecity’s

administrativedepartments.Thus,one

memberofthegoverningbodyservedas

“policecommissioner,’’anotherservedas

“firecommissioner,”andsoon,witheach

commissionerexercisingday-to-day

supervisoryauthorityoveraparticular

department.

Generallawcitiesoperatingunderthe

commissionformofgovernmentarenot

authorizedtoadopttheGalvestonplan.

Inagenerallawcity,onecommissioner,acting

alone,hasnoindividualpower;onlythe

commission,actingcollectively,exercises

power.

CityManagerPlan

Thecitymanagerplancanbeadoptedinany

generallawcityundertheprovisionsof

Chapter25,LocalGovernmentCode:

1) Uponpresentationofapetitionsignedbyatleast20percentofthetotal

numberofqualifiedvotersvotingfor

mayorinthelastprecedingcity

election,themayormustcallan

electiononthequestionofadopting

thecitymanagerplanwithin10days

afterthedatethepetitionisfiled.

2) Ifamajorityofthevotescastatthe

electionfavoradoptionofthecity

managerplan,thecouncilmust,within

60daysaftertheelection,appointa

citymanagerandfixhisorhersalaryby

ordinance.

3) Theadministrationofthecityistobe

placedinthehandsofthecity

manager,whoservesatthepleasureof

thecitycouncil.

4) Inanycitywherethecitymanagerplan

hasbeenapproved,allofficersofthe

city,exceptmembersofthegoverning

body,thereaftershallbeappointedas

maybeprovidedbyordinance.

5) Proceduresforrepealingthecitymanagerplanareessentiallythesame

asforadoptingit.

Thebasicstructureofthecitymanagerplanis

similartothatofaprivatecorporation,in

whichthestockholderselectaboardof

directorswhichthenhiresapresidenttorun

thecompany.Underthecitymanagerplan,

thevoterselectacitycouncilwhich,inturn,

hiresacitymanagertoadministerthecity’s

day-to-dayaffairs.

Underthecitymanagerplan,thecouncil

servesasthelegislativebody.Thecouncilsets

policy,itapprovesthebudgetandsetsthetax

rate,anditdeterminesthesizeofthepayroll

andtheextentandcostofmunicipalservices.

Inshort,thecouncilisthefinalauthorityonall

ofthemanypolicydecisionsthatdetermine

thescopeandfunctionsofthecity

government.

Themayorandcouncilmembershaveno

administrativedutiesunderthecitymanager

plan.Thesearevestedinthecitymanager,

whoisresponsiblefordirectingtheworkforce

andprogramsofthecityinaccordancewith

ordinances,rules,andregulationsadoptedby

thecouncil.

ThetypicalcitymanagerinTexasisappointed

foranindefinitetermandissubjectto

dismissalbythecouncilatanytimeexceptas

otherwiseprohibitedbylaw.Heorsheis

designatedasthechiefexecutiveand

administrativeofficerofthecityandis

accountabletothecouncilfortheproper

conductofallmunicipaloperations.The

11

managerhastheunilateralauthoritytohire,

discipline,andfirethedepartmentheads

underthemanager’scontrol.Insomecases,

however,certainemployees,suchasthecity

attorneyormunicipaljudge,aredirectlyhired

and/orsupervisedbythecouncilratherthan

themanager.Althoughthemanager’srole

variesfromonecitytoanother,theprimary

functionistoimplementthepolicies

establishedbythecouncilandensurethatthe

cityisoperatedinaneconomicaland

responsiblemanner.Specificdutiesofthe

managermayincludethefollowing:

1) Enforcingallcityordinances,rules,andregulations.

2) Supervisingallmunicipalemployees

andprograms.

3) Preparingandexecutingthecity’sannualbudgetpursuanttotherevenue

andexpenditureplansadoptedbythe

council.

4) Managingthecity’sfundsand

preparingperiodicreportsthatadvise

thecouncilandthegeneralpublicof

thecity’sfinancialcondition.

5) Providinginformationtothecouncilto

facilitateitsabilitytomakeinformed

decisionsinthebestinterestsofthe

city.

6) Preparingcouncilmeetingagendasand

attendingallsuchmeetingstoserveas

aresourcetothecouncilandthe

public.

7) Drawingthecouncil’sattentiontocommunityneedsandrecommending

alternativesbywhichthecouncilcan

respondtothoseneeds.

Adoptingthecitymanagerplandoesnot

changethebasicgovernmentalframeworkofa

generallawcity.Rather,itisanadministrative

mechanismaddedtothebasicstructure.

Legislationpassedin2003clarifiesthatcity

councilsofcitiesthathavenotadoptedacity

managerplanunderchapter25oftheLocal

GovernmentCodearefreetodelegateby

ordinancemanagementdutiestoacity

administrator.

TheHomeRuleConcept

Althoughscholarshaveusedavarietyof

floweryphrasestodescribetheconceptof

homerule,theprincipleissimple:homeruleis

therightofcitizensatthegrassrootslevelto

managetheirownaffairswithminimum

interferencefromthestate.Homerule

assumesthatgovernmentalproblemsshould

besolvedatthelowestpossiblelevel,closest

tothepeople.

Asmentionedearlier,homerulecitieslookto

thestatetotellthemwhattheyareprohibited

fromdoing,ratherthanforspecificgrantsof

authoritytoundertakeparticularfunctions.In

Forwoodv.CityofTaylor,theTexasSupreme

CourtsummarizedTexas’homeruledoctrine

asfollows:

ItwasthepurposeoftheHome-RuleAmendment...tobestowuponacceptingcitiesandtownsofmorethan5,000populationfullpowerofself-government,thatis,fullauthoritytodoanythingthelegislaturecouldtheretoforehaveauthorizedthemtodo.Theresultisthatnowitisnecessarytolooktotheactsofthelegislaturenotforgrantsofpowertosuchcitiesbutonlyforlimitationsontheirpowers.

AsaresultoftheForwoodcaseandothercourtdecisionsupholdingtheirbroadpowers,

homerulecitieshavetheinherentauthorityto

dojustaboutanythingthatqualifiesasa

12

“publicpurpose”andisnotcontrarytothe

constitutionorlawsofthestate.

InherentPowersofHomeRule

Cities

An“inherentpower”isonethatispossessed

byacitywithoutitshavingbeenspecifically

grantedbythestate.Itistherighttoperform

anactwithouthavingreceivedthatrightfrom

theTexasConstitutionorthestatelegislature.

Homerulecitieshavemanyinherentpowers.

Adiscussionofsomeoftheinherentpowersof

majorsignificancemayexplainwhysomany

citieshavechosentoadopthomerule

charters.

MunicipalOrganization

Incontrasttocountiesorgenerallawcities,

whoseorganizationisfixedbystatelaw,the

governmentalstructureofahomerulecityis

leftentirelytothediscretionoflocalvoters.

Thecitizensofahomerulecityarefreeto

decidetheirformofmunicipalgovernment

(mayor-council,council-manager,andsoon);

choosebetweenalargeorsmallcitycouncil;

providefortheelectionofthecitycouncilat-

large,bysingle-memberdistrict,orbyplace;

fixthetermsofofficeforcouncilmembersat

two,three,orfouryears;orestablish

overlappingtermsofoffice.Moreover,they

candecidewhetherthemayoristobeelected

directlybythevoters,selectedfromamong

membersofthecouncil,orchosenbysome

othermethod.

Thecitizensofahomerulecityalsohavetotal

discretionoverthecity’sadministrative

structure.Subjectonlytolocalpreferences,

thechartercanestablishasimple

administrativeframeworkoracomplexone,

providefortheappointmentorelectionof

majoradministrativeofficials,andsoon.And

finally,thechartercanprovideforthecreation

ofanyboardsorcommissionsthatlocalvoters

decidearenecessarytomakethecityfunction

effectively.

Annexation

From1912-2019,whenH.B.347passed,the

inherentpowertounilaterallyannexadjoining

areaswasoneofthemostimportanthome

ruleprerogatives.Toannex“unilaterally”

meansthatthecitycanbringanadjacent,

unincorporatedareaintothecitywithoutthe

permissionofthepersonsresidinginthatarea.

In2019,thelegislaturepassedH.B.347.The

billdrasticallyalteredtheannexation

landscapeforallcities.Thebillprovidesthata

city:

1) Mayannexvacantlandatrequestof

theowner

2) mayannexanareawithapopulationof

lessthan200onlyifthefollowing

conditionsaremet,asapplicable:(1)

thecityobtainsconsenttoannexthe

areathroughapetitionsignedbymore

than50percentoftheregistered

votersofthearea;and(2)ifthe

registeredvotersoftheareadonot

ownmorethan50percentoftheland

inthearea,thepetitiondescribedby

(1)issignedbymorethan50percentof

theownersoflandinthearea;and

3) mayannexanareawithapopulationof

200ormoreonlyifthefollowing


thecityholdsanelectioninthearea

proposedtobeannexedatwhichthe

qualifiedvotersoftheareamayvote

onthequestionoftheannexationand

13

amajorityofthevotesreceivedatthe

electionapprovetheannexation;and

(2)iftheregisteredvotersofthearea

donotownmorethan50percentof

thelandinthearea,thecityobtains

consenttoannextheareathrougha

petitionsignedbymorethan50

percentoftheownersoflandinthe

area.

Initiative,Referendum,andRecall

Initiative,referendum,andrecallareinherent

homerulepowersthatarereservedfor

exclusiveusebylocalvotersinorderto

providedirectremediesinunusualsituations.

Thereisnoconstitutionalorstatutory

authorityforinitiative,referendum,orrecall.

Thesepowersareuniquetohomerulecities,

andtheyarenotavailabletovotersatany

otherlevelofgovernment,includingthestate.

Initiativeisaprocedureunderwhichlocal

votersdirectlypropose(initiate)legislation.

Citizenlawmakingthroughtheinitiative

processallowslocalvoterstocircumventthe

citycouncilbydirectballotboxactiononnew

ordinancesthathavewidesupportinthe

community,butwhichthecouncilrefusesto

enact.

Theinitiativeprocessbeginswithcirculationof

apetitionsettingforththetextofthedesired

ordinance.Then,petitionersmustobtainthe

numberofvotersignaturesneededtoforce

thecitycounciltosubmittheordinancetothe

peopleatacitywideelection.Petition

signaturerequirementsvaryfromcharterto

charter.Somearebasedonapercentageof

thenumberofqualifiedvotersinthecity,

whileothersareexpressedasaratioofthe

numberofvotescastatthelastgeneralcity

election.

Afteracompletedpetitionisfiled,thecity

secretarychecksittomakesurethatallof

thosewhosignedarequalifiedvoters.Ifthe

petitioncomplieswiththerequirementsofthe

charter,thecitycouncilhastwooptions:(1)it

canadopttheproposedordinance;or(2)it

mustcallanelectionontheordinance.If,at

theelectionontheproposedordinance,a

majorityofthosevotingfavoritsadoption,the

ordinanceisputintoeffect.

Referendumisaprocedureunderwhichlocal

voterscanrepealunpopular,existing

ordinancesthecouncilrefusestorescindbyits

ownaction.Theproceduresforforcingthecity

counciltocallareferendumelectionare

usuallythesameasforinitiativeelections.

Petitionscallingforanelectiontorepeal

“OrdinanceX”arecirculated.Whenthe

requirednumberofsignaturesisobtained,the

petitionissubmittedtothecitycouncil,which

caneitherrepealtheordinancebyitsown

actionorcallanelectionatwhichthepeople

canvotetorepealit.If,atsuchelection,a

majorityfavorsretainingtheordinance,itis

leftonthebooks.Ifamajorityfavorsits

repeal,itisrescindedwhenthecouncil

canvassestheelectionreturns.

Recallisaprocessbywhichlocalvoterscan

oustmembersofthecitycouncilbeforethe

expirationoftheirterms.Undermostcharters,

arecallelectionbeginswiththefilingofan

affidavitstatingthenameofthe

councilmemberwhoseremovalissoughtand

thegroundsforremoval.Thecityclerkor

secretarythenfurnishesthepersonfilingthe

affidavitwithpetitionformsthatmustbe

completedandreturnedwithinaprescribed

time.

Mostcitychartersimposetwofurther

limitationsonrecallefforts.First,theyprohibit

morethanonerecallelectionper

14

councilmemberperterm.Secondly,they

forbidrecallelectionsforanycouncilmember

duringtheearlystagesofhisorherterm—as,

forexample,prohibitinganelectiontorecalla

councilmemberwithin60daysofthedatehe

orshewasswornintooffice,orprohibiting

recallelectionsforcouncilmemberswhose

termswillexpirewithin60days.Thefollowing

languageistypicalofcharterrecallprovisions:

Thepeopleofthecityreservethepowertorecallanymemberofthecouncilandmayexercisesuchpowerbyfilingwiththecityclerkapetition,signedbyqualifiedvotersofthecityequalinnumbertoatleasttenpercentofthequalifiedvotersofthecity,demandingtheremovalofacouncilman.

CharterAmendments

Inadditiontoinitiativeandreferendum,direct

lawmakingbylocalvoterscanbeaccomplished

throughamendmentstothecharterdocument

itself.UnderSection9.004oftheLocal

GovernmentCode,citizenscanforcethecity

counciltocallanelectiononaproposed

charteramendmentbysimplyfilingapetition

signedbyfivepercentofthequalifiedvoters

or20,000,whicheverisless.Voter-initiated

charteramendments,ifadopted,canchange

mostaspectsofthecitygovernment.

LimitationsonHomeRulePowers

Althoughthepowersofahomerulecityare

extensive,theyremainsubjecttoallofthe

limitationsimposedbystateandfederallaw.

Someofthesearebrieflysummarizedbelow.

Everycitymustcomplywiththefederaland

stateconstitutionandstatutoryrequirements.

Examplesincludestatestatutesthatrequire

everycitytopayunemploymenttaxes,that

requirecitieswith10,000ormorein

populationtopaylongevitycompensationto

itspoliceofficersandfirefighters,orprohibit

conductingregularcityelectionsonanyday

exceptonthosedaysprescribedbythe

ElectionCode.

Thoughcertainlimitationsareimposedon

homerulecitiesbythestate,somecanbe

furthernarrowedbylocalaction.Forexample,

theTexasConstitutionauthorizesanycitywith

morethan5,000inhabitantstolevyproperty

taxesatamaximumrateof$2.50per$100

assessedvaluation.Butahomerulecharter

maysetalocalceilinglowerthanthat.Ifa

city’scharterlimitsthecitytaxrateto$1.70

per$100ofassessedvaluation,thisprovision

hasthesameeffectasstatelaw.Thecity

councilisboundbyiteventhoughthestate

constitutionpermitsahigherrate.

Additionally,thegoverningbodyofahome

rulecitycannotactonanymatterwhichhas

beenpreemptedbythestate.Forexample,

theTexasAlcoholicBeverageCodefixesthe

businesshoursofretailliquorstores.

Therefore,anordinancerequiringliquorstores

toopenorcloseattimesotherthanthose

prescribedbystatelawmaynotbeenacted.

Finally,whenacharterprovisionconflictswith

astatelaw,thestatelawcontrols,unless

expresslystatedotherwise.

TheCharterDocument

Althoughallmunicipalgovernmentsare

subjecttoanabundanceoffederalandstate

laws,thecharterremainsthemostimportant

documentforahomerulecity.Membersof

thecouncilshouldreadthecharter

15

immediatelyupontheirelectiontooffice;

annualreviewsalsocanbeuseful.

Mostchartersincludethefollowing

components:

• Provisionsestablishingthecity’sform

ofgovernment(mayor-council,council-

manager,andsoon)anditslegislative

andjudicialmachinery;

• Organizationalprovisionsestablishing

theadministrativestructureofthecity

governmentandthemeansfor

financingitsoperations;

• Provisionsgoverningtheproceduresof

thecitycouncilandadvisoryboards

andcommissions,andproceduresfor

grantingfranchises,andassessingand

collectingtaxes;and,

• Popularcontrolsoverthecity

government,suchaselections,

referenda,initiative,andrecall.

FormsofHomeRuleCity

Government

Everyhomerulecityinthestateoperates

underoneoftwoformsofgovernment:

mayor-councilorcouncil-manager.Among

Texas’approximately385homerulecities,the

vastmajorityhavethecouncil-managerform.

Mayor-CouncilGovernment

Themayor-councilplanhastwovariants:

strong-mayorandweak-mayor.Underthe

strong-mayorsystem,mostkeyadministrative

andappointivepowersareconcentratedinthe

handsofafull-timemayorwhoalsopresides

overmeetingsofthecitycouncil.Themayor

usuallyhas:(1)thepowertoappointand

removedepartmentheadsandthemembers

ofmostmajorboardsandcommissions;(2)the

prerogativetopreparethecitybudgetand,

followingitsadoptionbythecouncil,to

executethebudget;(3)ahighenoughsalaryto

enabletheofficeholdertodevotetheirfull

timetobeingmayor,aswellasanoffice

budgetsufficienttohireanadequatestaff;and

(4)thepowertovetoactionsbythecity

council.Inastrong-mayorcity,

councilmembershavenoadministrative

duties.Theirroleistoenactordinances,adopt

policiesgoverningtheoperationsofthecity,

andotherwisefunctionasthelegislative

branchofthecitygovernment.

Undertheweak-mayorsystem,thepowersof

themayorarelimited.First,themayormaybe

selectedbythecouncilratherthanbeing

directlyelectedbythepeople,whichdilutes

hisorherpoliticalinfluence.Secondly,the

mayor’spayisusuallyminimalandfew,ifany,

fundsareprovidedforstaff.Third,department

headsoftenareappointedandremovedby

majorityvoteofthecitycouncil,whichdiffuses

administrativeauthority.Andfinally,fewweak

mayorshaveeithertheauthoritytoveto

actionsofthecouncilortheexclusivepowerto

developandexecutethebudget,sincethese

powersarecollectivelyexercisedbythe

council.

VeryfewhomerulecitiesinTexasusethe

weak-mayorformofgovernment.

Council-ManagerPlan

Thebasicstructureofthecouncil-manager

formofgovernmentissimilartothatofa

privatecorporationwherethestockholders

electaboardofdirectorswhichthenhiresa

presidenttorunthecompany.Underthe

council-managerplan,thevoterselectacity

councilwhich,inturn,hiresacitymanagerto

administerthecity’sday-to-dayaffairs.

16

Inacouncil-managercity,asinanyotherform

ofcitygovernment,thecouncilservesasthe

legislativebody.Thecouncilsetspolicy,

approvesthebudgetandsetsthetaxrate,and

determinesthesizeofthepayrollandthe

extentandcostofmunicipalservices.Inshort,

thecouncilisthefinalauthorityonallofthe

manypolicydecisionsthatdeterminethe

scopeandfunctionsofthecitygovernment.

Underthecouncil-managerplan,themayor

andcouncilmembershavenoadministrative

duties.Thesearevestedinthecitymanager,

whoisresponsiblefordirectingtheworkforce

andprogramsofthecityinaccordancewith

ordinances,rules,andregulationsadoptedby

thecouncil.ThetypicalcitymanagerinTexasis

appointedforanindefinitetermandissubject

todismissalbythecouncilatanytimeexcept

asotherwiseprohibitedbylaw.Heorsheis

designated,eitherbycharterorordinance,as

thechiefexecutiveandadministrativeofficer

ofthecityandisaccountabletothecouncilfor

theproperconductofallmunicipaloperations.

Themanagerhastheunilateralauthorityto

hire,discipline,andfirethedepartmentheads.

Althoughthemanager’srolevariesfromone

citytoanother,themanager’sprimary

functionistoimplementthepolicies

establishedbythecouncilandensurethatthe

cityisoperatedinaneconomicaland

responsiblemanner.Specificdutiesofthe

managermayincludethefollowing:

1) Enforcingallcityordinances,rules,andregulations.

2) Supervisingallmunicipalemployees

andprograms.

3) Preparingandexecutingthecity’sannualbudgetpursuanttotherevenue

andexpenditureplansadoptedbythe

council.

4) Managingthecity’sfundsand

preparingperiodicreportsthatadvise

thecouncilandthegeneralpublicof

thecity’sfinancialcondition.

5) Providinginformationtothecouncilto

facilitateitsabilitytomakeinformed

decisionsinthebestinterestsofthe

community.

6) Preparingcouncilmeetingagendasand

attendingallsuchmeetingstoserveas

aresourcetothecouncilandthe

public.

7) Drawingthecouncil’sattentiontocommunityneedsandrecommending

alternativesbywhichthecouncilcan

respondtothoseneeds.

Inlargercities,citymanagersspend

comparativelylittletimeoncitizencontacts,

personnelproblems,andotherroutine

matters.Managersinthesecitiesusuallyhave

asizablestaffcapableofhandlingday-to-day

problems,thusallowingthemanagerto

concentrateoncommunicatingwiththe

council,policyissues,planningactivities,and

worksessionswithdepartmentheads.

Ontheotherhand,themanagersofmedium-

sizedandsmallercitiesfrequentlyoperate

withlimitedresourcesandsmallstaffs.The

managermust,bynecessity,bepersonally

involvedinthedetailsofprovidingpolice,fire,

solidwaste,andotherservices.

17

ChapterTwo:

RolesandResponsibilitiesof

OfficersinGeneralLawCitiesAllmembersofthecitycouncilplayunique

rolesinmakingthecitygovernmentoperate

effectivelyinagenerallawcity.Manyoftheir

functionsaresetbylaw,whileothersare

establishedasamatteroflocalcustomor

policy.

OfficeoftheMayor

Themayoroccupiesthehighestelectiveoffice

inthemunicipalgovernment.Aspoliticalhead

ofthecity,themayorisexpectedtoprovide

theleadershipnecessarytokeepitmovingin

theproperdirection.

Exceptunderthecitymanagerplanof

government,themayoristhecity’schief

executiveofficer.Themayorpresidesover

councilmeetingsandisgenerallyrecognizedas

theceremonialandgovernmentalheadofthe

cityformostpurposes.

Mostofthepowersexercisedbythemayor

arecreatedthroughordinancesand

resolutionsadoptedbythecitycouncil.Very

fewmayoralpowersareprescribedbystate

law.

LegislativeResponsibilities

Themayor’smostimportantdutyistocarry

outthelegislativeresponsibilitiesheorshe

shareswithothermembersofthecouncil—

identifyingtheneedsofthecity,developing

programstosatisfythoseneeds,and

evaluatingtheextenttowhichmunicipal

servicessatisfactorilyreflectthepolicygoalsof

thecouncil.

Underthelaw,themayoristhepresiding

officerofthecitycouncil.Inthiscapacityas

presidingofficer,themayor’sactualpowersin

legislativematterscanbegreaterthanthose

ofothercouncilmembers.Forexample,the

mayorcaninfluencetheflowofdebate

throughthepowertorecognize

councilmembersformotionsorstatements.

Also,themayorrulesonquestionsof

procedureatcouncilmeetings,andthose

rulingsarebindingunlesssuccessfully

challengedbyamajorityofthegoverning

body.Finally,themayorofaTypeAgeneral

lawcitycanformallyobjecttoordinancesand

otherresolutionspassedbythecouncil.Ifthe

mayorobjectstoanordinanceorresolution

beforethefourthdayafteritisplacedinthe

citysecretary’soffice,itmustbereconsidered

bythegoverningbody.Ifapproved,itbecomes

effective(LocalGovernmentCodeSection

52.003).

AppointivePowers

Appointivepowersrepresentanotherareain

whichthemayor’spowersoftenoutrankthose

ofcouncilmembers,especiallywhenthemayor

isauthorizedbyordinancetoappoint

departmentheadsandadvisoryboard

members.InChapter25council-manager

cities,themayor’sappointivepowersaremore

limited,becausethecitymanagermayappoint

allormostadministrativeemployees.

Althoughmostofthemayor’sappointive

18

powersareestablishedbyordinancesenacted

bythecitycouncil,someareestablishedby

statelaw,suchasthepowertoappoint

commissionersofahousingauthority(Local

GovernmentCodeSection392.031).

LawEnforcementandRelatedDutiesofthe

Mayor

Theofficeofthemayorinvolvesavarietyof

lawenforcementresponsibilities.Themayoris

specificallyobligatedbylawto“activelyensure

thatthelawsandordinancesofthecityare

properlycarriedout,”and“intheeventofa

riotorunlawfulassemblyortopreservethe

peace,”themayormayordertheclosingof

certainpublicplaces.

Underextremecircumstances,asinthecaseof

ariot,themayorofaTypeAgenerallawcity

cansummonaspecialpoliceforceintoservice

(LocalGovernmentCodeSection341.011)or

callforassistancefromtheTexasNational

Guard.Also,ifthecityhasusedtheprovisions

ofSections362.001etseq.,LocalGovernment

Code,toenterintoamutuallawenforcement

pactwithothernearbycitiesorthecounty,the

mayorcancallonthoselocalitiesforhelpin

dealingwithcivildisordersandother

emergencies.Additionally,mostlocal

emergencymanagementplansauthorizethe

mayortoexercisesupremepowersincaseofa

publiccalamity,afterthemayorhasdeclareda

localdisasteroraskedthegovernortodeclare

astateofemergency.Statelawalsopermitsa

mayortorequireamandatoryevacuation

orderandcontrolwhocanaccessanarea

duringaphasedreentry(GovernmentCode

Chapters418and433).

JudgeoftheMunicipalCourt

Ineverygenerallawcitywherenoseparate

officeofjudgeofthemunicipalcourtexistsby

ordinance,themayorisexofficiojudgeofthe

court(GovernmentCodeSection29.004).A

mayorservingastheexofficiomunicipaljudge

muststillreceivetheannualtrainingrequired

ofallmunicipaljudges.

SignatoryDuties

Assignatoryforthecity,themayormaybe

requiredtosignavarietyofdocumentstogive

themofficiallegaleffect.Themayor’s

signatureisrequiredonallbonds,certificates

ofobligation,warrants,andotherevidenceof

debt,aswellasmayberequiredon

ordinances,resolutions,advertisementsfor

bidsonpublicworksprojects,contracts,and

similarlegalpaperwork.Themayorisalso

responsibleforsigningproclamations

recognizingspecialeventsandpersonal

achievements.

CeremonialDuties

Themayor’sparticipationinlocalceremonial

eventsisanever-endingresponsibility.The

mayorisexpectedonadailybasistocut

ribbonsatceremoniesopeningnew

businesses;breakthegroundtobeginthe

constructionofnewcityfacilities;and

regularlyappearatfairs,parades,beauty

pageants,andothercommunitycelebrations.

Themayoralsoissuesproclamationsfora

varietyofpurposes,whethertohonorvisiting

dignitariesordeclare“SupportYourLocal

SchoolWeek.”Andasafeaturedspeaker

beforeprofessionalclubs,schoolassemblies,

andneighborhoodgroups,themayorcan

expecttobeinterviewed,photographed,and

otherwiseplacedonextensivepublicdisplay

bythemedia.

19

AdministrativeDuties

ExceptinChapter25council-managercities,

themayorservesinthedualrolesof

administratorandpoliticalheadofthecity,

goingtocityhallonaregularbasis,working

withdepartmentheadsonmattersthatneed

attentioneachday,andperformingthe

ceremonialdutiesthatgowiththeoffice.In

somecases,ordinancesapprovedbythe

councilgivethemayorwidelatitudetodeal

withthemanyproblemsthatariseeachday.

Also,anadministrativestaffissometimes

availabletohelpthemayor,buttheofficestill

involvesconsiderablymoreeffort—and

power—thanitscounterpartincitiesoperating

underthecitymanagerplan.

LimitationsontheMayor’sPowers

Thebroadpowersofthemayorcanbeoffset

byseveralmethods,includingordinance

requirementsthatthecouncilratifymayoral

appointmentsandotherkeyactions.

Limitingthemayor’spoweratthecounciltable

isanotherwayofimposingrestraints.InType

Agenerallawcities,forinstance,themayoris

allowedtovoteonlyintheeventofatie(Local

GovernmentCodeSection22.037).Asstate

lawisunclearonthemayor’sabilitytovotein

TypeBgenerallawcities,thosecitiesshould

consultwiththeirlocallegalcounselwith

questions.

Themayor’sprerogativescanalsobe

restrictedbythestructureofthecity

government.UndertheChapter25council-

managerplan,forexample,themayorhasno

administrativepowersandwillprobablybein

cityhallonalessfrequentbasis.The

ordinancesofmostcouncil-managercitiesalso

makeitclearthatdecision-makingistobe

sharedbythefullcouncil,andthatthemayor

istobeconsideredthesameasanyother

memberofthegoverningbodyforpolicy

purposes.Thisisaccomplishedby

concentratingadministrativepowersinthe

handsofacitymanager,whoactsunderthe

directionofthefullcouncil.

QualificationsofOffice

InTypeAgenerallawcities,everycandidate

fortheofficeofmayormustmeetthe

followingqualifications:

1) BeaUnitedStatescitizen;2) HavebeenaresidentofTexasforat

least12months,asofthedeadlinefor

filingfortheoffice;

3) Haveresidedinthecityforatleast12monthsprecedingelectionday;

4) Bearegisteredvoter;5) Be18yearsofageorolderuponthe

commencementofthetermtobefilled

attheelection;

6) Nothavebeenconvictedofafelonyforwhichheorshehasnotbeenpardoned

orotherwisereleasedfromthe

resultingdisabilities;and

7) Nothavebeendeemedmentally

incompetentbyafinaljudgmentofa

court.

(ElectionCodeSection141.001;Local


InTypeBandTypeCgenerallawcities,every

candidateformayormustmeetthe

qualificationslistedabove,exceptthatheor

shemusthaveresidedinthecityforsix

months,ratherthantwelve,precedingelection

day(ElectionCodeSection141.001;Local


20

TermsofOffice

InaTypeBgenerallawcityoperatingunder

thealdermanicformofgovernment,the

mayor’stermofofficeisoneyear,unlessthe

boardofaldermenhasenactedanordinance

providingatwo-yeartermforthemayorand

two-yearoverlappingtermsforaldermen

(LocalGovernmentCodeSection23.026).Ina

TypeAgenerallawcity,thetermofthemayor

andmembersofthecitycouncilorboardof

aldermenistwoyears(LocalGovernment

CodeSection22.035).InaTypeCgenerallaw

city,themayor’stermofofficeistwoyears

(LocalGovernmentCodeSection24.023).

Inanycity,thetermofofficeformembersof

thegoverningbodycanbeextendedtothree

yearsorfouryearsuponapprovalofamajority

ofthevotersvotingatanelectiononthe

question(TexasConstitution,ArticleXI,

Section11).

Vacancies

Whenthemayoristemporarilyunableto

performhisorherdutiesbecauseofillness,

out-of-towntravel,orsimilarreasons,the

mayorprotemassumestheresponsibilitiesof

theofficeonaninterimbasis(pleasesee

discussionofmayorprotemonthenextpage).

Butifapermanentvacancyoccursintheoffice

ofmayorasaresultofdeath,disability,

resignation,orsomeotherreason,thevacancy

shouldbefilledaccordingtoprescribed

procedures.


thealdermanicformofgovernment,amayoral

vacancymustbefilledbyappointmentbythe

boardofaldermen.Thetermoftheperson

appointedexpiresatthesametimethatthe

termofthepersonwhovacatedtheoffice

wouldhaveexpiredifheorshehadremained

inoffice(LocalGovernmentCodeSection

23.002).

InaTypeAgenerallawcityoperatingunder

thealdermanicformofgovernment,the

vacancycanbefilledeitherbyappointmentof

thecitycouncilorbyaspecialelectionifthe

mayor’sofficeistheonlyonevacant.

However,ifanothervacancyexistsonthe

boardofaldermenwhenthemayor’sofficeis

vacant,bothvacanciesmustbefilledata

specialelection.Whenavacancyisfilledby

appointment,thetermoftheperson

appointedexpiresatthenextgeneral

municipalelection.Whenavacancyisfilledby

specialelection,thepersonelectedservesout

theremainderoftheunexpiredtermofthe

vacancybeingfilled(LocalGovernmentCode

Section22.010).

InaTypeCcityoperatingunderthe

commissionformofgovernment,avacancyin

theofficeofmayormustbefilledby

appointmentbythetworemainingmembers

oftheboardofcommissioners.Butifthereare

twovacanciesontheboardofcommissioners,

theymustbefilledataspecialelectioncalled

bythecountyjudge,andthepersonselected

serveouttheremainderoftheunexpired

termsofthevacanciesbeingfilled(Local


Ifthetermsofofficeinacityhavebeen

changedtothreeorfouryears,appointment

tofillavacancyisnolongeranoption.Any

vacancymustbefilledbyspecialelection

(TexasConstitution,ArticleXI,Section11).

Absences

UnderSection22.041oftheLocalGovernment

Code,“ifamemberofthegoverningbodyis

absentforthreeregularconsecutivemeetings,

themember’sofficeisconsideredvacant

21

unlessthememberissickorhasfirstobtained

aleaveofabsenceataregularmeeting.”

Removal

Proceduresforremovingthemayorora

councilmemberfromofficearesetforthin

Section21.002oftheLocalGovernmentCode.

Underthelaw,amemberofthegoverning

bodyissubjecttoremovalforincompetence,

officialmisconduct,orintoxication.Apetition

forremovalmustbefiledwithadistrictcourt,

maybefiledbyanyresidentofthecity,and

muststatetheallegedgroundsforremoval.

Thejudgemaydecidetoissueacitationtothe

memberinquestionormaydeclinetodoso.If

thejudgedeclinestoissueacitation,the

petitionisdismissedatthecostofthe

petitioner.Ifthejudgeissuesacitationtothe

member,themembermustappearbeforethe

judgetoanswerthepetitionandmayrequest

atrialbyjury.Thepetitionermustexecutea

bondinanamountfixedbythejudge.The

bondshallbeusedtopaydamagesandcosts

tothememberiftheallegedgroundsfor

removalarefoundtobeinsufficientoruntrue.

Thefinaljudgmentontheissuemaybe

appealedbyeitherparty.Convictionofthe

memberforanyfelonyorofficialmisconduct

willresultinimmediateremoval,andthe

removedmemberisineligibleforreelection

fortwoyears.

Thereisnosuchthinginagenerallawcityas

“recall,”whichisaprocedurecitizenscanuse

tovoteanincumbentmayoror

councilmemberoutofofficebeforethe

expirationofhisorherterm.Thepowerof

recallislimitedtovotersinhomerulecitiesin

whichthecharterprovidesfortheprocedure.

Compensation

InTypeCcities,theboardofcommissioners

may,byordinance,fixthemayor’s

compensationatamaximumof$5foreach

regularcommissionmeetingand$3foreach

specialmeeting.Alternatively,theboardof

commissionersinacityoflessthan2,000can

paythemayorasalaryofupto$600peryear,

whiletheboardofcommissionersinacityof

2,000orgreaterpopulationcanpaythemayor

upto$1,200peryear(LocalGovernmentCode

Section141.003).

InTypeAandBgenerallawcities,no

maximumsalaryamountisfixedforthe

mayor.Thegoverningbodycansetthe

mayor’scompensationatanylevelitchooses

(LocalGovernmentCodeSections141.001and

141.002).Onlyonelimitationexists:anelected

officercannotreceiveapayincreasethatwas

approvedduringthetermforwhichhe

orsheiselected.Suchincreasewillbecome

effectiveonlyafterthenextgeneralmunicipal

electionatwhichtheofficeisfilled(Local


ExpenseReimbursement

Itiscommonplaceforthecitytoreimbursethe

mayorfortravelandotherexpensesincurred

onofficialcitybusinesstrips,suchasmeetings

oftheTexasMunicipalLeagueandsimilar

organizations.Mostcitytravelpoliciesare

establishedbyordinanceorresolution.

OfficeoftheMayorProTem

Themayorprotemporeisamemberofthe

councilwhoperformsthemayor’sduties

duringthemayor’sincapacityorabsence.The

mayorprotemisselectedbymajorityvoteof

thecouncilfromamongitsownmembership.

22

Themayorprotem’stermisoneyear.The

mayorprotemretainstherighttovoteonall

mattersbeforethecouncilwhileperforming

thedutiesofthemayor(LocalGovernment

CodeSections22.037and23.027).

OfficeofCouncilmember

Councilmembersarethecity’slegislators.

Theirprimarydutyispolicymaking,which

includesidentifyingtheneedsoflocal

residents,formulatingprogramstomeetthe

changingrequirementsofthecommunity,and

measuringtheeffectivenessofongoing

municipalservices.

Unlessrestrictedbystatelaw,each

councilmemberisentitledtovoteorabstain

oneveryquestiondecidedatacouncil

meeting,andhasfullparliamentaryprivileges

incouncilmeetings—includingtherightto

speakandmakemotionswhenrecognizedby

thechairandtherighttointroducenew

ordinancesandamendmentstoexistingones.

Thoughforemostinimportance,lawmakingis

justoneofmanyfunctionscouncilmembers

perform.Theyalsowearseveralotherhats,

whichonewriterdescribesasfollows:

• Regulator—Thecouncilexercises

regulatorypowersovertheconduct

andpropertyofitscitizens.Ithasthe

powertodeclarecertainconducttobe

criminal,torequirethatcertain

businessesandactivitiesbelicensed,

andtotellpropertyownershowand

forwhatpurposestheymayusetheir

property.

• Financier—Thecouncilmaylevytaxes,

assessfeesandcharges,andsellbonds

inordertofinancethemanyfunctions

ofthecitygovernment.Thecouncil

alsohastobudgettheexpenditureof

thecity’sfunds,andthenexplaintothe

peoplewhymunicipalgovernmentisa

bargaincomparedtothepriceof

rampantcrime,fires,disease,andallof

theotherproblemsthatwouldflourish

withoutpropercityservices.

• Employer—Thecouncilisresponsible

forallofthecity’semployees,and

mustseethattheyareadequatelypaid

andprovidedwithdecentworking

conditionsandfringebenefits.

• Buyer—Thecouncilisoneofthe

biggestpurchasersinthecommunity,

andmustseetoitthatthecitygetsthe

bestvaluepossiblefordollarsspent.

Eventhisisnotacompletedescriptionofall

thechallengesthatconfrontcouncilmembers.

Therealtaskisinprovidingleadershipand

directionforthecity,indecidingwhatneeds

tobedone,andinhelpingplanwhatthecity

willbeforfuturegenerations.

Qualifications

Ingenerallawcities,thequalificationsforthe

officeofcouncilmemberare:

1) BeaUnitedStatescitizen;2) HavebeenaresidentofTexasforat

least12monthsasofthedeadline

forfilingfortheoffice;

3) Haveresidedinthecityforatleastsixmonthsprecedingelectionday;

4) Bearegisteredvoter;5) Be18yearsofageorolderupon

thecommencementofthetermto

befilledattheelection;

6) Nothavebeenconvictedofafelonyforwhichheorshehasnotbeen

pardonedorotherwisereleased

fromtheresultingdisabilities;and

23

7) Nothavebeendeemedmentally

incompetentbyafinaljudgmentof

acourt.

(ElectionCodeSection141.001;Local

GovernmentCodeSections22.032and

23.024).

Oneadditionalrequirement:ifaTypeA

generallawcityhasbeendividedintowards,

everycouncilcandidatemust,atthetimeof

hisorherelection,bearesidentoftheward

heorsheproposestorepresentifelected


TermsofOffice

InaTypeBgenerallawcity,thetermofoffice

foraldermenisoneyear,unlesstheboardof

aldermenhasenactedanordinanceproviding

atwo-yeartermforthemayorandtwo-year

overlappingtermsforaldermen(Local

GovernmentCodeSection23.026).InaTypeA

generallawcity,thetermofofficefor

membersofthecitycouncilistwoyears

(overlappingterms)(LocalGovernmentCode

Section22.035).

Inanycity,thetermofofficeofmembersof

thegoverningbodycanbeextendedtothree

yearsorfouryearsuponapprovalofamajority

ofthevotersvotingatanelectioncalledonthe

question(TexasConstitution,ArticleXI,

Section11).

Vacancies


thealdermanicformofgovernment,vacancies

ontheboardofaldermen—whateverthe

numberofvacancies—mustbefilledby

appointmentbytheremainingmembersofthe

board(LocalGovernmentCodeSection

23.002).

InaTypeAgenerallawcityoperatingunder

thealdermanicformofgovernment,when

thereisonlyonevacancyonthegoverning

body,thevacancycanbefilledeitherby

appointmentofthecitycouncilorbymeansof

aspecialelection.However,iftherearetwoor

morevacanciesonthegoverningbody,such

vacanciesmustbefilledataspecialelection


InaTypeCgenerallawcity,asinglevacancy

mustbefilledbyappointmentbythetwo

remainingmembersoftheboardof

commissioners.Butiftherearetwovacancies

ontheboard,theymustbefilledataspecial

electioncalledbythecountyjudge(Local


Absences

UnderSection22.038oftheLocalGovernment

Code,anillnessofanaldermanorsomeonein

hisorherfamilyistheonlyreasonforabsence

fromcouncilmeetingsinaTypeAgenerallaw

citywithoutafine.Unexcusedabsencesare

punishablebyafineof$3foreachcouncil

meetingmissed.Ifanaldermanisabsentfor

threeconsecutiveregularmeetings—unless

becauseofsicknessorthealdermanhas

obtainedaleaveofabsenceataregular

meeting—hisorherofficeshallbevacant.


Thereisnolawapplicabletoabsencesby

aldermeninTypeBgenerallawcitiesor

membersoftheboardofcommissionersin

citiesoperatingunderthecommissionformof

government(TypeCgenerallawcities).

However,incitiesover500population,which

operateunderthecommissionformof

24

government,Sections51.035and51.051(the

“borrowingprovisions”)oftheLocal

GovernmentCode(relatingtotheapplication

oflawstocitieswiththecommissionform)

wouldprobablymakeSections22.038and

22.041oftheLocalGovernmentCode(relating

toabsences)applicabletosuchcities.TypeB

generallawcitiesshouldcontacttheirlocal

legalcounseltodiscussthisissue,asstatelaw

isunclear.

Removal

Proceduresforremovingacouncilmember

fromofficeinagenerallawcityarethesame

asforthemayorandaregovernedbyChapter

21oftheLocalGovernmentCode.

Compensation

InTypeCcities,theboardofcommissioners

may,byordinance,fixcommissioners’

compensationatamaximumof$5foreach

regularcommissionmeetingand$3foreach

specialmeeting.Alternatively,theboardof

commissionersinacityof2,000orgreater

populationcanprovideforpaying

commissionersupto$600peryear(Local


InTypeAandBgenerallawcities,no

maximumsalaryamountisfixedforaldermen.

Therefore,thegoverningbodycanset

councilmembers’compensationatanylevelit

decides.Onlyonelimitationexists:an

aldermancannotreceivethebenefitofapay

increaseadoptedduringthetermforwhichhe

orsheiselected.Suchincreasewillbecome

effectiveonlyafterthenextgeneralmunicipal

electionatwhichtheofficeofthealderman

servingatthetimeofthepayincreaseisfilled

(LocalGovernmentCodeChapter141).


Itiscommonplaceforcitiestoreimburse

councilmembersfortravelandotherexpenses

incurredonofficialcitybusinesstripsto

meetingsoftheTexasMunicipalLeague,a

councilofgovernments,andsimilar

organizations.Mosttravelpoliciesare

establishedbyordinanceorresolution.

25

ChapterThree:

RolesandResponsibilitiesof

OfficersinHomeRuleCities

Allmembersofthecitycouncilplayunique

rolesinmakingthecitygovernmentoperate

effectivelyinahomerulecity.Manyoftheir

functionsaresetbylaw,whileothersare

establishedasamatteroflocalcustomor

policy.

OfficeoftheMayor

Themayoroccupiesthehighestelectiveoffice

inthemunicipalgovernment.Aspoliticalhead

ofthecity,themayorisexpectedtoprovide

theleadershipnecessarytokeepitmovingin

theproperdirection.

Exceptunderthecitymanagerplanof

government,themayoristhecity’schief

executiveofficer,justasthegovernorserves

aschiefexecutiveofthestate.Themayorpre-

sidesovercouncilmeetings,isthesignatory

forthecity,andisgenerallyrecognizedasthe

ceremonialandgovernmentalheadofthecity

formostpurposes.

Mostofthepowersexercisedbythemayor

arecreatedeitherbyprovisionsinthecharter

orthroughordinancesandresolutions

adoptedbythecitycouncil.Veryfewmayoral

powersareprescribedbystatelaw.

LegislativeResponsibilities

Themayor’smostimportantdutyistocarry

outthelegislativeresponsibilitiesheorshe

shareswithothermembersofthecouncil—

identifyingtheneedsofthecity,developing

programstosatisfythoseneeds,and

evaluatingtheextenttowhichmunicipal

servicessatisfactorilyreflectthepolicygoalsof

thecouncil.

Allchartersdesignatethemayoraspresiding

officerofthecitycouncilandassuch,hisor

heractualpowersinlegislativematterscanbe

greaterthanthoseofothercouncilmembers.

Forexample,aspresidingofficerofthe

council,themayorcaninfluencetheflowof

debatethroughthepowertorecognize

councilmembersformotionsorstatements.

Also,themayorrulesonquestionsof

procedureatcouncilmeetings,andthose

rulingsarebindingunlesssuccessfully

challengedbyamajorityofthegoverning

body.Finally,thechartersofsomecities

authorizethemayortovetoordinancesand

otherenactmentsapprovedbythecitycouncil.

AppointivePowers

Appointivepowersrepresentanotherareain

whichthemayor’spowersoftenoutrankthose

ofcouncilmembers,especiallyinmayor-

councilcitieswherethemayorisauthorizedto

appointdepartmentheadsandadvisoryboard

members.Incouncil-managercities,however,

themayor’sappointivepowersaremore

limited,sincethecitymanagerappointsallor

mostadministrativeemployees,andthefull

councilappointsthemembersofadvisory

boardsandcommissions.

26

SignatoryDuties

Assignatoryforthecity,themayorisrequired

tosignavarietyofdocumentstogivethem

officiallegaleffect.Themayor’ssignatureis

requiredonallbonds,certificatesof

obligation,warrants,andotherevidenceof

debt,aswellasordinances,resolutions,

advertisementsforbidsonpublicworks

projects,contracts,andsimilarlegal

paperwork.Themayorisalsoresponsiblefor

signingproclamationsrecognizingspecial

eventsandpersonalachievements.

CeremonialDuties

Themayor’sparticipationinlocalceremonial

eventsisanever-endingresponsibility.The

mayorisexpectedonadailybasistocut

ribbonsatceremoniesopeningnew

businesses;breakthegroundtobeginthe

constructionofnewcityfacilities;and

regularlyappearatfairs,parades,beauty

pageants,andothercommunitycelebrations.

Themayoralsoissuesproclamationsfora

varietyofpurposes,whethertohonorvisiting

dignitariesordeclare“SupportYourLocal

SchoolWeek.”Andasafeaturedspeaker

beforeprofessionalclubs,schoolassemblies,

andneighborhoodgroups,themayorcan

expecttobeinterviewed,photographed,and

otherwiseplacedonextensivepublicdisplay

bythemedia.

PowersoftheMayorinMayor-CouncilHome

RuleCities

Inmayor-councilhomerulecities,themayor

servesinthedualrolesofadministratorand

politicalheadofthecity.Heorsheisincity

hallonacontinuingbasis,workingwith

departmentheadsonroutineitemsthatneed

tobeaddressedeachday,handling

emergencies,andperformingallofthe

ceremonialdutiesthatgowiththeoffice.

Dependingonthecity,thechartermaygive

themayorbroadauthoritytodealwiththe

manyproblemsthatariseeachday.Askilled

administrativestaffusuallyisavailabletohelp

themayorcarrytheday-to-dayload.Also,in

somecities,thechartergivesthemayorthe

powertovetoactionsofthecouncil.

Thebroadpowersofthemayorinmayor-

councilcitiesusuallyareoffsetbycharter

provisionsthatrequirethecounciltoratify

mayoralappointmentsandotherkeyactions.

Also,therequirementforcouncilapprovalof

thebudgetprovidescouncilmemberswithan

effectivemethodofslowingdownazealous

mayorbyreducingorabolishingexpenditures.

Furthercheckscanbecreatedbydistributing

governmentalpowersinacertainway.Under

theHoustoncharter,forexample,provisionis

madeforanelectedcitycontrollerresponsible

forsupervisingtheexpenditureofmunicipal

fundsindependentofboththemayorand

council.

PowersoftheMayorinCouncil-Manager

HomeRuleCities

Underthecouncil-managerformof

governmentinahomerulecity,themayor’s

administrativeresponsibilitiesdiffersharply

fromthoseofamayorinamayor-councilcity.

Underthecouncil-managerplan,themayor

hasnoday-to-dayadministrativeduties;these

arevestedinacitymanagerwhoisresponsible

forimplementingpoliciesestablishedbythe

council.Inmostcouncil-managercities,the

mayorisincityhallonanirregularbasisandis

involvedverylittleinroutineoperational

matters.

27

Thechartersofmostcouncil-managercities

makeitclearthatdecision-makingistobe

exercisedbythefullcouncil,andthatthe

mayoristobeconsideredthesameasany

othermemberofthecouncilforpolicy

purposes.Thisisaccomplishedby

concentratingadministrativepowersinthe

handsofthecitymanagerandbyrequiring

actionbythewholecouncil,andnotjustthe

mayor,toappointkeyboardandcommission

members.

Andfinally,anumberofstatelawsfurther

ensurethatthefullcouncilshareappointive

powers.AnexampleisLocalGovernmentCode

Section211.008,whichrequiresthatthecity’s

governingbodyappointthezoningboardof

adjustment.

LimitationsontheMayor’sPowers

Asnotedabove,thepowersofthemayorin

bothmayor-councilandcouncil-manager

homerulecitiescanbelimitedbyrequiringfull

councilapprovalofthebudgetandboardand

commissionappointments,andbydistributing

governmentalpowersamongavarietyofcity

officialsratherthanconcentratingtheminthe

officeofmayor.Anotherwaytoimpose

restraintsonthemayoristolimithisorher

poweratthecounciltable.Forexample,some

chartersinhomerulecitiesdonotallowthe

mayortoinitiatemotionsatcouncilmeetings.

Somechartersforbidthemayorfromvoting

excepttobreakatie.

OfficeoftheMayorProTem

Themayorprotemporeisamemberofthe

councilwhoperformsthemayor’sduties

duringthemayor’sincapacityorabsence.The

mayorprotemisusuallyselectedbymajority

voteofthecouncil,andhisorhertermisoften

thesameasthatofacouncilmember.Insome

cities,thetermofmayorprotemisshorter;in

onecity,forexample,eachcouncilmember

servesathree-monthtermasmayorprotem

onarotatingbasis.

OfficeofCouncilmember

Councilmembersarethecity’slegislators.

Theirprimarydutyispolicymaking,which

includesidentifyingtheneedsoflocal

residents,formulatingprogramstomeetthe

changingrequirementsofthecommunity,and

measuringtheeffectivenessofongoing

municipalservices.

Unlessrestrictedbystatelaw,each

councilmemberisentitledtovoteorabstain

oneveryquestiondecidedatacouncil

meeting,andhasfullparliamentaryprivileges

incouncilmeetings—includingtherightto

speakandmakemotionswhenrecognizedby

thechairandtherighttointroducenew

ordinancesandamendmentstoexistingones.

Thoughforemostinimportance,lawmakingis

justoneofmanyfunctionscouncilmembers

perform.Theyalsowearseveralotherhats,

whichonewriterdescribesasfollows:

• Regulator—Thecouncilexercises

regulatorypowersovertheconduct

andpropertyofitscitizens.Ithasthe

powertodeclarecertainconducttobe

criminal,torequirethatcertain

businessesandactivitiesbelicensed,

andtotellpropertyownershowand

forwhatpurposestheymayusetheir

property.

• Financier—Thecouncilmustlevytaxes,

assessfeesandcharges,andsellbonds

inordertofinancethemanyfunctions

ofthecitygovernment.Thecouncil

28

alsohastobudgettheexpenditureof

thecity’sfunds,andthenexplaintothe

peoplewhycitygovernmentisa

bargaincomparedtothepriceof

rampantcrime,fires,disease,andallof

theotherproblemsthatwouldflourish

withoutpropercityservices.

• Employer—Thecouncilisresponsible

forallthecity’semployees,andmust

seethattheyareadequatelypaidand

providedwithdecentworking

conditionsandfringebenefits.

• Buyer—Thecouncilisoneofthe

biggestpurchasersinthecommunity,

andmustseetoitthatthecitygetsthe

bestvaluepossiblefordollarsspent.

Inadditiontotheseeverydayduties,

councilmembersspendconsiderabletime

representingthecityinawidecircleof

externalrelationships.Examplesinclude:

• ServingoncommitteesoftheTexas

MunicipalLeagueandotherstatewide

localgovernmentorganizations.

• Workingwithstatelegislatorsoncity-

relatedbills.

• WorkingwiththeNationalLeagueof

Cities,theU.S.ConferenceofMayors,

andothernationalpublicinterest

groupsonmunicipalissuespending

beforeCongressorfederalregulatory

agencies.

• Supportingeffortsofthechamberof

commerce,industrialfoundations,and

otherorganizationstofosterthecity’s

economicdevelopment.

SizeoftheCouncil

Thereisnostatelawrequiringthecitycouncil

ofahomerulecitytobeanyparticularsize.As

istrueinsomanyotherareasofhomerule,

thesizeofthegoverningbodyisdetermined

bythecity’scharter.

MethodofElectingtheCouncil

Therearefourbasicmethodsofelectinghome

rulecitycouncilsinTexas.Thefirstistheat-

largesystem,underwhichcandidatesare

electedcitywidewithoutregardtowherethey

live.

Thesecondistheplacesystemofelectingthe

council,underwhichcandidatesruncitywide,

buteachmustfileforadesignatedseat(place)

onthecouncil.

Underanat-large/from-districtssystem,

candidatesareelectedcitywide,but

councilmembersmustresideindesignated

geographicalareasofthecity.

Underapuresingle-memberdistrictelectoral

system,allcandidatesforthecouncil(not

includingthemayor)mustliveindesignated

districtsofthecityandarevotedupononlyby

thevotersresidinginthosedistricts.

Additionally,anumberofcitiesusehybrid

electoralsystemsthatcombinevarious

featuresoftheplansdescribedabove.Mixed

systemsincludethoseinwhichsomemembers

ofthecouncilareelectedat-largeandthe

remainingcouncilmembersareelectedfrom

single-memberdistricts,orwheresome

membersofthecouncilareelectedat-large

andthebalanceareelectedfromdistrictsat-

large.

Qualifications

Everycandidatefortheofficeofmayoror

councilmembermustmeetthequalifications

29

prescribedbytheTexasElectionCode,which

requiresthatacandidate:

1) BeaUnitedStatescitizen;2) Be18yearsofageorolderuponthe

commencementofthetermtobefilled

attheelection;

3) HasbeenaresidentofTexasforatleast12monthsasofthedeadlinefor

filingfortheoffice;

4) Hasresidedinthecityforatleast6monthsasofthedeadlineforfilingfor

theoffice;

5) Hasnotbeenconvictedofafelonyforwhichheorshehasnotbeenpardoned

orotherwisereleasedfromthe

resultingdisabilities;

6) Hasnotbeenfoundmentally

incompetentbyafinaljudgmentofa

court;and

7) Bearegisteredvoter.

(ElectionCodeSection141.001).

TheElectionCodeauthorizeshomerulecities

toestablishtwoexceptionstothesesix

criteria.First,thechartercanrequirecouncil

candidatestobeupto21yearsold,rather

than18,uponthecommencementoftheterm

tobefilledattheelection.Second,thecharter

canrequirecandidatestoberesidentsofthe

cityfor12months,ratherthan6months,asof

thedeadlineforfilingforoffice(ElectionCode

Section141.003).

TermsofOffice

Thetermsofofficeformayorsand

councilmembersrangefromtwotofouryears

andaresetbythecity’scharter.

Morethanninetypercentofallhomerule

chartersprovidecontinuityonthegoverning

bodybystaggeringcouncilmembers’terms,

thuspreventingwholesalechangeoversonthe

councilatanyoneelection.Understaggered

termprocedures,thetermsofapproximately

halfofthemembersofthecouncilexpireat

onemunicipalelection,andtheotherhalf

expireatthenextelection.Inthecaseofa

seven-membercitycouncilwithtwo-year

terms,thetermsofthreemembersmight

expireduringeachodd-numberedyear,while

theotherfourtermswouldexpireduringeach

even-numberedyear.Somehomerule

charterslimitthenumberoftermsa

councilmembermayserve.

Vacancies

Vacanciesonthecouncilcanresultfrom

resignation,death,disability,recall,orfailure

ofacouncilmembertomeettherequirements

ofthecharter.Insomeinstances,avacancy

canoccurifamemberofthecouncil

announcesforanotherelectiveoffice.For

example,underArticleXI,Section11,ofthe

TexasConstitution,incitieswherethetermof

officeforcouncilmembersisthreeorfour

years,anycouncilmemberwhoannouncesfor

anotherelectiveofficeisautomatically

removedfromthecouncilifmorethanone

yearand30daysremainsinhisorhertermat

thetimeofsuchannouncement.

Also,somecitychartersprovidethatany

councilmemberwhorunsforanotheroffice

automaticallyvacateshisorherseatonthe

council.Acitychartermayprovidethat:

Ifanyofficerofthecityshallfileasacandidatefornominationorelectiontoanypublicoffice,excepttosomeofficeunderthischarter,heshallimmediatelyforfeithisoffice.

30

Proceduresforfillingvacanciesvaryfrom

chartertocharter.Insomeinstances,charters

requirethatvacanciesonthegoverningbody

befilledbyappointmentofthecouncilin

everycase,regardlessofwhetheraregular

municipalelectionisimminent.Thechartersof

othersrequirethecounciltofillasingle

vacancybyappointment,butiftwoormore

vacanciesexist,theymustbefilledataspecial

election.UnderArticleXI,Section11,ofthe

TexasConstitution,citieswiththree-orfour-

yeartermsmustfillallvacanciesbyelection

unless:(a)thereis12monthsorlessleftinthe

councilmember’sterm;and(b)thecharter

providesforappointment.Finally,some

chartersrequirethatallcouncilvacanciesmust

befilledbyspecialelection.Amongthese

cities,thecommonpracticeisnottorequire

specialelectionsincaseswherearegular

municipalelectionisimminent(forexample,

withinsixtytoninetydaysofthetimethe

vacancyoccurred).

Compensation

Aswithsomanyotheraspectsofhomerule

government,statelawissilentregardingthe

compensationofmayorsandcouncilmembers.

Assuch,thesalarycanbegovernedbythe

charterorsetbylocalpolicyifthecharteris

silent.

Salaries

Inmostofthecitiesoperatingunderthe

mayor-councilformofgovernment,themayor

mayreceiveasubstantialsalaryforhisorher

full-timeadministrativeservices.Incouncil-

managercities,thechartergenerallytreats

councilmembersaspart-timelegislatorsfor

whomminimumcompensationisprovided.

Mostchartersfixthedollaramountofthe

salaryorfeestobepaidtomembersofthe

governingbody.Afewpermitthecouncilto

setitsowncompensation.


Itiscommonplaceforcitiestoreimburse

councilmembersfortravel,hotel,andother

expensesincurredonofficialcitybusinesstrips

tomeetingsoftheTexasMunicipalLeague,

NationalLeagueofCities,andsimilar

organizations.Onlyasmallnumberofcharters

makeanymentionwhatsoeverof

councilmembers’expensereimbursement.

Mosttravelpoliciesareestablishedby

ordinanceorresolution.

OtherBenefits

Afinalcategoryofbenefitsfor

councilmembersincludesstaffandoffice

facilities.Again,thereisnoconsistencyamong

cities:benefitsrangefromprovidingpart-time

clericalhelptofull-timesecretariesand

administrativeassistants.

Aswithsomanyotherissues,thequestionof

what—ifany—staffandfacilitiesshouldbe

providedtocouncilmembersmustbedecided

locally.

31

ChapterFour:

PowersandDutiesofCitiesBothhomeruleandgenerallawcitieshavethe

authoritytodealwithmanyissues.General

lawcitiesmustlooktostatelawforthe

authoritytoact,whilehomerulecitiesmay

havemorelatitudeincertainareas(although

thestatelegislaturehasseenfittolimithome

ruleauthorityinmanyways).Belowisa

discussionofsomeofthebasicpowersgiven

tocities.

AdministrativeOversightin

GeneralLawCities

TheMayorasChiefExecutiveOfficer

Inagenerallawcity,amayor’sdutiesand

authoritycomefirstfromtheLocal

GovernmentCodeandotherstatelawand

thenmaybeexpandedbythecitycouncil.See

LocalGovernmentCodeSections22.037,

22.042,and23.027.Thecitycouncilina

smallercitymaygivethemayorthe

responsibilityofsupervisingthecity’s

employees,procuringsupplies,ensuringthat

thestreetsarecleanedandrepaired,and

overseeingthemultitudeofotheritemsthat

needattentioneachday.Departmentheads

reportdirectlytothemayor,whomeetswith

themfromtimetotimetocheckontheir

problems.Mostofthemayorswhoassume

theseextensiveresponsibilitiesusuallydosoin

additiontotheirregularjobs.

Thedegreeofflexibilitythecouncilpermitsthe

mayortoexerciseinadministrativematters

variesfromonecitytoanother.Insomecities,

thecouncilexpectsthemayortomakeroutine

decisionsonlyasspecificallyauthorizedby

ordinancesenactedbythegoverningbody.In

others,themayorisgivenfreereinoverthe

city’sadministration.

Placingtheleadresponsibilityfor

administrationinthehandsofthemayor

enablescitizensandthecitycounciltogoto

onecentralpointforsolutionstoparticular

problems.Also,thisarrangementcanhelp

focusaccountabilityandkeepthecity’s

businessmovingaheadsmoothlyand

efficiently.Atthesametime,thissystemcan

easilygoawryifthemayordoesnotgetalong

withthecouncilorwhencouncilmeetings

deteriorateintohagglingsessionsover

whetherthemayorhasthelegalauthorityto

dosomething.

TheCityCouncilas“AdministrativeBoard”

Inadditiontotheirlegislativeduties,somecity

councilssuperviselocaloperationsona

continuingbasis.Underthisapproach,thefull

councilapprovesallpurchasesandother

administrativedetails,anddepartmentheads

reportdirectlytothecouncilateveryregular

meeting.

Thisarrangementhastheadvantageof

providingthecouncilwithmaximumcontrol

overthecity’soperations.Ifadepartmentis

notfunctioningproperly,thecouncilcango

directlytothesourceoftheproblemandtake

correctiveaction.

Thedownsideisthatthecouncilmeetsjust

onceortwiceamonth,andmaynotbeableto

32

dealinatimelymannerwithproblemsasthey

arise.Delayscanoccurifadepartmentis

unabletoproceedwithaprojectbecauseof

snagsthatonlythecouncilcanovercome.

Also,thisarrangementtendstobeinefficient

unlesssomemethodisestablishedfor

coordinatingtheoperationsofvarious

departmentsonaregularbasisbetween

councilmeetings,whilenotviolatingopen

meetingslaws.

CityManagerorAdministrator

Manycitycouncilshavefounditadvantageous

todelegateadministrativepowersand

responsibilitiestoasingleappointiveofficeror

employee.Insomecases,thisofficialisthecity

managerorcityadministrator,whoseposition

hasbeenestablishedbyordinance.Inothers,

theleadadministrativeroleisassumedbythe

cityclerkorsecretary,theutilitymanager,or

anotherdepartmentheadwhoservesas“first

amongequals.”Whateverthetitle,theofficial

thecityhasdelegatedadministrativefunctions

toisresponsibleforoverseeingallthecity’s

operationsonacontinuingbasisandfor

reportingtothecouncilonbehalfofthe

variousdepartments.Alladministrativeactions

bythecouncilaretakenthroughtheofficial,

andanyquestionsthecouncilmayhave

concerningtheenforcementofordinancesor

performanceofcityprogramsaredirectedto

thatindividual.

Centralizingauthorityandaccountabilityin

oneappointedofficeroremployeecan

simplifythecouncil’sjob.Thecouncilwillbe

relievedofattendingtominordetailsandwill

havemoretimefortheimportanttaskof

settingpolicy.Withproperguidancefromthe

council,askillfuladministratorcancreatean

efficientmanagementteamcapableofrunning

itself.

Conversely,concentratingtoomuchauthority

inthehandsofanappointedofficeror

employeemayputabarrierbetweencitizens

andtheirelectedrepresentatives.Also,

allowingonepersontocontrolinformation

concerningthecity’sinternaladministrative

operationscanleadtoasituationinwhich

councilmembersareisolatedfromthereal-

worldproblemsthecommunityisexperiencing

withthecitygovernment.

Anotherformofadministrativeoversightofa

cityisaccomplishedbyanelectionunder

chapter25oftheLocalGovernmentCode.

Underthischapter,thecitymanagerposition

iscreatedpursuanttoanelection,andhis

dutiesareestablishedbystatelaw.Thisform

ofgovernmentisrareandhasdifferent

characteristicsfromotherformswherea

manageroradministratorpositioniscreated

solelybyordinanceatthecitycouncil’s

discretion.

CouncilCommittees

Mostsmallercitiesarefacedwiththeproblem

oflimitedresources,andtheresimplyarenot

enoughstaffmemberstohandlethemany

demandsimposedonthecityorganization.

Onemethodofdealingwiththisproblemisto

subdividethecouncilintoadministrative

committees,eachresponsibleforadifferent

areaofthecitygovernment.

Councilcommitteesusuallyareorganizedby

serviceorfunction:police,fire,health,budget,

andsoon.“Standingcommittees”are

permanentpanelsthatmeetregularlyand

haveassignedareasinwhichthereisalways

worktobedone.Ontheotherhand,“adhoc”

or“special”committeesserveonatemporary

basisanddealwithshort-termitemsthat

cannotbehandledbyastandingcommittee.

Attheoptionofthecitycouncil,eitherthefull

33

councilcandesignatethecouncilmembers

whochairorserveasmembersofthevarious

committeesorthecouncilcandelegatethis

authoritytothemayor.

Mostcouncilcommitteesserveastheliaison

betweenthegoverningbodyandindividual

citydepartments.Theycommunicatewith

departmentheads,ensurethatthefullcouncil

iskeptapprisedofdepartmentalproblems,

and,asnecessary,conductdepartmental

evaluationsandreporttheirfindingstothe

council.

Themostcommontemptationformembersof

councilcommitteesistooverstepthebounds

oftheirauthority.Althoughtheycanbevested

withsubstantialauthority—suchasthe

authoritytoconductinvestigationsortake

employmentaction—councilcommitteesdo

notpossesslegislativepowersandshould

neverattempttoactasiftheyarethecity

council.

Onecautionarynote:careshouldbetakento

avoidviolationsoftheTexasOpenMeeting

Act,whichrequiresthatmeetingsofall

governmentalbodiesbepostedinadvance

andopentothepublic.Ifthereissome

questionastowhethermeetingsofacouncil

committeearesubjecttotheopenmeeting

statute,thebestpracticeusuallyistoassume

thattheyare(seeTexasattorneygeneral

opinionsH-3,andJM-1072;andJC-60)and

consultwiththecityattorneyforguidance.

AdministrativeOversightinHome

RuleCities

Whilethesamegeneralpolicy-making

functionsaresharedbycitycouncils

everywhere,administrativeresponsibilities

differaccordingtotheparticularlocal

governmentorganization.Forexample,ifthe

cityoperatesunderacitymanageror

administratorplan,orifthemayorservesasan

administrativeheadofthecity,thecouncil

exercisescontrolinamoreindirectwayby

settingbroadpoliciesthatarelefttothe

mayorormanagerforexecution.

Regardlessoftheadministrativestructure

used,everycitycouncilshouldoperateonthe

basisofwrittenpoliciesthatsetoutthe

specificpowersanddutiesofallthecity’s

departmentsandofficials,andsomemethod

shouldbeestablishedforensuringthatthose

policiesarecarriedout.Policydecisionsare

notimplementedautomatically,andnomatter

howmuchcarefulthoughtmaygointotheir

preparation,thereisalwaysamanagementjob

tobedone.Someonemustassumethe

responsibilityfororganizingandcontrolling

thecity’sadministrativemachinery.

Thecity’scharter,alongwithlocalordinances

andpolicies,outlinetheadministrative

proceduresinahomerulecity.

ThePolicePower

Citieshavethepowertoregulateawiderange

ofactivitiesinordertopromotethegeneral

welfareofthecity’sresidents.Thisisknownas

thecity’s“policepower,”anditencompasses

allgovernmentalpowersexercisedforthe

publicgood.

Moreparticularly,thepolicepowerisdefined

asthecity’sauthoritytopreserveandpromote

thehealth,safety,morals,andwelfareoflocal

citizens.Itisbasedonthesupremacyofthe

rightsofthegeneralpublicoverindividual

rights.Someofthemorecommonmethodsby

whichcitypolicepowersareexercisedare

34

describedbelow.

Inordertopreservethepeace,thecitycouncil

hasthepowertocreateapolicedepartment

tomaintainorder,enactordinancescontrolling

noiseandotherdisturbances,andrequire

animalstobeleashed.Thecouncilalsocan

declarecertainactivitiestobepublicnuisances

andpenalizepersonswhocreatethem.

Withregardtopublichealthandsafety,the

councilhasthepowertotakeallactionsand

makeallregulationsthatmaybenecessaryor

expedientforthepromotionofhealthorthe

suppressionofdisease.Acity’sauthorityto

protectthehealthofthepublicisgenerally

broaderthanothercitypolicepowers.

Theregulationofdogsandotheranimals,the

regulationofunwholesomebusinesspractices,

andtheregulationofslaughterhousesarejust

afewofthepowersthecitycouncilmay

exercisetoprotectthehealthofitscitizens.

Thecouncilalsohasthepowertoenact

quarantineregulations,regulatecemeteries,

andregulateweedsandstagnantwater.The

authorityfortheseregulationscanbefoundin

theLocalGovernmentCode,theHealthand

SafetyCode,andotherstatutes.

Additionally,acitycanenactazoning

ordinancetoregulatetheheightandsizeof

buildings,thesizeoflotsanddensityof

population,thelocationanduseofbuildings,

andotheraspectsoflandandimprovements

thereon,andtheusestowhichtheyareput

(LocalGovernmentCodeChapter211).The

citycouncilalsohastheauthoritytoprescribe

somestandardsfortheconstructionof

buildingswithinthecity,regulatethe

conditionofbuildings,andcondemnunsafe

buildings.

Planning,SubdivisionControls,

andAnnexation

Thecitycouncilhasthepowertospendcity

fundstocompilestatistics,conductstudies,

andmakeplansfortheorderlygrowthofthe

cityandthewelfareofitsresidents.The

councilcancreateaplanningcommissionto

developandmaintainacityplan,andcan

establishaplanningdepartmenttoimplement

theplan.

Thecouncilcanestablishrulesandregulations

governingthesubdivisionanddevelopmentof

landwithinthecity.Thecityalsocanextendits

subdivisioncontrolstolandlocatedwithinthe

city’sareaofextraterritorialjurisdictionin

ordertoensuretheorderlydevelopmentof

outlyingareas(LocalGovernmentCode

Chapters212and213).

Priorto2017,ahomerulecitycouldannex

mostareaswithoutconsent.However,in

2017,thelegislaturebegantodrasticallyalter

theannexationlandscapebypassingS.B.6,

whichprovidedthatcertainhomerulecities:

(1) mayannexanareawithapopulationof

lessthan200onlyifthefollowing


thecityobtainsconsenttoannexthe

areathroughapetitionsignedbymore

than50percentoftheregistered

votersofthearea;and(2)ifthe

registeredvotersoftheareadonot

ownmorethan50percentoftheland

inthearea,thepetitiondescribedby

(1)issignedbymorethan50percentof

theownersoflandinthearea;and

(2) mayannexanareawithapopulationof

200ormoreonlyifthefollowing


35

thecityholdsanelectioninthearea

proposedtobeannexedatwhichthe

qualifiedvotersoftheareamayvote

onthequestionoftheannexationand

amajorityofthevotesreceivedatthe

electionapprovetheannexation;and

(2)iftheregisteredvotersofthearea

donotownmorethan50percentof

thelandinthearea,thecityobtains

consenttoannextheareathrougha

petitionsignedbymorethan50

percentoftheownersoflandinthe

area.

In2019,thelegislaturefinishedrestricting

citiesabilitytoannexwithoutconsent.H.B.

347,whichbecameeffectiveonMay24,2019,

nowappliestheserestrictionsonannexation

toallcities.Citiescaneitherfollowthe

procedureaboveorannexonrequestof

landowners.

RegulationofStreetsandOther

PublicPlaces

Thecitycouncilhassupervisorypowersover

allstreets,alleys,sidewalks,bridges,parks,

andotherpublicwaysandplaceswithinthe

city.Thecouncilhasthepowerto:(1)regulate

theuseofstreetsandotherpublicways,

provideforcleaningandlighting,preventand

removeencroachments,anddirectand

regulatetheplantingoftrees;(2)regulate

openingsforlayingoutgas,water,andother

mainsandpipes;(3)regulatetheuseof

sidewalksandrequiretheownersoroccupants

ofabuttingpremisestokeeptheirsidewalks

freefromobstructions;(4)preventactivities

thatwouldresultindamagetostreets,alleys,

orotherpublicgrounds;(5)regulate

crosswalks,curbs,andgutters;(6)regulateand

preventthepostingofsignposts,handbills,

andsimilaritemsonstreetsorsidewalks;

(7)regulatetrafficandsalesonstreets,

sidewalks,andotherpublicspaces;(8)control

weedylotsandjunkedvehicles;(9)regulate

thelocationofmanufactured

housing;and(10)regulatethelocationof

sexuallyorientedbusinessesand

establishmentsthatsellalcoholicbeverages.

ConstructionofPublicFacilities

Inadditiontoitsregulatorypowers,the

councilhastheauthoritytoerect,construct,

andmaintainawidevarietyoffacilitiesfor

publicuse,includingwaterandsewage

systems,airports,hospitals,parks,libraries,

transitsystems,electricandgassystems,

streets,bridges,culverts,sidewalks,street

lights,andmanyotherkindsoffacilities.

Acitymayconstructormaintaincertainpublic

facilitiesusingeithertraditionalcompetitive

biddingoranalternativeprocurementand

deliverymethod(suchasdesign-build,

constructionmanagement,ajoborder

contract,orcompetitivesealedproposals)that

providesthe“bestvalue”tothecity(Local

GovernmentCodeChapter252and

GovernmentCodeChapter2267).

DonationsofCityFunds

TheTexasConstitutionprohibitsthedonation

ofcityfundstoprivateindividuals,

corporations,orassociations(such

asgardenclubsorboyorgirlscouts),no

matterhowworthythecause.Thepurposeof

thisprohibitionistopreventacitycouncil

fromappropriatingpublicmoneyforprivate

purposes(TexasConstitution,art.III,§52,and

art.XI,§3).

36

Expendituresthatservea“publicpurpose”(for

example,contributionstoalocalvolunteerfire

department)mayfalloutsideofthe

constitutionalprohibitionagainstdonations.

Ifthecitycouncilwishestomakesuchan

expenditure,itmustdeterminewhetherthe

expenditureaccomplishesapublicpurpose,

andthedeterminationissubjecttoreviewby

thecourts.Writtencontractswithformal

controloveruseofacityexpenditureor

paymentareusuallynecessaryinorderforthe

counciltoensurethatthecityreceivessome

sortofpaymentorvalueforitsexpenditure—

theaccomplishmentofthepublicpurpose.

Theconstitutionalprohibitiondoesnotapply

toexpendituresmadeinconnectionwith

contractsforservicesprovidedbyengineers,

architects,andotherprofessionals,nortothe

paymentofduestotheTexasMunicipal

League,councilsofgovernments,orsimilar

organizations.

Acitymayestablishandimplementprograms

topromotestateorlocaleconomic

developmentandtostimulatebusinessand

commercialactivitywithinthecity.Aprogram

suchasthismayincludeprovisionsformaking

loansandgrantsofpublicmoneyandfor

utilizingthecity’spersonnelandservicesfor

thepurposeofeconomicdevelopment(Local

GovernmentCodeChapter380).

PaymentofBonusestoCity

Employees

TheStateConstitution(ArticleIII,Sections52

and53)prohibitsthepaymentofbonusesto

cityemployees.If,forexample,when

Decemberarrives,itisfoundthatthecityhas

someextrafundsanditisdecidedthatit

wouldbenicetorewardthecity’semployees

withaChristmasbonus,suchadistributionof

publicfundswouldbeillegal.However,ifthe

bonusispartoftheemployee’soverall

compensation,andisincludedinthebudgetas

such,itisalegitimateexpenditure.

Bids

Chapter252oftheLocalGovernmentCode

requiresthatanycitypurchaserequiringthe

paymentofmorethan$50,000beawarded

pursuanttocertaincompetitivebiddingor

sealedproposalprocedures.Thestatute

mandatesthatthecityeitheracceptthe

lowestresponsiblebidunderthetraditional

competitivebiddingprocess,acceptthebidor

proposalthatprovidesgoodsorservicesatthe

bestvalueforthecity,useanInternet-based

reverseauctionprocedure,orparticipateina

cooperativepurchasingprogram.

Certaincitiesthatchoosetousetraditional

competitivebiddingwhenpurchasingrealor

personalpropertymaygivepreferencetoa

localbidderifcertainproceduresarefollowed

andthelocalbidiswithinacertainpercentage

ofthelowestbidfromanon-localbidder.In

somecases,localpreferenceisallowedonlyif

thepurchaseisforlessthan$100,000.

Citiesmakinganexpenditureofmorethan

$3,000butlessthan$50,000mustcontactat

leasttwohistoricallyunderutilizedbusinesses

(HUBs)fromalistprovidedbytheTexas

FacilitiesCommissionthroughthestate

comptroller’soffice.Ifthelistdoesnotidentify

aHUBinthecountyinwhichthecityis

situated,thecityisexemptfromthis

requirement.

37

Theaboveproceduresdonotapplytosome

purchases,including:(1)thepurchaseofland

orrights-of-way;(2)personalorprofessional

services,suchasengineering,architectural,or

planningservices;(3)propertyboughtatan

auction;(4)propertyboughtatagoing-out-of-

businesssale;(5)propertyboughtfrom

anotherpoliticalsubdivisionorthestateor

federalgovernment;and(6)advertising,other

thanlegalnotices.

Also,thecitycanwaivetherequirementfor

bidsin—forexample—thefollowinginstances:

(1)inthecaseofpubliccalamity,whereit

becomesnecessarytoactatoncetoprovide

reliefforlocalcitizensortopreserveorprotect

thepublichealth;or(2)inthecaseof

unforeseendamagetopublicproperty,

machinery,orequipment,whereimmediate

repairisnecessary.

Acitymayuseacompetitivesealedproposal

procedureforthepurchaseofgoods,services,

andhightechnologyitems.Ifacitymakesa

contractwithoutcompliancewithcompetitive

procurementlaws,itisvoid,andthe

performanceofthecontract,includingthe

paymentofanymoneyunderthecontract,

maybeenjoinedby:(1)anypropertytax-

payingresidentofthecity;or(2)apersonwho

submittedabidforacontracttowhichthe

competitivesealedbiddingrequirement

applies,regardlessofresidency,ifthecontract

isfortheconstructionofpublicworks.

CityDepository

Underchapter105oftheLocalGovernment

Code,thecitycouncilisauthorizedto

designateabankastheofficialdepositoryof

thecity’sfunds.Thecityattorneyshouldbe

consultedastothemannerofdesignatingthe

depository,aswellasproceduresthecitymust

followafterdesignationhasbeenmade.

UniformElectionDates

TheTexasElectionCodeprescribescertain

daysforholdingmunicipalelectionsfor

officers.Anymunicipalelectionforofficers

heldonadayotherthanoneofthose

prescribedisvoid,withafewexceptions.

Currently,theuniformelectiondatesforcity

electionsarethefirstSaturdayinMayandthe

firstTuesdayafterthefirstMondayin

November.

OfficialNewspaper

Atthebeginningofeachfiscalyear,thecouncil

isrequiredtodesignate,byordinanceor

resolution,theofficialnewspaperofthecity,

andtopublishthereinthecaptionsofpenal

ordinances,notificationsofpublichearings,

andotherrequiredpublicnotices(Local

GovernmentCodeSections52.004and

52.011).TypeBgenerallawcitiesmust,be-

foreenforcinganordinance,publishthe

ordinance(orsimplythecaptionandpenalty

forviolationsoftheordinance)enactedbythe

governingbodybyeitherpostingitinthree

publicplacesorbypublicationinthe

newspaper(LocalGovernmentCodechapter

52).Manyhomerulechartersmayhavesimilar

provisions.

FederalVotingRightsAct

OnJune25,2013,theU.S.SupremeCourt

issueditsopinioninShelbyCountyv.Holder.

Inthecase,ShelbyCounty,Alabama,alleged

thatthebasisforapplyingthefederalVoting

RightsActtocertainstatesisunconstitutional.

TheCourtagreed.ItconcludedthatSection4

38

oftheActisunconstitutional,buttheholding

alsoaffectsotherportionsofthelaw,including

therequirementthatanyvotingchangemade

byacitybe“precleared”bysubmittingitto

theU.S.DepartmentofJusticeorafederal

courtforadeterminationthatitisnot

discriminatory.

Inresponsetotheopinion,theUnitedStates

DepartmentofJusticeisprovidingawritten

responsetojurisdictionsthatsubmitproposed

changestotheAttorneyGeneralthatadvises

thatnodeterminationwillbemadeunder

Section5oftheVotingRightsActonthe

specifiedchange.

BasedontheUnitedStatesDepartmentof

Justice’sresponse,theTexasMunicipalLeague

advisesthatSection5preclearance

submissionstotheDepartmentofJusticeare

nolongerrequired.However,eachcityshould

heedtheadviceofitsattorneytomakethe

determinationonwhetherornotpreclearance

isrequired,aspendinglitigationmayimpact

othersectionsoftheVotingRightsAct.

DelegationofLegislativePowers

Thecitycouncilisprohibitedfromdelegating

itslegislativepowers.Asapracticalmatter,

thismeansthatthecouncilmaynotauthorize

anyperson,committee,board,orcom-

missiontomakepolicydecisionsonitsbehalf.

Thejobofensuringthatthecouncil’spolicies

arecarriedoutcanbeassignedtothemayor,

citymanager,orsomeothercityofficial,but

theultimateresponsibilityforestablishing

policyrestswiththecouncil.

39

ChapterFive:

TheCityCouncilatWork:Meetings

Itisimperativethateverymeetingofthecity

councilbeconductedinanorderlyandlegal

manner.Ifthecouncil’sproceduresare

improper,thelegalityofitsactionsmaybe

successfullychallengedincourt.Ifitsmeetings

areslovenlyanddisorganized,thecouncil

cannotexpecttocommandpublicrespect.

LegalRequirements

Statelawprescribesseveralspecific

requirementsforcouncilmeetings,including:

(1)thatmeetingsbescheduledatafixedtime

andplace;(2)thataquorumofthecouncilbe

present(eitherinpersonor,incertaincases,

byvideoconference)forthetransactionof

business;(3)thatanyquestionbeforethe

councilbedecidedbymajorityvoteofthe

memberspresentandvoting,exceptwhere

thelawrequiresmorethanasimplemajority;

and(4)thatthemayoralwayspresides,if

present.

TexasOpenMeetingsAct

Everymeetingofthecitycouncilmustbe

conductedinaccordancewithchapter551of

theGovernmentCode,theTexasOpen

MeetingsAct.Amongallthestatelaws

affectingcityofficials,thisistheonemost

likelytobeunintentionallyviolatedbecauseof

lackofknowledge.

Tohelpeducategovernmentofficialsonthe

Act’srequirements,eachelectedorappointed

memberofagovernmentalbodymusttakeat

leastonehouroftrainingintheOpen

MeetingsAct.Thetrainingmustbecompleted

notlaterthanninetydaysafterthemember

takestheoathofofficeorassumesthe

responsibilitiesoftheoffice.

Theattorneygeneral’sofficeallowsthe

trainingrequirementtobemetinatleasttwo

ways:(1)viewingavideothatisavailableto

borroworonline;and(2)receivingtraining

fromcertifiedentities,suchasTML.Please

visittheattorneygeneral’swebsiteorcallTML

formoreinformationonthetraining.

TheOpenMeetingsActrequiresthatwritten

noticeofthedate,hour,location,andsubject

ofeverycouncilmeeting,beposted72hours

inadvanceofsuchmeetingonabulletinboard

incityhallaccessibletothepublicdayand

night.Citiesthatmaintainawebsitemustalso

postthecitycouncilagendaonthewebsite

andtheminutesofthecitycouncil’smeetings

mustbepostedwhenapproved.Ifthe

governmentalbodymakesagood-faith

attempttocontinuouslypostthenoticeonthe

Internetduringtheprescribedperiod,the

noticephysicallypostedatcityhallmustbe

readilyaccessibletothegeneralpubliconly

duringnormalbusinesshours.Therearesome

specialrequirements,includingadditional

noticerequirements,ifameetingistobeheld

byvideoconferencecall.

Therearethreeexceptionstothe72-hour

postingrequirement:

1) Atleastonehouradvancenoticeisrequiredforaspecialmeetingcalledin

40

thecaseof“emergencyorurgent

publicnecessity,”thenatureofwhich

mustbestatedinthenotice.

2) Itemsofanemergencyorurgentpublic

necessitynaturemaybeaddedtothe

agendaofameetingforwhich72hours

noticehasalreadybeenpostedifa

supplementalnoticelistingsuchitems

ispostedatleastonehourpriortothe

meetingstatingtheemergencythat

requiresactionontheadditionalitems.

3) Pursuanttoageneralpostingofitems

of“communityinterest,”thefollowing

neednotspecificallyappear

4) onthepostednotice:expressionsofthanks,congratulations,orcondolence;

informationregardingholiday

schedules;honoraryrecognitionsof

cityofficials,employees,orother

citizens;remindersaboutupcoming

eventssponsoredbythecityorother

entitythatisscheduledtobeattended

byacityofficialoremployee;and

announcementsinvolvingimminent

threatstothepublichealthandsafety

ofthecity.

TheActalsorequiresthatallcouncilmeetings,

withnarrowexceptions,beopentothepublic.

Closedmeetings(“executivesessions”)are

permittedforthediscussionofitemsthat

legitimatelyfallwithintheexceptionsstatedin

thelaw.Exceptionsfromtheopenmeeting

requirementareprovidedforthefollowing:

1) Privateconsultationsbetweenthecitycouncilanditslawyerstodiscuss

pendingorcontemplatedlitigation,

settlementoffers,andotherlegal

mattersthatimplicatetheattorney-

clientprivilege.Thecity’sattorney

mustbepresent(eitherinpersonifthe

attorneyisacityemployee,orin

personorbytelephone,video

conferencecall,orInternet

communicationsiftheattorneyisanin-

dependentcontractor)atanyclosed

meetingheldunderthisexception.

2) Discussionsregardingthepurchase,exchange,lease,orvalueofreal

property,ornegotiatedcontractsfor

prospectivegiftsordonationstothe

city,whenadiscussionoftheseitems

inpublicwouldhaveadetrimental

effectonthecity’snegotiatingposition.

3) Deliberationsinvolvingtheappointment,employment,evaluation,

reassignment,duties,discipline,ordis-

missalofacityofficeroremployee,or

tohearcomplaintsorchargesagainst

suchofficeroremployee,unlesssuch

officeroremployeerequestsapublic

hearing.

4) Discussionsregardingthedeployment

orimplementationofsecurity

personnelordevices,orasecurity

audit.Also,securityassessmentsor

deploymentrelatingtoinformation

researchtechnology.

5) Discussionsregardingcommercial

informationreceivedfromabusiness

prospectand/orthenatureofany

incentivesbeingconsideredbythecity

foreconomicdevelopmentpurposes.

6) Deliberationsregardingatestitemor

informationrelatingtoatestthatthe

cityadministerstoindividualswhoseek

toobtainorrenewalicenseor

certificatenecessarytoengageinan

activity.

7) Electricorgasservicediscussionsinverylimitedcircumstances.

8) Discussionsregardingvariouscriticalinfrastructureandhomelandsecurity

information,including:(a)staffing

requirementsofanemergency

responseprovider;(b)tacticalplans;(c)

infrastructurevulnerability

41

assessmentsandotherreports

preparedforthefederalgovernment;

(d)thelocationofdangerousmaterials

thatmaybeusedforweapons;(e)

computerpasswords;and(f)

informationregardingsecuritysystems

thatprotectpropertyfromterrorismor

relatedcriminalactivity.

Beforeanexecutivesessioncantakeplace,the

councilmustfirstconveneinopensession,the

presidingofficermustannouncethataclosed

meetingwilltakeplace,andheorshethen

mustidentifythesectionoftheOpen

MeetingsActthatauthorizestheclosed

session.

Thelawrequiresthatacertifiedagendaora

recordingmustbemadeofallmeetingsthat

areclosedtothepublic,exceptexecutive

sessionsheldforthepurposeofconsulting

withanattorneyundertheprovisionsofthe

law.Foranexecutivesessiontodiscusscritical

infrastructureorhomelandsecuritymatters,a

recordingismandatory.Thelawdoesnot

define“certifiedagenda,”butitdoesprovide

thattheagendashallstatethesubjectmatter

ofeachdeliberationandincludearecordof

anyfurtheractiontaken.Italsomustincludea

recordofthedateandtimeofthebeginning

andendofthemeeting.Thepresidingofficer

mustcertifythattheagendaisatrueand

correctrecordoftheproceedings.Inlieuof

thecertifiedagenda,thegovernmentalbody

maymakearecordingoftheclosedmeeting,

includinganannouncementmadebythe

presidingofficeratthebeginningandendof

themeetingindicatingthedateandtime.

Thecertifiedagendaortherecordingmustbe

maintainedforaperiodoftwoyearsafterthe

dateofthemeeting.However,ifalawsuitis

filedduringthistwo-yearperiod,thecertified

agendaorrecordingmustbepreserved

pendingtheoutcomeoftheaction.The

certifiedagendaorrecordingisnotapublic

record,anditisunlawfultomakeeitheravail-

abletothepublicwithoutlawfulauthority,but

eithermaybereviewedbyacurrentmember

ofthegovernmentalbodythatconductedthe

closedmeeting.Itisadvisablethatthe

certifiedagendaortherecordingbeplacedin

asealedenvelopeidentifyingthecontentsand

thenplacedinsecuredstorage.Theyare

availableforinspectionbyajudgeiflitigation

hasbeeninitiatedinvolvinganalleged

violationoftheopenmeetingslaw.Thejudge

mayorderthattherecordingorcertified

agendabemadeavailabletothepublicifthe

closedmeetingwasnotauthorized.

Althoughacertificationofthepostednotice

mayhavebeentheintentofthelegislature,

thefactthatacertifiedagendaorrecordingis

tobemadeavailableonlyuponcourtorder

mayindicatethatthecontentsofthecertified

agendaconsistofamoredescriptiveagenda

itemthanmightbeplacedontheposted

notice.Forexample,whilethepostednotice

maystatethatanexecutivesessionisbeing

heldforthepurposeofdiscussing“Land

AcquisitionforanElectricSubstation,”the

certifiedagendamayread“LandAcquisition—

Discussacquisitionoflandforanewelectric

substationtoserveTheOakssubdivision.”

Althoughthestatuterequiresthecertified

agendatoincludearecordofanyfurther

actiontaken,theopenmeetingslawexpressly

providesthatnofinalaction,decision,orvote

canbemadeexceptinameetingthatisopen

tothepublic.The“furtheraction”whichmust

benotedonthecertifiedagendamaybe,for

instance,noaction,adirectivetoplacethe

itemonanopenmeetingagendaforfinal

action,orarequestthatadditionalinformation

begatheredfordiscussiononanotherdate.

42

OneofthemostdifficultaspectsoftheOpen

MeetingsActresultsfromthefactthat

communicationsbetweenaquorumofacity

councilaboutpublicbusiness,nomatterthe

forumorthetime,constitutea“meeting”to

whichtheOpenMeetingsActapplies.Asa

result,citycouncilmembershavegenerally

beenadvisedtoavoidcommenting,for

instance,onsocialmediasitesrelatedtocity

businessifthediscussionwillultimately

involveaquorum.

However,TexasGovernmentCodeSection

551.006,providesthatcommunication

betweencouncilmembersaboutpublic

businessorpublicpolicyoverwhichthe

councilhassupervisionorcontroldoesnot

constituteameetingifcertainconditionsare

met.Thecommunicationmustbe:(1)in

writing,(2)postedtoanonlinemessageboard

thatisviewableandsearchablebythepublic,

and(3)displayedinrealtimeanddisplayedon

themessageboardfornolessthan30days

afterthecommunicationisfirstposted.Acity

isprohibitedfromhavingmorethanone

onlinemessageboardusedforthesepurposes.

Additionally,theonlinemessageboardmust

beprominentlydisplayedonthecity’sprimary

websiteandnomorethanoneclickawayfrom

thecity’swebsite.Themessageboardmay

onlybeusedbycitycouncilmembersorcity

employeesthathavereceivedauthorization

fromthecouncil.Ifacityemployeepostson

themessageboard,theemployeemust

includehisorhernameandtitlewiththe

communication.Thecouncilmaynotvoteor

takeactionbypostingonthecity’sonline

messageboard,andifthecityremovesa

postedmessage,thecitymustretainthe

postingforsixyearsasitisconsideredpublic

information.

Stiffpenaltiesareprovidedforviolationsofthe

OpenMeetingsAct.Acouncilmemberorany

otherpersonwhoparticipatesinanillegal

closedmeetingcanbepunishedbyafineof

$100to$500,confinementinthecountyjail

foronetosixmonths,orboth.Thesame

penaltycanbeappliedtoacouncilmember

whohasaprohibitedseriesofcommunica-

tions.Forinstance,usingthetelephoneor

emailtopollothercouncilmembersormeeting

withthemindividuallytodeliberateoversome

matterofcitybusinessthatwillbedeliberated

amongaquorumofcouncilmemberscould

violatetheAct.

Theactionstakenbyacitycouncilinanillegal

meetingarevoidable,andacourtmayassess

costsoflitigationandreasonableattorney’s

feesincurredbyapartywhosubstantially

prevailsinanactionbroughtundertheopen

meetingslaw.

PublicInformationAct

Chapter552oftheGovernmentCoderequires

thatmostcityrecords,includingthoseinthe

possessionofcouncilmembers,beopento

publicinspection.

AswiththeOpenMeetingsAct,eachelected

orappointedmemberofagovernmentalbody

musttakeatleastonehouroftraininginthe

PublicInformationAct,ordesignateapublic

informationcoordinatortotakethetrainingon

hisorherbehalf.

Thetrainingordesignationmustbecompleted

notlaterthanninetydaysafterthemember

takestheoathofofficeorassumesthe

responsibilitiesoftheoffice.Again,notethata

publicofficial(forexample,amemberofacity

council)maydesignateapublicinformation

43

coordinatortosatisfytheopenrecords

trainingrequirement.

“Publicinformation”isdefinedasinformation

thatiswritten,produced,collected,

assembled,ormaintainedunder

alaworordinanceorinconnectionwiththe

transactionofofficialbusiness:(1)bya

governmentalbody;(2)foragovernmental

bodyandthegovernmentalbody:(A)ownsthe

information;(B)hasarightofaccesstothe

information;or(C)spendsorcontributes

publicmoneyforthepurposeofwriting,

producing,collecting,assembling,or

maintainingtheinformation;or(3)byan

individualofficeroremployeeofa

governmentalbodyintheofficer’sor

employee’sofficialcapacityandthe

informationpertainstoofficialbusinessofthe

governmentalbody.Informationisin

connectionwiththetransactionofofficial

businessiftheinformationiscreatedby,

transmittedto,receivedby,ormaintainedby

anofficeroremployeeofthegovernmental

bodyintheofficer’soremployee’sofficial

capacity,orapersonorentityperforming

officialbusinessoragovernmentalfunctionon

behalfofagovernmentalbody,andpertainsto

officialbusinessofthegovernmentalbody.

“Publicinformation”includesanyelectronic

communicationcreated,transmitted,received,

ormaintainedonanydeviceifthe

communicationisinconnectionwiththe

transactionofofficialbusiness.“Official

business”isdefinedasanymatteroverwhich

agovernmentalbodyhasanyauthority,

administrativeduties,oradvisoryduties.This

means,forinstance,thattheActnow

expresslyprovidesthatacouncilmember’s

privatecomputerorcellphone

communications,ifmadeinconnectionwith

thetransactionofofficialbusiness,arepublic

information.

Councilmembersareconsidered“temporary

custodians”ofthepublicinformationontheir

privately-owneddevices.“Temporary

custodian”meansanofficeroremployeeofa

governmentalbody,includingaformerofficer

oremployee,who,intransactionofofficial

business,createsorreceivespublicinformation

thattheofficeroremployeehasnotprovided

totheofficerforpublicinformationofthe

governmentalbodyortheofficer’sagent.Asa

temporarycustodian,thecouncilmembermust

preservethepublicinformationinitsoriginal

forminabackupandontheirprivately-owned

devicefortherequiredrecordretentionperiod,

ortransferthepublicinformationtothe

governmentalbodyorthegovernmentalbody

server.Also,asthetemporarycustodian,a

councilmemberisrequiredtosurrenderpublic

informationthathasbeenrequestedtothe

publicinformationcoordinatornotlaterthan

thetenthdayafterreceivingarequestforthe

informationfromthepublicinformation

coordinator.Failuretosurrenderthe

informationcouldbegroundsfordisciplinary

actionbythegovernmentalbody,aswellas,

otherpenaltiesbeingbroughtagainstthe

temporarycustodian.

Themediaonwhichpublicinformationis

recordedincludespaper;film;amagnetic,

optical,orsolidstateorotherdevicethatcan

storeanelectronicsignal;tape;mylar;andany

physicalmaterialonwhichinformationmaybe

recorded,includinglinen,silk,andvellum.The

generalformsinwhichthemediacontaining

publicinformationexistincludeabook,paper,

letter,document,email,Internetposting,text

message,instantmessage,otherelectronic

communication,printout,photograph,film,

tape,microfiche,microfilm,photostat,sound

recording,map,anddrawingandavoice,data,

orvideorepresentationheldincomputer

memory.

44

Certaininformationisspecificallyexcluded

fromtherequirementsofthelaw.Whilethe

listofexemptmaterialsistoolongtorecite

here,itincludessuchinformationasworking

papersbeingusedtodraftordinancesor

resolutions;certainpersonnelrecords;

informationthatwould,ifreleased,givean

advantagetobidders;documentsprotected

becauseofattorney-clientrelationships;

documentsrelatingtopendinglitigation;and

varioustypesofcriticalinfrastructureand

homelandsecurityinformation,including

informationthatrelatesto:(a)staffing

requirementsofanemergencyresponse

provider;(b)tacticalplans;(c)infrastructure

vulnerabilityassessmentsandotherreports

preparedforthefederalgovernment;(d)the

locationofdangerousmaterialsthatmaybe

usedforweapons;(e)computerpasswords;

and(f)informationregardingsecuritysystems

thatprotectpropertyfromterrorismorrelated

criminalactivity.

Despitethenarrowexemptionsestablishedin

thelaw,itsneteffectistorequirethatmost

informationmustbemadeavailable,upon

request,tothenewsmediaandother

membersofthepublic.Agovernmentalbody

thatreceivesawrittenrequestforinformation

thatitwishestowithholdfrompublic

disclosureandthatitconsiderstobewithin

oneoftheexceptions,must,withsome

exceptions,askforadecisionfromtheTexas

attorneygeneral.Ifanattorneygeneral

decisionisrequired,thecitymustrequestthe

decisionandstatetheexceptionsthatapply

notlaterthanthe10thbusinessdayafter

receivingthewrittenrequest.Notlaterthan

the15thbusinessdayafterreceivingthe

request,thecitymustsubmittotheattorney

generalthereasonsthattheexceptionsapply,

acopyoftherequestforinformation,anda

copyoftheinformationrequestedor

representativesampleslabeledtoindicate

whichexceptionsapplytowhichpartsofthe

information.

FormalMeetingsoftheCouncil/

TheAgenda

Awell-organizedagendaisanindispensable

partofeveryorderlycouncilmeeting.The

agendaestablishesacalendarofactivitiesfor

thecounciltofollowinthecourseofits

meeting.Itlistsalltheitemsofbusinessthat

willbeconsidered.Byputtingcouncilmembers

onnoticeastowhatwillbediscussed,eachof

themisenabledtoarriveatthemeeting

preparedandreadytoconductbusiness.

Thefollowingillustratesatypicalagenda

format:

1) CalltoOrder—Thepresidingofficer

callsthemeetingtoorderand

determineswhetheraquorumis

present.

2) Invocation—Optional.

3) RollCall—Althoughmostcitycouncils

aresmallenoughtoreadilydetermine

whoispresentbysimplylooking

aroundthecounciltable,aformalroll

calllendsanairofdignitytothe

proceedings.

4) ApproveMinutesofthePrevious

Meeting—Unlessamajorityofthe

councildesiresthattheminutesofthe

previouscouncilmeetingberead,the

minutescanbeapprovedassubmitted

orcorrected.

5) ConsentItems—“Consent”itemsare

noncontroversialitemsthatcanbe

consideredandvoteduponasablock.

6) PresentationsbyCitizens—Scheduling

thisagendaitemearlyinthemeeting

permitscitizenstocompletetheir

45

businesswiththecouncilinatimely

mannerandthenleave,iftheywish.

7) PublicHearings.8) OldBusiness—Finalpassageof

ordinances,andotherbusinesspending

frompreviouscouncilmeetings.

9) NewBusiness—Newordinancesor

resolutions(oramendmentstoexisting

ones)orpoliciesthatcouncilmembers

orcitystaffwishtohavethecouncil

consider.UndertheOpenMeetings

Act,eachitemtobeconsideredmust

bespecificallydescribedintheagenda.

Itisnotsufficientjusttoputthewords

“NewBusiness”or“OldBusiness”on

theagenda,andthenallowthe

considerationatthecouncilmeetingof

anyorallitemsthatmightbebrought

up.

10) ReportsofAdvisoryBoardsandCommissions—Eachboardor

commissionmustbelisted,together

withadescriptionofeachreportthat

willbepresentedatthecouncil

meeting.

11) ItemsfromCouncil—Thispartofthe

agendaisprovidedforcouncilmembers

topresentmattersotherthan

ordinances,resolutions,andother

mattersrequiringformalaction.The

attorneygeneralhasopinedthat

mattersraisedbycouncilmembersor

membersofthecitystaffmustbe

specificallydescribedontheagenda

(otherthanitemsof“community

interest,”aspreviouslyexplainedinthis

chapter).Exampleswouldincludea

councilmember’srequestthatthestaff

takeactiononaparticularproblem,as

describedintheagenda.

12) StaffReports—Thisagendaitem

includesreportsfromthemayorand/or

cityadministratoronthestatusof

variousprojects,problemsthatare

developinginparticular

neighborhoods,andsoon.Underthe

openmeetingslaw,eachofthese

reportsmustbelistedandspecifically

describedintheagenda.

13) Announcements.

14) Adjournment—Ifthereisnofurther

business,themayorcanadjournthe

meeting.Ifalloftheitemslistedinthe

agendahavenotbeenconsideredand

disposedof,amajorityvoteusuallyis

requiredtoadjourn.

Theamountofdetailincludedintheagendais

amatterforthecounciltodecide.Oftentimes,

theagendaisusedasthenoticeofthe

meeting.Inthatcase,thelegalruleapplicable

totheformatofanagendaisfoundinthe

openmeetingslaw,whichrequiresthatevery

agendaitembespecificallydescribedinthe

meetingnotice.Inpractice,thismeansthat

broadcategories,suchas“OldBusiness”or

“NewBusiness,”cannotbeincludedinthe

agendawithoutlistingeachofthespecific

itemsthatwillbediscussed.

Thegovernmentalbodyisspecificallyrequired

tohaveminutesorarecordingofeachofits

openmeetings.Theminutesshallstatethe

subjectmatterofeachdeliberationandshall

indicateeachvote,otherdecision,orother

actiontakenbythegovernmentalbody.The

minutesorrecordingarepublicrecordsand

maybeexaminedorcopiedbymembersofthe

public.Thisrequirementmustbemetforall

openmeetingsofgovernmentalbodies,

includingmeetingswhenformalactionsor

votesdonotoccur.Citycouncilsorboardsthat

meettodiscussformulationordevelopmentof

apolicyorordinancethatwillbevotedonata

laterdatemustkeepaformalrecordofthe

proceedings,eventhoughnofinalvoteor

actionistaken.

46

RulesofOrderandProcedure

Recognizingthateverylegislativebodyneedsa

systematicwayofconductingitsbusiness,

manycitycouncilsoperateaccordingtoformal

rulesoforderandprocedure.Rulesoforder

andprocedurepreventconfusionby

establishinganorganizedprocessfor

conductingcouncilmeetings.Properly

followed,theysavetimeforallparticipants,

whileprotectingtheindividual’srightto

participatefully.

Thefollowingprovisionsusuallyareincludedin

rulesoforderandprocedure:

• Designationofthetimeandlocationof

regularmeetingsofthecouncil,

togetherwithadescriptionof

proceduresforcallingspecialmeetings;

• Proceduresforplacingitemsona

meetingagenda;

• Methodsforcompelling

councilmemberstoattendmeetings;

• Adescriptionofthedutiesofthe

presidingofficeratcouncilmeetings;

• Adescriptionoftheparliamentaryrules

underwhichthecouncilwilloperate;

• Proceduresforintroducingandvoting

onordinances,resolutions,andother

items;

• Theorderofbusinessthecouncilwill

followateachmeeting;and

• Arankingofmotionsbyorderor

precedence,whichmotionsmayor

maynotbedebated,andsoon.

AlthoughmostcitycouncilsuseRobert’sRulesofOrdertoconducttheirmeetings,somehave

adoptedtheirownlocalrules.Robert’sRulesofOrdermaybeappropriateforsomecities,but

isoftentoocumbersomeforothers.Statelaw

issilentwithregardtothismatter;so,unless

yourcitycharterprovidesotherwise,any

standardrulesthatarereasonableand

consistentlyfollowedareacceptable.

Thefollowingtwosectionsbrieflydescribe

motionsanddebaterulesthatarefairly

common.

Motions

Amotionissimplyavehicleforinitiatingaction

onaproposal.Sometypesofmotionscanbe

broughtupandvotedonatanytime,while

othersareoutoforderatcertaintimes.

Certainmotionsoutrankothers.Somemotions

requireasecond;othersdonot.Knowingthe

differencebetweenthevarioustypesof

motionsandwhentousethemisafirststepin

takinganactivepartinpassingordefeating

measuresbeforethecouncil.

Amainmotionisusedtoinitiatethe

considerationofanewitemofbusiness.After

beingseconded,amainmotionissubjectto

beingdebated,amended,tabled,or

withdrawnbeforeafinalvoteistaken.

Anycouncilmembermakingamainmotion

may,priortoreceivingasecond,withdrawor

changeit.Ifthemotionhasbeenseconded,

approvalofthepersonwhosecondeditis

requiredinorderforthemakerofthemotion

tochangeorwithdrawit,unlessanother

councilmemberobjects,inwhichcasethe

changeorwithdrawalmustbevotedupon.

Anewmainmotioncannotbebroughtupfor

considerationwhileanothermainmotionis

beingdebated.Eachmainmotionmustbe

disposedofbeforeanotherismade.

Asecondarymotionisusedtoproposean

actiononamainmotionbeingdebatedbythe

47

council.Examplesofsecondarymotions

includethefollowing:

1) Motiontotablethemainmotion;that

is,layitasideandgoontothenext

itemontheagenda.

2) Motiontorequestthatdiscussion

ceaseandthatthemainmotionbe

votedupon;thatis,movingthe

previousquestion.

3) Motiontolimitdiscussiontoafixed

amountoftime.

4) Motiontopostponeactiononthe

proposaluntilsomedefinitetimeinthe

future.

5) Motiontorefertheproposaltoa

committee.

6) Motiontoamendthemainmotion.

7) Motiontopostponeactiononthe

proposaltoanindefinitefuturetime.

Theseexamplesofsecondarymotionsare

listedintheorderoftheirrank.Therefore,if

thecouncilisdebatingCouncilmemberX’s

motionthattheitemunderconsiderationbe

referredtoacommittee,andCouncilmember

Ymovestotablethemainmotion,debate

wouldceaseuntilCouncilmemberY’shigher-

rankingmotionisvotedupon.

Aprivilegedmotionisusedtobringprocedural

questionsbeforethecouncil,suchaswhether

thecouncilshouldrecessoradjourn.Unlike

othermotions,privilegedmotionsdonot

requireasecondinordertobeconsidered.

Aprivilegedmotioncanbeofferedatanytime,

withoutregardtoanyothermotionpending

beforethecouncil,andmustbedecided

beforethecouncilreturnstotheother

businessunderdiscussion.Therefore,amotion

toadjourn,ifmadewhileamainmotionis

beforethecouncil,mustbedecidedbeforethe

mainmotionisconsideredanyfurther.

Someprivilegedmotionsaremoreprivileged

thanothers.Thisistheusualorderoftheir

importance:

1) Motiontosetthetimeandplaceofthe

nextmeeting.

2) Motiontofixthetimeofadjournment.

3) Motiontoadjourn.

4) Motiontorecess.

5) Motionsonquestionsofprivilege.

6) Motiontokeepthemeetingtothe

agreedorderofbusiness.

Thus,duringconsiderationofamainmotion,a

privilegedmotionmightbemadetoadjourn.

Butbeforethequestioniscalledonthemotion

toadjourn,anotherhigher-rankingprivileged

motionmightbemadetosetthetimeand

placeofthenextmeeting.

Debate

Motionsareusuallyclassifiedthreeways:(l)

undebatablemotions;(2)privilegedmotions

uponwhichlimiteddebateispermitted;and

(3)fully-debatablemotions.

Undebatablemotionsinvolveprocedural

questionsthatcanberesolvedwithout

discussion,suchastablingamainmotion,

movingthepreviousquestion,restricting

furtherdiscussionofamainmotiontoafixed

numberofminutes,postponingaction,or

referringanitemunderdiscussiontoa

committee.[Seeitems(1)through(7)under

“secondarymotions.”]Afteranundebatable

motionisoffered,thepresidingofficermust

immediatelytakeavote,withoutdiscussion.

Privilegedmotionsuponwhichlimiteddebate

ispermittedincludesettingthetimeofthe

nextmeetingandotherslistedamongitems

(1)through(6)under“privilegedmotions.”

48

Anydiscussionofaprivilegedmotionmustbe

addressedtothemotionitself.Amotiontofix

thetimeforadjourningthecouncilmeeting,

forexample,mightrequirelimiteddebateas

totheadvisabilityofsuchadecision,butother

pointsofdiscussionwouldbeoutoforder.

Fully-debatablemotionsaresubjectto

unlimiteddiscussionpriortoadecision.

Oneofthemostimportantprinciplesof

debateisthatcouncilmembers’statementsbe

directlyrelevanttotheitemunder

consideration.Councilmembersrecognizedby

themayoraregiventheflooronlyforthe

purposeofdiscussingtheitemthenpending,

andtheyareoutoforderiftheydepartfrom

thatitem.

“Debate”caneasilyevolveintostatementsof

personalphilosophy.Interestingthoughthey

mayseemtothespeaker,suchdeparturesdo

notbelonginacouncilmeeting.Meandering

canbecontrolledbylimitingcouncilmembers

toonespeechperagendaitemorby

restrictingthelengthoftheirspeeches.

(Robert’sRulesofOrdersetsanarbitrarylimit

of10minutesforeachsuchspeech.)Amore

difficultalternativeistoimposelimitsonthe

numberofminutesthatwillbeallottedfora

givenagendaitem.

RoleoftheMayorasPresidingOfficer

Themayor,aspresidingofficer,hasthe

primaryresponsibilityforensuringthatthe

council’srulesofprocedurearefollowedand

formaintainingthedignityofcouncil

meetings.Themayorcallsthemeetingto

orderandconfinesthediscussiontothe

agreedorderofbusiness.Heorsherecognizes

councilmembersformotionsandstatements

andallowsaudienceparticipationat

appropriatetimes.Themayorseestoitthat

speakerslimittheirremarkstotheitembeing

consideredand,asnecessary,callsdown

peoplewhoareoutoforder.

Properperformanceofthesefunctions

requiresthatthemayorknowparliamentary

procedureandhowtoapplyit.Themayor

mustrecognizethatparliamentaryprocedure

isatool,notabludgeon—thatisusedto

ensurethatthewillofthemajorityprevails

whiletherightoftheminoritytobeheardis

protected.

Inadditiontofulfillingthedutiesofthe

presidingofficer,themayorshouldbefamiliar

withlegalrequirementsimposedbystatelaw.

Thisinvolvesknowingwhichactionsare

requiredonordinances,whenextraordinary

councilvotesarerequired,andwhenatime

element—suchasthedeadlineforgiving

noticeofacityelection—isimportant.Thecity

attorneycanhelpwiththesematters,butif

themayorknowsthebasics,timecanbesaved

andillegalorincompleteactionsprevented.

Presidingeffectivelyatacouncilmeetingisan

artthatnobookcanfullyteach.Thetactful

presidingofficerknowshowtocourteously

discouragecouncilmemberswhotalktoo

muchortoooften,andhowtoencourageshy

councilmemberswhoarehesitanttospeakat

all.

Councilmembers’remarksshouldalwaysbe

directedtothechair.Evenwhenrespondingto

questionsaskedbyanothercouncilmember,

heorsheshouldbeginbysaying,“Mayor,if

youwillpermitme...”andwaitfor

recognitionfromthechairbeforeproceeding.

Thishelpsavoidthespectacleoftwo

councilmembershagglingoveranissuethatis

oflittleinteresttotheircouncilcolleagues.

49

Inadditiontomaintainingorderanddecorum

atcouncilmeetings,themayormustseetoit

thatallmotionsareproperlydealtwithasthey

arise.Themayormustrecognizethe

councilmemberofferingthemotion,restate

themotion,presentittothecouncilfor

consideration,callforthevote,announcethe

vote,givetheresultsoftheeffectofthevote,

andthenannouncethenextorderofbusiness.

Insomecases,themayormightrefusetoallow

acouncilmembertoofferamotion,even

thoughitisinorder,eitherbecauseof

unfamiliaritywithparliamentaryprocedureor

becauseofpersonaloppositiontothe

proposedaction.Themayor’srefusaltoallow

amotiontobeconsideredissubjecttoappeal,

asareallofthemayor’sdecisionsregarding

procedures.Asimplemajorityvoteisallthatis

requiredtooverrulethemayor’sdecisionon

proceduralissues.Ifthedecisionofthechairis

sustained,nofurtheractionistaken;butifthe

decisionofthechairisoverruledbythe

council,thecouncilgoesforwardwiththe

discussionofthemotionorothermatters

beforeit.

Onrareoccasions,themayor,intheheatof

themoment,mayrulethatanappealisoutof

order,orevendeclarethemeetingadjourned.

Bothrulingsareimproper.Ameetingcannot

besummarilyadjournedbythemayor.Ifan

appealfromthedecisionofthechairismade

immediatelyfollowingtheruling,itisnotout

oforder.Ifthemayorrefusestohonorthe

appeal,thepersonmakingtheappealcould

thenstatethequestion,suggestlimited

debate,andthenputthequestiontoavote.

StreamliningCouncilMeetings

Eventhebestplannedcouncilmeetingscan

deteriorateintoendurancecontests.Theseare

notnecessarilytheexceptionalmeetings,with

longpublichearingsorbattlesover

controversialordinances.Asoftenasnot,

theseareregularly-scheduledmeetingswhich

droneonuntiltheentirecouncilisthoroughly

exhausted.

RegulatingTalk

Toomuchtalkingisthemostcommoncauseof

lengthymeetings.Talkingcanassumeavariety

offorms—bickeringortiresomeexchangesof

personalopinionsamongcouncilmembers,

endlessspeechesbycitizensappearingbefore

thecouncil,orunnecessarilylonganddetailed

reportsbystaff.

Nearlyalltheseproblemscanbeovercomeby

tactfulactiononthepartofthepresiding

officer.Ifcitizensaddressingthecouncil

rambleonandon,themayormayhave

nochoicebuttotellthemtoconfinetheir

remarkstothesubjectathandandconclude

asquicklyaspossible.Iftheproblemiscreated

byatalkativecouncilmember,asimple

statementtotheeffectthat“it’sgettinglate

andwemustmovealong”usuallywillsuffice,

thoughprivatevisitsbythemayormaybe

neededtohandlechronictalkers.

ShorteningtheAgenda

Havingtoomanyitemsontheagendais

anotherfrequentcauseoflengthycouncil

meetings.Thisisnotaneasyproblemtosolve,

andseveralevaluationsessionsmaybe

neededtocorrectthesituation.

Perhapstheagendaisloadeddownwith

detaileditemsthatareincludedforreasonsof

custom,ratherthannecessity,andmanyof

thesecouldbehandledbystaffwithout

councilaction.Iftoomuchmeetingtimeis

neededtoexplainthevariousitemsonthe

50

agenda,perhapsarequirementthatthemore

complexonesbeexplainedinwritingin

advanceofthemeetingwouldhelp.

Insomecases,itmaybediscoveredthat

lengthycouncilmeetingsaretheresultof

complexitiesthatsimplycannotbeovercome.

Intheseinstances,theonlyanswermaybe

morefrequentmeetings.

Handling“Consent”AgendaItems

Agendastendtobeclutteredwith

uncontroversial,recurringitemsthatareof

littleinteresttomostcouncilmembers,but

mustbeincludedbecausetheyrequireformal

councilapproval.Examplesincludecouncil

approvaloftheminutesofpreviousmeetings,

routinepurchases,andminorfundtransfers

betweenaccounts.Mostoftheseitems

generatenodiscussion,buteachusesuptime

byrequiringaseparatemotiontoapprove,a

second,andavote.

Thisproblemcanbeovercomebyestablishing

a“consent”agendacategorythat

encompassesroutineitemsthatareapproved

byasinglemotionandavote,withoutdebate.

(“CouncilmemberSmithmovestheapprovalof

items3a,b,c,d,e,f,andg.”)

Ifacouncilmemberobjectstoaconsentitem,

itisremovedfromthelistandaddedtothe

regularagendaattheappropriatespot.Ifa

councilmemberquestionsaconsentitem,but

notsostronglyastorequirethatitbe

removedfromthelist,hisorher“no”voteor

abstentioncanbeenteredintheminutes

whentheconsentvoteistaken.

Thenumberofconsentitemscanrangefroma

handfulto25or30ormore,dependingonthe

council’sworkloadandpreferences.Whatever

thesize,theconsentagendacanbeareal

time-saver.Onecityreportedthatusinga

consentagendahadslashedthelengthofthe

averagecouncilmeetingby50percent.

AdministrativeImprovements

Somecouncilmeetingsareunnecessarilylong

becauseofdeficienciesinthecity’s

administrativeprocedures.Forexample,

citizenswhocan’tgettheirproblemssolvedat

cityhallduringnormalbusinesshoursare

likelytoshowupatcouncilmeetingsto

demandassistance.Thefactthatmostofthese

complaintsshouldhavebeenhandledthrough

administrativeactiondoesnotrelievethe

councilofthedutytospendtimelisteningto

them.

Councilmemberswhosensethattoomuch

formalmeetingtimeisbeingdevotedto

hearinggripesfromcitizensabout

administrativeinactionusuallycometothe

conclusionthatthewaytogetfrustrated

citizensofftheagendaandintoproper

channelsistoestablishasystemforreceiving

andprocessingcomplaints.Thesystemcanbe

simple,suchasassigningoneortwo

employeestoprocesscomplaintsonapart-

timebasis,oritcanbeamoresophisticated

officeoperatedbyafull-timestaff.Inany

event,itisusuallyadvisabletohaveatleast

oneofthestaffmembersresponsibleforthis

functionattendcouncilmeetingstobe

availabletoheadoffcomplaints.

MechanicalAids

Thetimeneededtoexplainanagendaitem

canbereducedbyusingphotographs,

flipcharts,andothergraphicartsto

supplementorreplacewrittenreports.

Graphicsandvisualpresentationsneedn’tbe

expensive.Inmostcases,usingasimplemap

toshowthelocationofaproject,flowcharts

51

toillustrateaparticularprocedureorprocess,

photographstopointoutthephysical

characteristicsofthematterbeingdiscussed,

oraPowerPointpresentationcanprovidethe

extraperspectivethatwrittenwordsororal

discussionssometimesfailtoconvey.

CouncilWorkSessions

Informalworksessions(sometimescalled

“workshops”)ofthecouncilmaybeneeded

fromtimetotimetostudycertainmattersin

detail.Thesearemostoftenheldincon-

junctionwithbudgetreview,sinceregular

councilmeetingsdonotprovideenoughtime

toconsiderthebudgetindetail.Worksessions

alsoareusefulwhenmajorpolicyquestions

mustbedecidedorwhenacomplicated

ordinance,suchasabuildingcode,comes

beforethecouncil.

TheTexasOpenMeetingsActappliestoall

councilmeetings,whetherformalorinformal.

Noticesofworkshopmeetingstherefore

shouldbepostedinthesamemanneras

noticesofregularcouncilmeetings.Also,

minutesorarecordingmustbemadeofthe

meetings.

CitizenParticipation

Manycitizensformtheiropinionsofthecity

governmentonthebasisofhavingattended

justonecouncilmeeting.Forsome,itwillbe

theonlyonetheyattendintheirlifetime.This

isthetimetoimpresscitizensfavorably,andto

showthemthatthecounciliscapableofdoing

itsjob.

The“citizenparticipation”period,alsoknown

as“publiccomment,”isatimeslotsetaside

ontheagendaforcitizenstoaddressthe

councilonanysubject.Priorto2019,councils

determinedwhenandiftherewouldbecitizen

participationonanagendabecausetheOpen

MeetingsActonlygavethepublictherightto

observeanopenmeeting.Throughreasonable

rules,councilsgovernedwhencitizen

participationwasplacedontheagenda,how

longacitizencouldspeakonatopic,andthe

decorumofthespeakertowardsthecouncil.

HouseBill2840,effectiveonSeptember1,

2019,nowrequiresacounciltogivethepublic

therighttospeakonitemsontheagendafor

considerationatanopenmeeting.Thecouncil

isrequiredtoallowthepublictospeakon

itemsontheagendaeitheratthebeginningof

anopenmeetingorduringthemeetingwhen

thatitemisbeingdiscussedbythecouncil.

Thecouncilcanstilladoptreasonablerules

regardingtherightofthepublictoaddressthe

council.Thisincludeslimitingtheamountof

timethatthepublicmayaddressthecouncil

onagivenitem.Ifthecitizenaddressingthe

councilonanitemontheagendaspeaksa

foreignlanguageandneedsaninterpreter,

thenthecouncilmustallowatleastdoublethe

timeallowedforthisnon-Englishspeakerto

addressthecouncil.Justasbefore,the

presidingofficershouldinformvisitorsofthe

placeontheagendaatwhichtimetheywillbe

recognizedtospeak.Andifanexceptionally

controversialitemhasdrawnalargecrowd,it

isgenerallywisetostatetheapproximatetime

theitemislikelytocomeupfordiscussion.

Toguardagainstcitizenfilibusters,some

councilslimitthelengthoftimeanyonecitizen

mayspeaktothreeorfourminutes,and

permitthistobeextendedonlybyatwo-thirds

voteofthecouncil.Thiskindoflimitation

oftenisnecessarytokeeptalkativespeakers

frominfringingontherightsofotherswho

maywishtospeak.

52

Althoughlimitedverbalinterchangesbetween

citizensandcouncilmembersareappropriate,

discussionsshouldnotbepermittedtodrag

on.Whenamemberofthepublicmakesan

inquiryaboutasubjectforwhichnoticehas

notbeengiven,acouncilmembermayrespond

withastatementoffactualinformationor

reciteexistingpolicy.Thoughcouncilmembers

areexpectedtobepolitetocitizensappearing

beforethem,H.B.2840prohibitscouncilsfrom

forbiddingpubliccriticisminpubliccomment.

Thecitycouncilcannottakeactionunlessit

hasbeenpostedontheagendainaccordance

withtheOpenMeetingsAct.Ifacitizenbrings

anitembeforethecouncilthatneedstobe

actedupon,thecitycouncilshouldrequest

thatitbeplacedontheagendaforthenext

meeting.Theattorneygeneralhasalsostated

thatacitythatknowsorreasonablyshould

knowthesubjectmatterofacitizen’s

presentationshouldplacethematteronthe

agenda.

PublicHearings

Thepurposeofapublichearingistopresent

evidenceonbothsidesofanissue.Some

publichearingsarerequiredbystatelaw,asin

thecaseoftheUniformBudgetLaw(Sections

102.001etseq.,LocalGovernmentCode),

whichrequiresapublichearingonthecity

budgetpriortoitsadoption.Othersare

voluntarilyconductedbythecounciltoobtain

afullrangeofcitizenopiniononimportant

matters,suchasaproposedbondissue.The

differencebetweenapublichearingandpublic

commentsisthatapublichearingisrequired

bylawforparticulartopicswithspecificnotice

requirementsbytheOpenMeetingsAct.

Theproperconductofapublichearingisno

lessimportantthanforaregularcouncil

meeting.Eachshouldbeginpromptlyandbe

conductedinanorderlymannerin

conformancewithestablishedrulesof

procedure.

Atthestartofthehearing,thepresiding

officershouldclearlystatethesubjecttobe

discussed.If,forinstance,itisarezoning

hearing,theproposedordinanceshouldbe

readanditspurposeexplained.Ifthesubjectis

controversial,thefollowingordercanbe

adheredto:proponents’presentation,

opponents’presentation,proponents’

rebuttal,opponents’rebuttal,questionsfrom

council.

Onecardinalruletorememberisthatnumbers

don’talwayscount.Therearesometopicsthat

naturallydrawlarge,highlybiasedcrowds.

Vocalminoritiesoftenswamppublichearings

toshowthattheirsidehaswidespread

support.Suchitemsaslittleleagueballparks,

schoolcrosswalks,waterrates,andtaxescan

attractcrowds,butthesizeoftheturnout

doesnotnecessarilyindicatethattheircause

isjust.Thecounciliselectedtoserveallthe

citizens,andacouncilmembermustlookatthe

overallpicture—notjusttheviewpresentedby

onepartisangroup.

Thecouncilisresponsibleforweighingthe

evidencepresentedatthehearingand,after

dueconsideration,reachingadecision.

Obviously,thiscannotalwaysbedoneatthe

samemeetingasthepublichearing.Infairness

tothosewhohavetakenthetimetoattend,

thepresidingofficershouldindicatewhena

decisioncanbemadeimmediatelyafterthe

hearingandtheresultannounced.Otherwise,

thechairshoulddescribethereasonthatno

decisionwillbemadeatthattime,thenstate

theprobabletimeatwhichafinal

determinationwillbereached.

53

Whenadecisionisannouncedonanissuethat

involvesapublichearing,thepresidingofficer

may,withtheassistanceoflegalcounsel,give

thereasonswhythedecisionwasreached.

Evenabriefexplanationwillhelpprevent

observersfromfeelingthattheoutcomeofthe

hearingwasdecidedinadvance,andthatthey

wastedtheirtimebyattending.

54

ChapterSix:

FinancialAdministration

Financialadministration,simplystated,is

matchingdollarswithneeds.Financial

administrationisthesmalltownmayorwho

noticesthatcityhallhasaleakyroof,and

makesamentalnotetohaveitreplacedwhen

themoneyisavailable.Financial

administrationisamillion-dollarcapital

improvementsprogram,abondelection

precededbyabarrageofinformation

disseminatedthroughthenewsmedia,

abondsale,andareporttothetaxpayers

throughthenewspaper—allofthisispartof

financialadministration.

Financialadministrationinvolvesan

understandingoftheextentandlimitsofthe

economicresourcesofthecityandthe

methodsoftappingthemtomeetcitizens’

demandsforcityservices.Itbeginswitha

thoroughknowledgeofrevenuesourcesand

endswithaproperaccountingofallofthe

fundsexpendedbythecity.Muchliesin

between;itisallfinancialadministration.

RevenueSources

Cityrevenuescomefrommanysources,

includingutilitysystems,propertytaxes,sales

taxes,userfees,federalgrants,andstreet

rentals.(TheTexasMunicipalLeaguepublishes

acomprehensiveRevenueManualforTexas

Cities.)

UtilityRevenues

MostTexascitiesownwaterandsewer

systems,whilecomparativelyfewoperate

electricorgassystems.Amongthosethatown

waterorsewersystems,therevenueproduced

byutilitybillingsaccountsforasubstantial

portionofallmoneytakeninatcityhall.This

percentageisconsiderablyhigheramongcities

thatownelectricorgassystems.

PropertyTaxes

Municipalpropertytaxrevenueisgrowing

eachyear,bothintotaldollarsandonaper-

capitabasis.Inmanycases,however,the

demandsoncitybudgetshaveincreasedata

muchgreaterratethanhavepropertytax

collections.

MaximumPropertyTaxRates

TheTexasConstitutionestablishesthe

maximumpermissiblepropertytaxratefor

citiesatthefollowinglevels:(1)forTypeBand

smallTypeCgenerallawcities—25¢per$100

assessedvaluation;(2)forothergenerallaw

citieswithapopulationof5,000orless—$1.50

per$100assessedvaluation;and(3)forcities

with5,001orgreaterpopulation—$2.50per

$100assessedvaluation.

AdministrativeProcedures

Overtheyears,theTexassystemofproperty

taxadministrationhasundergonesignificant

change.

Priorto1980,theappraisalofpropertyfortax

purposeswasfragmentedamongmorethan

3,000citiesandotherlocaljurisdictions,and

therewerenouniformstatewidestandards

governingtheadministrationoflocaltaxes.In

55

1979,however,theTexasLegislaturechanged

thissituationradicallywhenitenactedanew

StatePropertyTaxCodethatestablished

uniformappraisalpoliciesandprocedures.

Underthecode,county-wideappraisal

districtsarenowresponsibleforpreparinga

unitarytaxrollthatencompassesallproperty

withinthecounty.Althoughcitiesandother

jurisdictionsretaintheauthoritytosettheir

owntaxratesandcollecttheirowntaxes,they

mustusethetaxrollpreparedbythecentral

appraisaldistrictforalltax-relatedpurposes.

Thebasicproceduresforadministering

propertytaxesincludethefollowing:

1) Appraisal:Thetaxablevalueofallpropertyinthecountyisdeterminedby

thecentralappraisaldistrict.

2) Protest:Anypropertyownerdissatisfiedbythevaluefixedbythe

centralappraisaldistrictcanappealto

theappraisalreviewboard.Upona

convincingdemonstrationthatthe

appraisaldistrict’sdeterminationwas

erroneous,thereviewboardhasthe

authoritytocorrecttheerror,including

butnotlimitedtoorderingareduction

ofthetaxablevalueoftheappellant’s

property.

3) AssessmentofTaxes:Thetaxroll

preparedbythecentralappraisal

districtisfurnishedtocitiesandother

taxingentitieswithinthecounty;those

entitiesuseitasthebasisforlevying

taxesforthecomingfiscalyear.

Legislationpassedin2019overhauls

theprocessbywhichcitiesadopttheir

taxrates.Generallyspeaking,iftaxes

thatfundmaintenanceandoperations

expensesincreasemorethan3.5

percent,thecitymustholdanelection

ontheNovemberuniformelectiondate

forvoterstoapprovetherate.(Note:

Thereareexceptionstothisgeneral

processforcitiesunder30,000

population,undercertain

circumstances.)Acitymaynotadopta

taxrateexceedingthelowerofthe

voter-approvedtaxrateortheno-new-

revenuetaxrateuntilitpublishes

noticeandholdsapublichearing.Cities

musttakevariousotheractionsto

promotetransparencyinthetax-rate-

settingprocess,includingposting

certaininformationontheirwebsites,

andincorporatingtaxrateinformation

intoadatabasemaintainedbytheir

appraisaldistricts.

4) Collection:Afterthecouncilhassetthepropertytaxrateforthecomingfiscal

year,thetaxassessor-collectormails

taxnoticestoallpropertyownersin

thecityandinitiatesthecollectionof

taxes.

Theproceduresforassessingandcollecting

propertytaxesareprescribedbytheTaxCode

andLocalGovernmentCode.Completedetails

regardingstaterequirementsareavailable

fromthePropertyTaxDivisionoftheTexas

StateComptrollerofPublicAccounts.

DelinquentPropertyTaxes

Forobviousreasons,itistothecity’s

advantagetocollectasmuchaspossibleofthe

amountofpropertytaxesowed.Inthisregard,

financialanalystsareinclinedtocriticizecities

thatfailtoconsistentlycollectatleast95

percentofthetaxeslevied.InmanyTexas

cities,a98-percentcollectionrateisthenorm.

Themoresuccessfulcitytaxofficesare

assistedbyanattorneywhoisskilledin

collectingdelinquenttaxes.Insomecases,this

56

maybethecityattorney,butthemore

commonpracticeisforthecitytohirealawyer

whospecializesinthedelinquenttaxfield.

Mostoutsidelawyerschargeafeethatispaid

bythedelinquenttaxpayersonthebasisofa

percentageofthedelinquenttaxestheyowed.

CitySalesTax

AsaresultoflegislationinitiatedbytheTexas

MunicipalLeague,thegeneralcitysalestax

becameavailabletoTexascitiesin1968and

hasbecomealmostuniversal,withvirtuallyall

citiesinthestatehavingadoptedit.

Mostcitiesinwhichthecombinedlocalsales

tax(city,county,specialdistrict)hasnot

reachedtwopercentcanconsiderthe

impositionofcertainadditionalsalestaxesfor

purposesthatincludeeconomicdevelopment,

crimecontrol,propertytaxrelief,andstreet

maintenance.Additionalinformationregarding

thesalestaxforeconomicdevelopmentis

availablefromtheTexasMunicipalLeagueand

theLeague’sEconomicDevelopmentHandbook.

UserFees

Chargesfortheuseofcityservicesarean

increasinglypopularmethodofgenerating

revenues.Inadditiontochargingforsolid

wastecollectionandwaterandsewerservices,

citiesimposefeesfortheuseofavarietyof

facilities,includingswimmingpools,golf

courses,andairports.

FederalGrants

Despitecutbacksinrecentyears,federalaidis

stillanimportantpartofthemunicipal

revenuepicture.Forindividualcities,federal

aidasaproportionofallrevenuesfluctuates

widely,with“distressed”citiesreceivinglarge

amountsoffederalmoney,andthemore

prosperouscitiesreceivingcomparativelylittle.

StreetRentals

Aportionofanaveragecity’srevenueis

producedbyrentalchargescollectedfrom

privatefirms—suchascableTVcompanies,

telecommunicationsproviders,andgasand

electricutilities—inreturnforallowingthemto

usestreetsandotherpublicrights-of-way.

Municipalstreetrentalchargesforelectric,

gas,andwaterutilitiesareauthorizedunder

thestateTaxCode,whichallowscitiesto

imposesuchchargesonutilityand

transportationenterprisesinreturnforthe

privilegeofusingthecity’sstreetsandalleysto

stringlines,burypipes,andotherwiseuse

publicpropertytoconductbusiness.The

provisionsforcollectingcompensationfrom

telecommunicationsprovidersarecontainedin

LocalGovernmentCodeChapter283,and

thoserelatingtocableandvideoprovidersare

inChapter66oftheUtilitiesCode.Chapter

284oftheLocalGovernmentCodecontains

right-of-waycompensationprovisionsforsmall

cellularnetworknodes.

Fines

Understatelaw,acitymayassessafineofup

to$2,000perdayforviolationsofordinances

dealingwithfiresafety,zoning,orpublic

health-relatedmatters.Acitymayassessafine

ofupto$4,000perdayforviolationofan

ordinancegoverningthedumpingofrefuse.

Forordinancesdealingwithotherviolations,

themaximumfineis$500perday.

Theamountofrevenuefromfinesasa

proportionofcityrevenuesusuallyvariesin

directproportiontocitysize.Inlargercities,

finesgenerateacomparativelysmall

proportionoftotalrevenues;inmostsmall

57

cities,finerevenuesplayamuchmore

importantroleinthecitybudget.

Statelawlimitstheamountofrevenuethata

cityunder5,000populationmayderivefrom

finesforviolationsoftrafficlaws.

LicenseandPermitFees

Undertheirpolicepowers,citiesregulatea

widevarietyofactivitiesinordertopromote

thehealth,safety,andwelfareoflocalcitizens.

Permitandlicensefeesprovidetherevenues

necessarytofinancethecostofthese

regulatoryprograms.Examplesofpermitfees

includethosechargedforexamining

subdivisionplatsandplumbinginstallations.

Examplesoflicensefeesincludethosefor

registeringdogs.Theamountofapermitor

licensefeemustbearareasonablerelationship

tothecostoftheparticularregulatorypro-

gram.Underthelaw,excessivefeesmaynot

beimposedinordertocreate“profits.”Also,

thecitymaynotassessafeeorrequirea

permitforwhichnobonafideregulatory

functionisperformed.

Hotel-MotelTax

Chapter351oftheTaxCodeauthorizesmost

citiestolevyanoccupancytaxofuptoseven

percentonthepriceofahotelormotelroom.

Othercities,dependingonpopulation,may

levyanevenhighertax.Underthelaw,

proceedsfromthistaxmustbeearmarkedfor

certainspecifiedpurposes,includingthe

advertisingandpromotionofthecityandits

vicinitytoattracttourism,artsandcultural

activities,historicalrestorationand

preservationactivities,registrationof

conventiondelegates,operationofvisitor

informationcenters,theconstructionofcivic

centersandauditoriums,certainsporting

events,signage,andtouristbuses.Citiesmust

maintainawrittenlistofallprojectsfundedby

thehotel-moteltax.Citiesmustalsoannually

reporttothecomptrollertheirhotel

occupancytaxrates,theamountofrevenue

collectedfromhoteloccupancytaxesduring

theyear,andtheamountsandpercentages

allocatedtospecificusesduringtheyear.

TaxesonAlcoholicBeverages

UndertheTexasAlcoholicBeverageCode,the

stateleviesbothagrossreceiptstaxanda

separatetaxonthesaleofallmixeddrinks

servedinclubs,saloons,andrestaurants.

Someofthestate’stotalcollectionsare

remittedbacktothecitiesonaproratabasis.

Additionally,citiesareauthorizedbySection

11.38oftheTexasAlcoholicBeveragesCodeto

levyfeesnottoexceedone-halfofthestate

feeforavarietyofalcoholicbeverage-related

permits,includingpermitsforpackagestores,

distributors,brewers,andothersissuedwithin

thecity.

OccupationTaxes

CitiesareauthorizedunderSection302.101of

theTexasTaxCodeandArticleVIII,Section1,

oftheTexasConstitutiontolevyanoccupation

taxoncertainbusinessesandprofessions,such

asoperatorsofpinballmachinesandother

coin-operateddevices.Therateofthecitytax

maynotexceedanamountsetbystatuteand

maynotexceed50percentoftherateofthe

occupationtaxleviedbythestateonthesame

businesses,ifnostatutoryamountisset.Acity

maynotlevyataxonabusinessorprofession

notsubjecttostateoccupationtaxation.

SpecialAssessments

A“specialassessment”isachargeimposedby

thecityonalimitedgroupofpropertiesto

financepublicimprovementsthatspecifically

58

benefitthosepropertiesandenhancetheir

value.Specialassessmentsaremostfrequently

usedtofinancetheconstructionofsidewalks

orreconstructionofstreets.Thecostof

improvementsisapportionedamongallthe

ownersofpropertyabuttingtheimprovement

accordingtorelativebenefit.Costsaredivided

betweenpropertyownersandthecity

accordingtothestatelawapplicabletothe

particulartypeofimprovement.

MiscellaneousRevenues

Miscellaneousincomeisderivedfrommany

differentsources,suchasrentalchargesfor

theuseofthecity’sproperty,thesaleofcity

property,thesaleofwaterandotherutility

servicestootherjurisdictions,andinterestin-

comeonidlecityfunds.

Budgeting

Formanycouncilmembers,budgeting

representsthemostwretchedandtiresome

aspectofcitygovernment.Budgetingbegins

amidcriesfromsomecitizensfor“taxrelief”

anddemandsfromothersthattheir

“essential”programsbefunded.Uponits

adoption,thebudgetisdismissedwithasigh:

“Nowthatthatdreadfulchoreisbehindus,we

cangetonwiththe‘fun’partofthecity’s

business.”

Financialmanagementisindeedunglamorous,

andbudgetsarepoorleisurereading.

However,itisalsotruethatamongallthe

functionsperformedbythecitycouncil,

budgetingisthemostimportant.

Initssimplestdefinition,budgetingisaplan

forutilizingthecity’savailablefundsduringa

fiscalyeartoaccomplishestablishedgoalsand

objectives.Withinabroadercontext,the

budgetalsoservesto:

1) Providethepublicwithanunderstandablefinancialplanthat

plainlydescribesactivitiesthatwillbe

undertakenduringthenextfiscalyear

andtheextentandspecifictypesof

servicesthatwillbeperformed.

2) Establishprioritiesamongcity

programs,particularlynewor

expandedprograms.

3) Definethefinancialframeworkthatwill

beusedtoperiodicallycheckthestatus

ofcityoperations.

4) Determinetheleveloftaxation

necessarytofinancecityprograms.

Budgetingistheforumformakingthemostof

thecouncil’skeydecisionsaboutthefutureof

thecity.Itisaprocessfordeterminingthe

community’sstandardofliving—whatlocal

residentsneedandwant,whattheyarewilling

andabletopayfor,andwhatservicestheycan

expecttoreceivefortheirtaxdollars.

Thecouncilcanusethebudgettorestorean

ailingmunicipalgovernmenttofinancial

health,ormisuseittodriveahealthy

governmenttoinsolvency.Itcanbeusedto

nurturecommunitydevelopmentorfreeze

growth.Thebudgetiseverything.Itis,inthe

wordsofonemayor,“theWorld

Seriesofmunicipalgovernment.”

StatutoryRequirements

ThebudgetingprocessineveryTexascity,

regardlessofsize,mustcomplywiththe

requirementsinChapter102oftheLocal

GovernmentCode.Underthestatute:

1) Thecitycouncilmustadoptanannual

budgetandconductthefinancialaffairs

ofthecityinstrictconformancewith

thebudget.

59

2) Thebudgetforeachfiscalyearmustbe

adoptedpriortothefirstdayofsuch

fiscalyear.InmostTexascities,the

fiscalyearbeginsonOctober1;

therefore,thebudgetmustbeadopted

bySeptember29orearlier.

3) Thecity’sbudgetofficermustprepare

aproposedbudgetforthe

considerationofthecitycouncil.In

mostcities,thelawrequiresthatthe

mayorserveasbudgetofficer;incities

thathaveadoptedthecitymanager

formofgovernment,thecitymanager

isthebudgetofficer.

4) Copiesoftheproposedbudgetcompiledbythebudgetofficermustbe

filedwiththecityclerk/secretaryand

madeavailableforpublicinspection.

Theinitiallyproposedbudgetmustbe

filednolaterthanthirtydayspriorto

thedateuponwhichthecitycouncil

setsthepropertytaxrateforthenext

fiscalyear.

5) Ifthebudgetwillraisemoretotal

propertytaxesthanintheprioryear,it

mustcontainacoverpagegivingnotice

ofthatfact.Abudgetcallingforsucha

propertytaxincreasemustbeposted

onthecity’swebsite,ifitoperatesone.

6) Thecitycouncilmustholdapublic

hearingonthebudgetafterthe15th

daythatthebudgethasbeenfiledwith

thecityclerkorsecretary.Noticeofthe

publichearingmustbegivenina

newspaperofgeneralcirculationinthe

countynotlessthantennormorethan

thirtydayspriortothehearing.The

noticemustidentifyaproposed

propertytaxincrease.

7) Uponadoptionofthefinalbudgetbymajorityvoteofthecouncil,copies

mustbefiledwiththecountyclerkand

cityclerk/secretaryandmadeavailable

forpublicinspection.Abudgetthat

raisestotalpropertytaxesrequiresa

separateratificationvote.Theadopted

budgetmustcontainacoverpagethat

includespropertytaxinformationas

wellastherecordvoteofeach

councilmemberonthebudget.The

adoptedbudgetandcoverpagemust

bepostedonthecity’swebsite,ifit

operatesone.

8) Afterthenewfiscalyearhasbegunandthebudgethasbeenputintoeffect,no

expenditure“shallthereafterbemade

exceptinstrictcompliancewithsuch

adoptedbudget,”normaythecouncil

amendthebudgetexceptforreasons

of“gravepublicnecessity”requiring

“emergencyexpenditurestomeet

unusualandunforeseenconditions,

whichcouldnot,byreasonablediligent

thoughtandattention,havebeen

includedintheoriginalbudget...”

9) Thebudgetandanyamendmentstoit

mustbefiledwiththecountyclerk.

10) Thegoverningbodyofthecitymaylevy

taxesonlyinaccordancewiththe

budget.

Forobviousreasons,Chapter102oftheLocal

GovernmentCodeisgenerallyinterpretedto

prohibitdeficitfinancing—thatis,budgeting

expendituresforwhichnooffsettingrevenues

areprovided.

CharterRequirementsinaHomeRuleCity

Allcitychartersestablishaframeworkfor

budgetpreparation,adoption,and

implementation.Whilethedetailsofthese

provisionsvaryfromcitytocity,charter

requirementsgenerallyprescribeatimetable

forpreparingthebudget,requireapublic

60

hearing(s),andrequirethecounciltoadopt

thebudgetbyacertaintime.

Manychartersalsoprescribetheformatofthe

budget,includingrequirementsthatitcontain

amessagedescribingthebudgetofficer’s

proposedfiscalplanforthecityandsignificant

featuresofthebudgetfortheforthcoming

fiscalyear;ageneralsummary,with

supportingdata,whichshowsproposed

expendituresandanticipatedrevenuesforthe

nextfiscalyearandtheirrelationshipsto

correspondingdataforthecurrentbudget

year;anddetailsofproposedexpendituresand

anticipatedrevenues.

BasicBudgetInformation

Adoptionofaplanofcityservicesforthenext

fiscalyearbeginswithabudgetdocument

containingcertainbasicinformation.The

budgetdocumentshouldidentifyallservices

currentlyprovidedandproposedtobe

provided(orterminated)duringthecoming

fiscalyear.Foreachservice,thefollowing

informationshouldbefurnished:

• Anitemizationofexpendituresforeach

serviceduringthepreviousfiscalyear,

aprojectionofactualexpendituresfor

thecurrentyear,andproposed

expendituresforthenextfiscalyear.

• Astatementofobjectivesforeach

servicetobefundedduringthenext

fiscalyear.“Objectives”donotmean

organizationalobjectives—suchas“to

addnewpoliceofficers”or“to

purchaseanewstreetsweeper.”

Rather,thesestatementsshould

describethebenefitsthecommunity

willderivefromaparticularservice,

suchas“toreduceaveragepolice

responsetimetoemergencycallsby

threeminutes,”or“tocleanxnumber

ofmilesofstreets.”

• Theproposedlevelofeachservicefor

thenextfiscalyear,togetherwitha

descriptionofperformancestandards

foreach.Inthecaseofthesolidwaste

budget,forexample,servicelevelsand

performancecanbeexpressedinterms

ofthenumbersofcustomersserved

andthevolumeofrefusecollected.

Streetmaintenancecanbeexpressed

intermsoflanemilesresurfaced,

maintenancerequests,andnumberof

complaintsconcerningstreetquality,

andsoon.Thisapproachwillhelpthe

councilfocusoncommunitybenefits

thatwillbeproducedbyagiven

expenditure,ratherthanonsuch

detailsaswhetheraparticular

departmentisrequestingtoomuch

moneyforsuppliesortravel.

• Abriefdescriptionofthemethodsby

whichtheserviceswillbedelivered.

• Anitemizationofthecostcomponents

ofproposedservices.

• Sourcesoffundingfortheproposed

services.

• Adescriptionoffactorsthatcould

affectthecostofproposedservices.

Thebudgetalsoshouldcontainasummaryof

thecity’sfinancialconditionfortheprioryear

andcurrentyear,andaprojectionofits

anticipatedconditionforthecomingfiscalyear

andbeyond.Thissummaryshouldindicate:

• Outstandingobligationsofthecity.

• Beginningbalanceofallcashfunds.

• Actualrevenues,brokendownby

source,collectedintheprecedingyear

andanticipatedfortheensuingyear.

• Estimatedrevenueavailabletocover

theproposedbudget.

61

• Estimatedtaxraterequiredtocover

theproposedbudget.

Properlyorganized,thisinformationwill

enablecouncilmemberstogaina

comprehensiveunderstandingofthecity’s

financialconditionandgivethemthetools

theyneedtoestablishthescopeanddirection

ofmunicipalservicesforthecomingyear.

Foramorein-depthdiscussionofbudgets,the

TexasComptroller,withthehelpoftheTexas

MunicipalLeague,haspublishedtheBudgetManualforTexasCities.CopiesareavailableontheComptroller’swebsite.

Implementation

Afterthebudgethasbeenapproved,regular

monitoringbythecitycouncilcanhelpensure

thatmunicipalservicesarecarriedoutin

accordancewithbudgetobjectivesandwithin

expenditureceilings.Inmostcities,thebudget

officerisrequiredtofurnishthecouncilwith

periodicreportsthatshowthepriormonth’s

expendituresandtotalexpenditurestodate

foreachbudgetedactivity.Usingthese

reports,thecouncilcanidentifydeviations

frombudgetplans,anticipatefinancialtrouble

spots,anddeterminewhetherthevarious

departmentsarefunctioningproperly.

Onaperiodicbasis,perhapsquarterly,the

councilshouldbefurnishedwithawritten

descriptionofsignificantbudgetary

developmentsduringthecurrentfiscalyear.

Foreachactivity,thisstatementshould

describeprogresstodateincomparisonwith

objectives,andshouldprovidereportson

expendituresbybudgetcategoryandrevenue

collections.Revisedestimatesofrevenuealso

shouldbepresented,togetherwithrevised

surplusordeficitprojections.Thesereports

willgivethecouncilthebasisfordetermining

howwellthecityismeetingitsservicetargets

withthefundsavailable.Also,itcanhelpthe

councildeterminewhetherbudget

modificationsareneededduringtheyear.

MunicipalBorrowing

Itisararecasewhenacityisabletocarryout

acapitalimprovementsprogramofany

consequencewithoutusingitscredit.More

often,thecityborrowsmoney,andindoing

so,offersfuturetaxcollectionsorutility

revenuesassecurityfortheloan.

Loansfallintotwocategories:short-termand

long-term—or,stateddifferently,loanstobe

repaidwithinthecurrentfiscalyearversus

thosetoberepaidinfutureyears.Thissection

brieflyreviewsthetwotypesofloans.

Short-TermBorrowing

Mostshort-termloansaremadewithlocal

banks.Theirpurposeistoprovidefundsofa

temporarynature,andtheyaremadewiththe

expectationofrepaymentwithinthecurrent

fiscalyear.AbankloanmadeinAugustto

avoidanoverdraftinthegeneralfundpending

receiptoftaxcollectionsinSeptemberisa

goodexampleofashort-termloan.

Ashort-termloandiffersfromalong-termloan

intworespects:(1)itwillmaturewithinthe

currentfiscalyear;and(2)itcanbeapproved

bythecitycouncilwithoutthenecessityfor

voterapprovalatareferendumelection.

Short-termloansshouldbeusedsparingly.An

excessiveamountofshort-termdebtcan

adverselyaffectthecity’sbondratingand

impairitsabilitytoaccomplishlong-term

borrowingformajorcapitalimprovement

programs.Frequentuseofshort-term

62

borrowingreflectsdeficienciesinthequalityof

thecity’smanagementofitsfinancial

resources.

Long-TermBorrowing

Unlikeshort-termloans,whichcanberepaid

withgeneralfunddollarsderivedfroma

varietyofrevenuesources,long-termloans

requirethatthespecificsourceofrevenuethat

willbeusedtorepaythedebtbeidentified

and,incertaincases,pledged.

Long-termloanssecuredbyapledgeof

propertytaxesarecalled“generalobligations”

andincludeadvaloremtaxbonds,time

warrants,andcertificatesofobligation.Long-

termloanssecuredbyapledgeofrevenue

fromanincome-producingfacilityarecalled

“revenuebonds.”

GeneralObligationDebt

Generalobligationdebtsarepayablefrom,and

aresecuredby,apledgeoffuturepropertytax

collections.Understandardspromulgatedby

theattorneygeneralofTexas,acitywitha

maximumpermissibletaxrateof$1.50per

$100assessedvaluationmaynotincurgeneral

obligationdebtthatwillrequirethelevyofa

taxataratehigherthan$1.00,afterallowing

tenpercentfordelinquenciesincollectionand

forthepaymentofmaturingprincipaland

interest.

Generalobligationdebtiscommonly

expressedasapercentageofthecity’stotal

assessedvaluations.Forexample,acitythat

hasatotalassessedvaluationof$10million

andoutstandinggeneralobligationdebtinthe

principalamountof$500,000issaidtohavea

debtratiooffivepercent.Threecommon

formsofgeneralobligationdebtaread

valoremtaxbonds,timewarrants,and

certificatesofobligation.

AdValoremTaxBonds

Advaloremtaxbondsarecommonlyreferred

toasgeneralobligation,orG.O.bonds.They

areissuedpursuanttoanordinanceadopted

bythecitycouncil,typicallyfollowingapproval

ofthebondsatareferendumelection.The

bondsareexaminedastolegalitybythe

attorneygeneralofTexas,andthendelivered

bythecitytothesuccessfulpurchaseror

bidderforpaymentincash.Thiscashisthen

usedbythecitytopayforlibraries,police

buildings,cityhalls,andotherpublicfacilities

withalong,usefullife.

G.O.bondsusuallyareissuedin$5,000

denominations,andthebondissueusually

providesserialmaturities,withacertain

amountofprincipalmaturingeachyearovera

periodnottoexceedfortyyears.

Generalobligationbondshavethehighest

degreeofinvestoracceptanceofanytypeof

municipalindebtedness,andtheycommand

thelowestinterestrates.Therefore,unless

exceptionalcircumstancesdictateotherwise,

G.O.bondsarethepreferredmeansof

borrowingagainstapledgeoftaxrevenues.

TimeWarrants

Timewarrantsarealsogeneralobligation

debtsandarepayablefromadvaloremtaxes.

UnlikeG.O.bonds,whicharesoldforcash,

timewarrantsareissueddirectlytovendorsto

payforconstruction,equipment,andservices.

AlsounlikeG.O.bonds,timewarrantsdonot

requirevoterapproval,althoughthelawdoes

requirethatthecitycouncilpublishnoticeof

itsintenttoissuethemandthatthecouncil

callareferendumelectionuponpresentation

63

ofapetitionsignedbytenpercentofthe

taxpayingvoters.

Theproceduresforissuingtimewarrantsare

cumbersomeandexpensiveandwillresultin

thecitypayingahigherrateofinterestthanif

theborrowingwereaccomplishedwithbonds.

Nevertheless,timewarrantscanoccasionally

beadvantageous—forexample,tocomplete

theconstructionofapublicworksproject

wheretherehasbeenacostoverrunandbond

fundshavebeenexhausted.

CertificatesofObligation

Thethirdformofgeneralobligationdebt

payablefromadvaloremtaxesiscertificatesof

obligation(COs).Liketimewarrants,COscan

beissuedwithoutvoterapproval—exceptthat

uponnoticeofthecity’sintenttoissue

certificates,fivepercentofthequalifiedvoters

canforceanelectionontheissueby

submissionofapetition.Withcertain

exceptions,acitymaynotissueaCOtopaya

contractedobligationifabondpropositionto

authorizetheissuanceofbondsforthesame

purposewassubmittedtothevotersduring

theprecedingthreeyearsandfailedtobe

approved.

Certificatesofobligationcanbeissueddirectly

tovendorstopayforconstructionwork,

equipment,machinery,materials,supplies,

land,orprofessionalservicesfurnishedtothe

city.Also,undercertaincircumstancesCOscan

besold,likebonds,forcash,inwhichcasethey

mustheapprovedbytheattorneygeneralin

thesamemannerasbonds.

RevenueBonds

Thereisonlyonetypeofbondsecuredbya

pledgeofrevenuesfromanincome-producing

facilitysuchasautilitysystem.These

obligationsarerevenuebondsandusuallyare

designatedwiththenameofthesystemthat

pledgestherevenues(forexample,

WaterworksSystemRevenueBonds,

WaterworksandSewerSystemRevenue

Bonds,andsoon).

Whenutilityrevenuesarepledgedtosupport

revenuebonds,thepledgeismadeofthe

system’snetrevenues—thatis,grossrevenues

minusoperatingandmaintenancecosts.Such

bondsarepayablesolelyfromtheserevenues

andincludeastatementontheirfacethatthe

holdershallneverbeentitledtodemand

paymentfrompropertytaxes.

Indeterminingwhethertheamountof

pledgedrevenuesissufficienttorepaythe

outstandingrevenuebondsofautilitysystem,

analystswilllookattheratiobetweenthe

system’snetearningsandtherequirementsof

principalandinterestmaturitiesoveraperiod

ofyears.Asarule,netrevenuesshouldbeat

least1.25timeslargerthantheaverageannual

debtservicerequirementsofthesystem.This

ratioiscalled“coverage,”andrevenuebonds

aresaidtohave1.25Xcoverage,or2.23X

coverage,andsoon.Thehigherthecoverage,

thebetterthesecurityforthebondsand,all

otherthingsbeingequal,thelowertherateof

interestatwhichthebondscanbeissued.

Inpledgingtherevenuesofautilitysystem,it

iscommontomakea“crosspledge,”or

“combinedpledge.”Thisisapledgeofthe

revenuesofonesystemtorepaybondsissued

forimprovementstoadifferentsystem;for

example,pledgingthenetrevenuesofthe

watersystemtothepaymentofbondsissued

toimprovethesewersystem.Ontheother

hand,therevenuesofautilitysystemmaynot

becrosspledgedtothepaymentofbonds

issuedonbehalfofanon-revenue-producing

64

facility.Forinstance,watersystemrevenues

cannotbepledgedtothepaymentofbonds

issuedtobuildacityhall.

BondRatings

Astheannualvolumeoflong-termdebt

incurredbystateandlocalgovernmentshas

grownovertheyears,competitionbetween

citiesandotherborrowersfortheinvestor’s

dollarhasincreasedcorrespondingly.A

municipalbondratingisoneofthemethods

usedtohelpalleviatetheproblemsarising

fromthiscompetitivesituation.

Abondratinggivesaquickindicationofthe

qualityofanewissuebeingoffered,sothat

prospectivebiddersmayknowiftheywantto

developabid.Butabondratinghasgreater

valuethanamerescreeningdevice:italso

influencestherateofinterestpayableon

bonds.Therefore,itisdesirablethatthecity

maintainagoodratingforitsbonds,becauseit

canmeanthedifferencebetweenagoodbid

andapoorone,andadifferenceininterest

chargestothecityrunningintomanytensof

thousandsofdollars.

MostTexascitieshavemorethanonebond

rating.Eachbondissueisratedseparately,

basedonthesourceofrevenuethathasbeen

pledgedtosecurepayment.Generalobligation

bonds,therefore,areratedseparatelyfrom

waterorsewerrevenuebonds.

Indeterminingtheratingofabondissue,

analystsfocusonthenatureoftheparticular

security.Inthecaseofgeneralobligation

bonds,primeimportanceisattachedto

relationshipsamongthecity’sdebt,wealth,

population,andtaxcollectionexperience.The

economicbaseofthecity,thestageofits

development,andthequalityofits

governmentalsoareimportantfactors.Finally,

analystsexaminetheexactnatureand

strengthofthelegalobligationthatthebonds

represent.

Thebondratingsoftwoparticularfirmsare

universallyacceptedininvestorcircles.These

areMoody’sInvestorsServiceandStandard&

Poor’sCorporation,bothofwhicharebasedin

NewYorkCity.Thefourinvestmentgrade

ratingsgrantedbytheseservicesareas

follows:

Moody’sInvestorsService

Aaa:Bestquality,carryingthesmallest

degreeofinvestmentrisk

Aa:Highquality(togetherwithAaa

comprise“high-gradebonds”)

A:Highermedium-grade(manyfavorable

investmentattributes)

Baa:Lowermedium-grade(neitherhigh-

qualitynorhigh-risk)

Standard&Poor’sCorporation

AAA:Highestrating,withextremelystrong

capacitytorepayloan

AA:OnlyasmalldegreebelowAAAinthe

capacitytorepaytheloan

A:Strongcapacitytorepayloan,although

moresusceptibletoadverseeffectsin

economicconditions

BBB:Adequatecapacitytorepayloan

Inofferingnewlyissuedbondsforbids,thecity

shouldapplytooneorbothoftherating

agenciestoobtainaratingontheissuebeing

offered.Thenominalcostofobtaining

aratingcanberecoveredmanytimesoverby

minimizinginterestcostsonthebasisofa

favorablebondrating,asopposedtothesale

ofnon-ratedbonds.

65

BondElections

Ifithasbeendeterminedbythecitycouncil

thatabondelectionisrequired,thefirst

step—andthekeystep—inasuccessful

campaigniscitizenparticipation.Thetried-and

trueelementsofasuccessfulbondelection

includethefollowing:

• Letprivatecitizenvolunteers,rather

thanthecitycouncil,conductthe

campaigntopersuadelocalvotersto

voteforthebonds.

• Enlistthesupportofcommunityand

civicorganizations.

InstallmentObligations

AneverincreasingnumberofTexascitiesare

financingmunicipalpurchasesthrough

installmentsalesorlease-purchase

agreements.Generallyspeaking,citiesmust

competitivelyprocurethepersonalpropertyat

issuewhenalease-purchaseagreementor

installmentsaleinvolvesanexpenditureof

morethan$50,000incityfunds.

AnticipationNotes

Certaincitiesmayhaveauthoritytoborrow

againstanticipatedrevenue(typicallyfederal

grantmoney)byissuinganticipationnotes.

Anticipationnotesmaybeappropriatefor

borrowingrelativelysmallamountsofmoney

whentheissuanceofbondswouldbecost

prohibitive.Stateagenciesmaybeauthorized

topurchaseanticipationnotesfromcities,thus

speedingthegrantprocesstofundcity

projects.Thelawrelatingtoanticipationnotes

maybefoundinchapter1431oftheTexas

GovernmentCode.

CapitalImprovements

Programming

Itisafinancialfactoflifeineverycitythatthe

demandfornewstreets,waterlines,andother

publicworkswillalwaysexceedthesupplyof

currentfunds.Capitalimprovements

programmingistheprimarymethodusedby

mostcitiestocopewiththeperpetual

imbalancebetweencapitaldemandsand

limitedfinancialresources.

Acapitalimprovementsprogram(CIP)isa

long-termplan,usuallyspanningfivetosix

years,forfinancingmajorcostitemsthathave

alongusefullife,suchasbuildings,land,

streets,utilitylines,andexpensiveequipment.

TheCIPdocumentlistsallthecapitalitems

scheduledforconstructionoracquisition

duringthenextfiveorsixyears,thetimewhen

constructionoracquisitionistooccur,the

amountexpectedtobespentduringeachyear

oftheCIP,andthesourceoffundingforeach

expenditure.

PreparationofaCIPinvolvesfivemajorsteps.

First,alistofproposedcapitalimprovements

ispreparedonthebasisofrecommendations

fromthecitycouncil,staff,andcitizengroups.

Thecity’scomprehensiveplanwillbethe

sourceofmanyCIPitems,butwhateverthe

source,eachitemincludedinthelistshouldbe

supportiveofthecommunitygoalsexpressed

intheplan.

Second,costestimatesaredevelopedforall

proposedCIPitems.Inadditiontostatingthe

up-frontcostofeachitem,thesecalculations

usuallyincludeadescriptionofsavingsthat

willresultfromitsacquisitionorconstruction,

66

aswellastheimpacttheitemwouldhaveon

futurerevenuesoroperatingcosts.

Third,adeterminationismadeofthecity’s

abilitytopayfortheitemsincludedinthe

draftCIP,togetherwithadescriptionofthe

methodbywhicheachwillbefinanced.Ability

topaywillbedeterminedbyafinancial

analysisofpast,current,andfuturerevenue,

expenditure,anddebtpatterns.Optionsfor

financingparticularitemsincludespecial

assessments,stateorfederalgrants,additional

feesortaxes,currentrevenues(pay-as-you-

go),reserveorsurplusfunds,general

obligationorrevenuebonds,andcertificates

ofobligation.Theobjectiveofthisstepisto

determine,foreachyear,theminimumcosts

thecitywillincurbeforeanynewcapital

expenditurescanbefinanced.

Fourth,allproposedCIPitemsareorganized

bythestafffororderlypresentationtothecity

council.Eachisrankedinrecommended

priorityorder.Itemsthatoverlaporduplicate

previouslyapprovedprojectsorthatare

inconsistentwiththecity’scomprehensive

planareidentifiedandperhapsdowngraded.

Finally,thetentativeCIPisdiscussedatpublic

hearings,thoroughlyreviewedbythecouncil,

andthenfinallyapprovedbyformalcouncil

action.

BasedoninformationcontainedintheCIP,a

capitalbudgetispreparedtoshowallcapital

expendituresinpriorityorder,togetherwith

summariesofthefinancialactivitiesplanned

foreachyear,includingtheamountsofbonds

tobeissued,amountsofoperatingfunds

required,andsoforth.

Thecapitalbudgetingprocessnormallytakes

placeonacyclicalbasis.Underasix-yearCIP,

yearoneisthecurrentcapitalbudgetadopted

bythecitycouncilatthesametimeit

approvestheoperatingbudget.Manytimes,

thecapitalbudgetisincludedasacomponent

oftheoperatingbudget.Yearstwothroughsix,

havingbeenapprovedbythecouncilwhenit

adoptedtheCIP,remainintherecordas

expressingthecouncil’sintenttocarryforward

withthebalanceoftheCIP.

Attheconclusionofyearone,thecouncil

approvesanotherone-yearcapitalbudgetand

extendstheCIP,withrevisions,foranother

year.Thus,yeartwoofthepreviousCIPbe-

comesyearoneofthenewsix-yearprogram,

andthecyclebeginsanew.

Capitalimprovementprogrammingoffers

severaladvantages.Byschedulingampletime

forconstructionoracquisitions,costly

mistakescanbeavoided,asisthecasewhen

streetshavetobeduguprepeatedlybecause

theyarenotplannedinrelationtoother

facilities.Also,byworkingwithalistof

plannedprojects,sitescanbepurchasedat

lowercost,andbyspacingoutprojectsover

severalyears,thecity’staxanddebtloadcan

bestabilized,andbalancecanbemaintained

betweendebtserviceandcurrent

expenditures.

FinancialReporting

Financialreportspreparedperiodically

throughoutthefiscalyearareanessentialpart

ofthecontrolsystemnecessarytopermitthe

citycounciltodeterminewhetherfundsare

beingexpendedinaccordancewiththebudget

andtoidentifydiscrepanciesbetween

anticipatedandactualrevenues.Financial

reportsfallintofourgeneralcategories—

internalbudgetaryreports,annualfinancial

reports,annualaudits,andlocaldebt

reports—eachofwhichisbrieflydiscussed

next.

67

InternalBudgetaryReports

Internalbudgetaryreportsarepreparedona

monthlybasisandaredistributedtothecity

councilanddepartmentheads.Thesereports

illustratethefinancialconditionofthecityasit

unfoldsfrommonthtomonthandanswer

suchquestionsas:Arecityservicesbeing

providedasplanned?Areexpenditures

exceedingbudgetedlevels?Isthecashinflow

attheexpectedlevel?Bydeterminingthe

answerstotheseandrelatedquestionsona

regularbasis,thecouncilcanidentifyproblem

areasandinitiatecorrectiveactions

accordingly.

AnnualFinancialReport

Theannualfinancialreportiscompiledatthe

conclusionofthefiscalyearandshows,item

byitem,budgetedversusactualrevenuesand

expenditures,togetherwithotherinformation

thatdescribesthecity’syear-endfinancial

condition.Thefinancialreportshouldbe

preparedbyanindependentcertifiedpublic

accountantappointedbythecitycounciland

madeavailabletothedepartmentheads,the

newsmedia,andotherinterestedparties.

AnnualAudit

Sections103.001-103.004oftheLocal

GovernmentCoderequireeachcitytohavean

annualauditofitsfinancialrecordsand

accounts.Theauditcanbeperformedeither

byacertifiedpublicaccountantoraqualified

cityemployee,andmustbemadeavailablefor

publicinspectionnolaterthan180daysafter

thecloseofthecity’sfiscalyear.

Theauditinvolvesexaminationofthree

aspectsofthecity’sfinancialoperations:(1)

internalcontrols;(2)statements,records,and

accountingtransactions;and(3)compliance

withstatutoryandbudgetaryrequirements.

Properlyconducted,theauditprovidesa

doublecheckonthecity’sfinancialstatus,a

methodforcommunicatingwiththecitizenry,

andabonafidestatementofthecity’s

financialcondition,whichwillimproveits

abilitytoissuebonds.

LocalDebtReport

Section140.008oftheLocalGovernmentCode

requirescitiestoannuallycompileandreport

varioustypesofdebtobligationinformation,

includingtheamountsofprincipalandinterest

topayoutstandingdebtobligations,the

currentcreditratinggivenbyanynationally

recognizedcreditratingorganizationtodebt

obligationsofthecity,andanyother

informationthatthecityconsidersrelevantor

necessarytoexplaintheoutstandingdebt

values.Subjecttocertainexceptionsdiscussed

below,thelocaldebtreportmustbeposted

continuouslyonthecity’swebsiteuntilthecity

poststhenextyear’sreport.Thereportmust

bemadeavailabletoanypersonfor

inspection.

Asanalternativetopostingthereportonthe

city’swebsite,acitymayprovideallrequired

debtinformationtothecomptrollerandhave

thecomptrollerposttheinformationonthe

comptroller’sofficialwebsite.Further,acity

withapopulationoflessthan15,000may

providethecomptrollerwithitslocaldebt

reportforinclusiononthecomptroller’s

website.Acitythatalreadyincludesthe

requireddebtinformationinotherreports

thatarepostedtothecity’swebsitemay

providealinktothatinformationratherthan

replicatingthedatainthelocaldebtreport.

Investments

68

In1995,theTexasLegislatureenactedthe

PublicFundsInvestmentAct,whichrequires

thegoverningbodytoadoptawritten

investmentpolicy.Acitymaycontractwithan

independentinvestmentadvisortoprovide

investmentandmanagementservices.

Typicallythecityinvestmentofficermust

attendoneinvestmenttrainingsessionwithin

twelvemonthsoftakingofficeandmust

attendeighthoursoftrainingonceeverytwo

yearsthereafter.Thetreasurerandthechief

financialofficer(ifthetreasurerisnotthechief

financialofficer)mustalsoattendtenhoursof

trainingeverytwoyears.TheTexasMunicipal

Leagueofferscomprehensivepublicfunds

investmenttraining.

FinancialWarningSignals

Inrecentyears,increasingattentionhasbeen

giventomonitoringthefinancialhealthof

cities.Althoughmostofthechronicfinancial

problemsofcitiestendtoslowlysnowballover

anextendedperiodoftime,theyusuallyresult

fromastandardsetofproblems,including:(1)

adeclineinrevenuesortaxbase;(2)an

erodingcapitalplant;(3)afalteringlocalor

regionaleconomy;(4)growingdebtburden;

(5)accumulationofunfundedpension

liabilities;(6)asuddenlossofsubstantial

federalfunds;(7)anincreaseinspending

pressures;and/or(8)ineffectivefinancial

managementpractices.

69

ChapterSeven:

OrdinancesandResolutions

Thecitycounciltakesofficialactionbytwo

primarymeans:resolutionsandordinances.

Bothoftheseplayimportantrolesintheirown

respectiveways,andtheysharecertain

similarities.Buttherearedistinctionsbetween

thetwo,anditisgoodtoknowthe

differences.

Thedistinctionbetweenanordinanceanda

resolutionisinsubjectmatter,not

terminology.Anordinancecannotbechanged

intoaresolutionmerelybycallingita

resolution,normaytherequirementsfor

enactinganordinancebebypassedbysimply

passingaresolution.Aresolutiongenerally

statesapositionorpolicyofacity.An

ordinanceismoreformalandauthoritative

thanaresolution.Anordinanceisalocallaw

thatusuallyregulatespersonsorpropertyand

usuallyrelatestoamatterofageneraland

permanentnature.

Passageofanordinancegenerallyinvolves

threesteps,thefirstofwhichisthe

introductionoftheproposedordinanceata

councilmeeting.

Next,thecityclerkorcityattorneyeither

readstheentireordinanceorreadsjustthe

captionoftheordinanceandallowstheperson

proposingittoprovideanexplanation.

Thereisnostatelawrequiringthatordinances

bereadaloudintheirentirety.Inaddition,

thereisnogenerallyapplicablestatelawthat

requiresmultiplereadingsofanordinance.

(Somehomerulecharters,however,do

provideformorethanonereading.)Ifthe

ordinanceisshort,thecouncilmaywishto

haveitreadinfullforthebenefitofany

citizenspresent.Iftheordinanceislongand

technical,theusualpracticeistosettlefora

briefsummaryandgeneralexplanationofthe

purposeoftheordinance.

Third,theordinanceisdebatedbythecouncil

andeitherdefeated,postponed,referredtoa

committeeforfurtherstudy,orapproved.If

theordinanceisapproved,itisthensignedby

themayorandattestedto(certified)bythe

citysecretaryorcityattorney.

Also,dependingoncitytypeandthesubject

matterofanordinance,itmayhavetobe

publishedinanewspaperbeforebecoming

effective.

Becauseoftherelativelycumbersome

proceduresinvolvedinenactinganordinance,

itisimportanttoknowwhenanordinanceis

requiredandwhenlessformalkindsofcouncil

actionwillsuffice.Thoughthereareno

absolutestandardsthatapply,thesethree

rulesoflawmayhelp:

1) Anycouncilenactmentthatregulates

personsorpropertyandimposesafine

forviolationsmustbeintheformofan

ordinance.Thisrequirementisbased

ontheprinciplethattheremustbea

printedlawandcitizensmusthave

somenoticethatitisineffectbefore

theycanbesubjectedtoafine.

2) Anenactmentmustalwaysbeinthe

formofanordinanceifthestatelaw

authorizingtheparticularaction

requiresanordinance.Examples

includethecreationofaplanningand

70

zoningcommissionorsettingthetax

levyforthenextfiscalyear.

3) Anordinanceisrequiredtoamendor

repealanexistingordinance.

CompatibilityofOrdinanceswith

StateandFederalLaws

Anordinance,orportionthereof,isvoidifit

conflictswiththeU.S.Constitution,theTexas

Constitution,orafederalorstatelaw.Also,

eventhoughanordinancemightbevalidat

thetimeitwaspassed,ifalawsubsequently

enactedbythestateorfederallegislature

conflictswiththeordinance,theordinanceis

void.Conversely,ifanordinancesupplements

andisinharmonywiththelaw,theordinance

willbesustained.

Anordinanceisinvalidifacourtdetermines

thatthestatelegislatureintendedtopreempt

thefieldwithregardtothesubjectaddressed

intheordinance.Ifthelegislaturehas

preemptedthefield,noordinanceexcept

thosespecificallyauthorizedbystatutemaybe

enactedinsuchfield.

Examplesofconflictsthathavecaused

ordinancestoberuledinvalidinclude:

• anordinanceprescribingadifferent

penaltyfromthatimposedbystatelaw

wheretheordinanceandthelawdealt

withthesametypeofoffense;

• Anordinancerestrictingthehoursof

operationofliquorstorestofewerthan

thoseauthorizedunderthestate

AlcoholicBeverageCode;

• anordinancelegalizinganactivityor

businessthatwasprohibitedbystate

law;and

• anordinanceinconflictwiththe

InterstateCommerceClauseofthe

UnitedStatesConstitution.

ValidityofOrdinances

Anordinancethatisarbitrary,oppressive,

capricious,orfraudulentwillbeinvalidatedby

thecourts.Thecourtscaninquireintothe

validityofordinancesbylookingatwhether

theordinancehasasubstantialrelationshipto

theprotectionofthegeneralhealth,safety,or

welfareofthepublic.Thecourtsusuallywill

notsubstitutetheirjudgmentforthatofthe

citycouncil;butifanordinanceisnotin

compliancewithlawfulrequirements,the

courtsmayoverturnit.Anordinanceis

consideredvalidifnolawsuithasbeenfiledto

invalidatetheordinanceonorbeforethethird

anniversaryoftheeffectivedateofthe

ordinance,unlesstheordinancewasinvalidon

thedayitwasenactedoritwaspreempted.

FormoftheOrdinance

Statelawdoesnotprescribetheformofan

ordinance,otherthantorequirethatitcontain

anordainingclause(Section52.002ofthe

LocalGovernmentCode)andtorequirethe

publication,orsometimespostingofeitherthe

completetextorcaptionofeveryordinance

thatestablishespenaltiesforviolations

(Sections52.011-52.013oftheLocal

GovernmentCode).Butaformforordinances

hasevolvedbycustomandisnowusedby

mostcities.

Althoughtheactualdraftingofanordinanceis

bestlefttothecityattorney,councilmembers

shouldbefamiliarwiththebasicform.This

71

includes:

1) Thenumberoftheordinance.This

informationisgoodtohavefor

indexingandreadyreference.

2) Thecaption,whichbrieflydescribesthesubjectoftheordinanceandthe

penaltiesprovidedforitsviolation.

Althoughanordinanceisvalidwithout

acaption,thisisausefulfeature

becauseitprovidesasimplewayof

determiningwhatisincludedinthe

ordinancewithoutreadingtheentire

document.Also,iftheordinancedoes

nothaveacaption,Section52.011of

theLocalGovernmentCoderequires

thattheordinancebepublishedinits

entiretyifitprovidesapenaltyfor

violations.Conversely,apenal

ordinancemaybepublishedbycaption

onlyifthecaptionstatesthepenalty

forviolations.

3) Apreamble,whichisoptional,maybe

includedincasesinwhichthecouncil

wantsthecourtstounderstandthe

reasonstheordinancewaspassed,

factualfindingsmadebythecouncil,or

thelegislativeauthorityforthe

ordinance.

4) Theordainingclause,whichisrequiredbylaw,inmostinstances.

5) Thebodyoftheordinance,whichusuallyisbrokendownintosections

accordingtosubjects.Thiscontainsthe

commandoflawasordainedbythe

council.

6) Theeffectivedateoftheordinancewhichmay,insomecircumstances,be

governedbystatelaworcitycharter(if

adoptedbyahomerulecity).

7) Aseverabilityclausewhichclarifiesthattheinvalidityofsomeportionsofthe

ordinanceshouldnotrendertheentire

ordinanceinvalid.

8) Thepenaltyclause,whichfixesthepenaltyforviolatingtheordinance.

Understatelaw,themaximumpenalty

thecouncilmayestablishforviolating

anordinancedealingwithfiresafety,

zoning,orpublichealth(exceptfor

dumpingrefuse)isafineof$2,000per

dayforeachdaytheordinanceis

violated.Themaximumpenaltythe

councilmayestablishforviolatingan

ordinancegoverningthedumpingof

refuseis$4,000perday.Forordin-

ancesdealingwithotherviolations,the

maximumfineis$500perday.Cities

donothavethepowertopunish

violatorsbysendingthemtojail.

9) Thefinalpartoftheordinanceisthestatementthatitwaspassedand

approved,givingthedateofpassage,

thesignatureofthemayor,andaspace

forthecityclerkorsecretarytosign

andattesttothefactthatthe

ordinancewasactuallyadopted.Some

citiesalsorequirethecityattorneyto

approvetheformoftheordinance.If

requiredbystatelaworcitycharter,

signaturesmustbepresentonthe

ordinanceortheordinancemaybe

declaredvoid.

72

Thefollowingordinanceillustratestheseeight

components:

OrdinanceNo.125

CAPTION

ANORDINANCEOFTHECITYOFANYWHERE,

TEXAS,ESTABLISHINGWATERCONSERVATION

REQUIREMENTSANDPROVIDINGAPENALTY

FORVIOLATIONS.

PREAMBLE

WHEREAS,becauseoftheconditions

prevailingintheCityofAnywhere,thegeneral

welfarerequiresthatthewaterresources

availabletotheCitybeputtothemaximum

beneficialuseandthatthewasteor

unreasonableusebeprevented;and

WHEREAS,lackofrainhasresultedinasevere

reductionintheavailablewatersupplytothe

City,anditisthereforedeemedessentialto

thepublicwelfarethattheCityCounciladopt

thewaterconservationplanhereafterset

forth.

ORDAININGCLAUSE

NOWTHEREFORE:

BEITORDAINEDBYTHECITYCOUNCILOFTHE

CITYOFANYWHERE,TEXAS:

BODY

SECTION1.AUTHORIZATION.

TheCityManagerorhisdesigneeishereby

authorizedanddirectedtoimplementthe

applicableprovisionsofthisOrdinanceupon

hisdeterminationthatsuchimplementationis

necessarytoprotectthepublicwelfareand

safety.

SECTION2.APPLICATION.

TheprovisionsofthisOrdinanceshallapplyto

allpersons,customers,andpropertyserved

withCityofAnywherewaterwherever

situated.NocustomeroftheCityofAnywhere

watersystemshallknowinglymake,cause,

use,orpermittheuseofwaterreceivedfrom

theCityforresidential,commercial,industrial,

agricultural,governmental,oranyother

purposeinamannercontrarytoanyprovision

ofthisordinance,orinanamountinexcessof

thatusepermittedbytheconservationstage

ineffectpursuanttoactiontakenbytheCity

Managerorhisdesigneeinaccordancewith

theprovisionsofthisOrdinance.

SECTION3.CONSERVATIONREQUIREMENTS.

FromMay1toSeptember30ofeachyearand

uponimplementationbytheCityManagerand

publicationofnotice,thefollowingrestrictions

shallapplytoallpersons:

(a)Irrigationutilizingindividualsprinklersor

sprinklersystemsoflawns,gardens,

landscapedareas,trees,shrubs,andother

plantsisprohibitedexceptonadesignatedday

whichshallbeonceeveryfivedays,andonly

thenduringthehoursof8:00p.m.and12:00

noon.Provided,however,irrigationoflawns,

gardens,landscapedareas,trees,shrubsor

otherplantsispermittedatanytimeif:(i)a

hand-heldhoseisused:(ii)ahand-held,faucet

filledbucketoffive(5)gallonsorlessisused;

or(iii)adripirrigationsystemisused.

(b)Thewashingofautomobiles,trucks,

trailers,boats,airplanesandothertypesof

mobileequipment,therefillingoraddingof

watertoswimmingand/orwadingpoolsand

theuseofwaterforirrigationofgolfgreens

andteesisprohibitedexceptondesignated

irrigationdaysbetweenthehoursof8:00p.m.

and12:00noon.

(c)Thewashingorsprinklingoffoundationsis

prohibitedexceptondesignatedirrigation

daysbetweenthehoursof8:00p.m.and

12:00midnight.

(d)Thefollowingusesofwateraredefinedas

“wasteofwater”andareabsolutely

73

prohibited:(i)allowingwatertorunoffintoa

gutter,ditch,ordrain;(ii)failuretorepaira

controllableleak;and(iii)washingsidewalks,

driveways,parkingareas,tenniscourts,patios,

orotherpavedareasexcepttoalleviate

immediatefirehazards.

SECTION4.EFFECTIVEDATE

ThisOrdinanceshallbecomeeffective

immediatelyuponitspassageandpublication

asrequiredbylaw.

SECTION5.SEVERABILITY

ThisOrdinanceshallbeconsideredseverable,

andtheinvalidityorunconstitutionalityofany

section,clause,provisionorportionofthe

Ordinanceshallnotaffectthevalidityor

constitutionalityofanyothersection,clause,

provisionorportionofthisOrdinance.

SECTION6.PENALTY

Anyperson,corporationorassociation

violatinganyprovisionofthisOrdinanceshall

bedeemedguiltyofanoffense,andupon

convictionshallbepunishedbyafinenotto

exceedFiveHundredDollars($500.00).The

violationthereofshallbedeemedaseparate

offense,andshallbepunishedaccordingly.

Provided,however,compliancemaybefurther

soughtthroughinjunctivereliefintheDistrict

Court.

CONCLUSION

PASSEDANDAPPROVEDthis____dayof

_________,20___

/s/_______________

Mayor

ATTEST:

/s/_______________

CitySecretary/Clerk

APPROVEDASTOFORM:

/s/_______________

CityAttorney

74

ChapterEight:

ConflictsofInterest

Mayorsandcouncilmembersareexpectedto

avoidinvolvementsthatputtheirown

personalinterestsatcrosspurposeswiththose

ofthepublic.Inmostcases,goodjudgmentis

enoughtokeepcityofficialswithinthebounds

ofpropriety.Thereare,however,statelaws

governingthebehaviorofcityofficials.

Atleastthreesituationscanimpairtheability

ofmayorsorcouncilmemberstoproperly

performtheirduties.Allthreeinvolveconflicts

ofinterestinwhichamemberofthecity

councilisplacedinthepositionofowing

loyaltytotheinterestsofthecityononehand,

andtosomeotherinterestontheother.

Thefirstsituationoccurswhena

councilmemberoccupiestwoormorepublic

officesatthesametime.Thesecondexists

whenthecitycouncilvotestotakeanaction

thatwillhaveabeneficialeffectonabusiness

orpropertyinwhichacouncilmemberhasa

majorinterest.Andthethirdexistsincasesof

nepotism,wherehiringdecisionsaremadeon

thebasisofrelationship.Eachofthese

situationsisdescribedbelow.

DualOffice-Holding

TwoorMoreCivilOffices

Mayorsandcouncilmembersareprohibited

fromholdingmorethanonepublicofficeat

thesametimeifbothare“officesof

emolument.”Anemolumentisabenefitthatis

receivedascompensationforservicesand

includessalaries,feesofoffice,orother

compensation—notincludingthere-

imbursementofactualexpenses.

Therefore,amayororcouncilmemberwho

receivesasalary,feesforattendingcouncil

meetings,oranyotheremolumentsfromthe

city,maynotsimultaneouslyserveasadistrict

judge,statesenatororrepresentative,county

clerk,orinanyotherlocalorstateofficeof

emolument.Theonlyexceptionstothis

prohibitionarefoundinArticleXVIof

theTexasConstitution,whichallowscertain

stateofficersandemployeestoholdmunicipal

officesofemolumentandwhichpermitsa

personholdinganofficeofemolumenttoalso

serveasajusticeofthepeace,county

commissioner,notarypublic,asanofficerofa

soilandwaterconservationdistrict,orinother

specificoffices.

Incompatibility

Secondly,withrespecttodualciviloffices,

mayorsandcouncilmembersareprohibited

fromholdingasecondpublicofficehaving

dutiesandloyaltiesincompatiblewiththose

thatmustbeperformedasanofficerofthe

city.Thisrule—whichappliestoallpublic

offices,whetherpaidorunpaid—heedsthe

mandatethatnopersoncanservetwo

masters;fullallegianceisrequiredtooneor

theother.

Thegeneralruleregardingincompatibleoffices

wasreviewedinThomasv.AbernathyCountyLineI.S.D.,inwhichtheTexasSupremeCourt

heldthattheofficesofcitycouncilmember

andschoolboardmemberwereincompatible

75

becauseifthesamepersoncouldbeaschool

trusteeandamemberofthecitycouncilor

boardofaldermenatthesametime,school

policies,inmanyimportantrespects,wouldbe

subjecttodirectionofthecounciloraldermen

insteadofthetrustees.

Theincompatibilitydoctrinealsoprohibitsthe

councilfromappointingoneofitsown

memberstoapublicofficeoremployingthe

memberasapublicemployee.Amayor,for

example,couldnotsimultaneouslyserveasa

policeofficerforthecity.

Thoughitmaybedifficultattimesto

determinewhethertwoofficesorpositionsare

incompatible,amisjudgmentcouldbecostly.

Thecourtshaveheldthatwhenanindividual

whoholdsanofficeacceptsandisswornintoa

secondofficethatconflictswiththefirst,the

individualisdeemedtohaveautomatically

resignedfromthefirstoffice.

CityActionsthatBenefitMayors

andCouncilmembers

Citycouncilseverywhereroutinelymake

decisionsonpurchases,rezoning,utility

extensions,roadconstructionprojects,and

othermattersthatbenefitvariousprivate

interests.Becauseofthebroadscopeofthe

council’spowers,itisreasonabletoexpect

thatsomeofitsdecisionswilldirectlyor

indirectlyimpacttheindividualmembersof

thecouncilmakingsuchdecisions.

Anticipatingthatpotentialconflictsofinterest

willinevitablyariseatthelocallevel,while

acknowledgingthepracticalimpossibilityof

flatlyprohibitingsuchconflicts,theTexas

Legislaturehasenactedatleastthreestatutory

schemesthatrequirethepublicdisclosureof

conflictsbetweenthepublicinterestanda

councilmember’sprivateinterests(Section

171.001etseq.,Section176.001etseq.,Local

GovernmentCode;andSection553.002et

seq.,GovernmentCode).

Thepurposeofchapter171,theconflictsof

intereststatute,istopreventcouncilmembers

andotherlocalofficialsfromusingtheir

positionsforhiddenpersonalgain.Thelaw

requiresthefilingofanaffidavitbyany

councilmemberwhoseprivatefinancial

interests—orthoseofrelatives—wouldbe

affectedbyanactionofthecouncil.

Wheneveranycontract,zoningdecision,or

othermatterispendingbeforethecouncil,

eachcouncilmembermusttakethefollowing

steps:

(a) Examinethependingmatterand

determinewhetherthecouncilmember

orarelatedpersonhasasubstantial

interestinthebusinessorproperty

thatwouldbebeneficiallyaffectedbya

decisionofthecitycouncilonthe

matter.

Apersonhasasubstantialinterestina

businessentityif:

1)thepersonowns10percent

ormoreofthevotingstockorsharesor

ofthefairmarketvalueofthebusiness

entityorowns$15,000ormoreofthe

fairmarketvalueofthebusinessentity;

or

2)fundsreceivedbytheperson

fromthebusinessentityexceed10

percentoftheperson’sgrossincome

forthepreviousyear.

Apersonhasasubstantialinterestin

realpropertyiftheinterestisan

76

equitableorlegalownershipwithafair

marketvalueof$2,500ormore.

Additionally,asubstantialinterestofa

personrelatedinthefirstdegreeby

eitheraffinityorconsanguinitytothe

localpublicofficialisa“substantial

interest”thattheofficialmustdisclose.

(b) Iftheanswerto(a)is“yes,”thecouncilmembermustfileanaffidavit

disclosingthenatureoftheinterestin

thematterand/orthenatureofthe

substantialinterestofarelatedperson

insuchmatter,if:

1) inthecaseofasubstantialinterestinabusinessentity,

theactiononthematterwill

haveaspecialeconomic

effectonthebusinessentity

thatisdistinguishablefrom

theeffectonthepublic;or

2) inthecaseofasubstantialinterestinrealproperty,itis

reasonablyforeseeablethat

anactiononthematterwill

haveaspecialeconomic

effectonthevalueofthe

property,distinguishable

fromitseffectonthepublic.

Theaffidavitmustbefiledwiththe

officialrecordkeeperofthe

governmentalentity.

(c) Afterthecouncilmemberfilesa

disclosureaffidavit,heorshemust

abstainfromparticipatinginthe

discussionofthematterandabstain

fromvotingonit.However,ifalocal

publicofficialisrequiredtofilethe

affidavitanddoesfiletheaffidavit,that

officialisnotrequiredtoabstaininthe

matterifamajorityofthegoverning

bodyarealsorequiredtofileanddo

fileaffidavitsonthesameofficial

action.

Pursuanttothisstatute,thecitycanpurchase

goodsorservicesfromabusinessinwhicha

councilmemberhasasubstantialinterestifthe

councilmemberfilesadisclosureaffidavitand

thenabstainsfromdiscussingandvotingon

thedecisionregardingthepurchase.

Thecitycouncilmusttakeaseparatevoteon

anybudgetitemspecificallydedicatedtoa

contractwithanentityinwhichamemberof

thegoverningbodyhasasubstantialinterest,

andtheaffectedmembermustabstainfrom

thatseparatevote.Thememberwhohas

compliedinabstaininginsuchvotemayvote

onafinalbudgetonlyafterthematterin

whichtherewasaninteresthasbeenresolved.

Anofficerwhoknowinglyviolatestheaffidavit

orabstentionrequirementcommitsaClassA

misdemeanorwhichispunishableby

confinementinjailforuptooneyearanda

fineupto$4,000.

LocalGovernmentCodeChapter176,asecond

conflictsdisclosurestatute,requiresthat

mayors,councilmembers,andcertainother

executivecityofficersoragentsfilea“conflicts

disclosurestatement”withacity’srecords

administratorwithinsevendaysofbecoming

awareofanyofthefollowingsituations:

• Acityofficerortheofficer’sfamily

memberhasanemploymentor

businessrelationshipthatresultsin

taxableincomeofmorethan$2,500

withapersonwhohascontractedwith

thecityorwithwhomthecityis

consideringdoingbusiness.

77

• Acityofficerortheofficer’sfamily

memberreceivesandacceptsoneor

moregiftswithanaggregatevalueof

$100inthepreceding12monthsfrom

apersonwhoconductsbusinessoris

beingconsideredforbusinesswiththe

officer’scity.

• Acityofficerhasafamilyrelationship

withapersonwhoconductsbusiness

orisbeingconsideredforbusinesswith

theofficer’scity.

Thechapteralsorequiresavendorwhowishes

toconductbusinessorbeconsideredfor

businesswithacitytofilea“conflictof

interestquestionnaire”ifthevendorhasa

businessrelationshipwiththecityandan

employmentorotherrelationshipwithan

officerorofficer’sfamilymember,givesagift

toeither,orhasafamilyrelationshipwitha

cityofficer.

Anofficerwhoknowinglyfailstofilethe

statementcommitseitheraClassA,B,orC

misdemeanor,dependingontheamountof

thecontract.

Athirdconflictsdisclosurestatute,Chapter

553oftheGovernmentCode,prevents

councilmembersandotherlocalofficialsfrom

usingtheirpositionsforhiddenpersonalgain

relatedtothecity’spurchaseorcondemnation

ofpropertyinwhichthecityofficialhasalegal

orequitableinterest.

Wheneveracityisdecidingwhetherto

purchaseorcondemnapieceofproperty,the

individualofficershoulddeterminewhether

theyhavealegalorequitableinterest

inpropertythatistobepurchasedor

condemned.Iftheindividualdoeshavealegal

orequitableinterestinpropertyinsucha

situation,thentheindividualneedstofilean

affidavitwithin10daysbeforethedateon

whichthepropertyistobeacquiredby

purchaseorcondemnation.Theaffidavitis

filedwiththecountyclerkofthecountyin

whichtheofficialresidesaswellasthecounty

clerkofeachcountyinwhichthepropertyis

located.

Theaffidavitmustinclude:(1)thenameofthe

publicservant;(2)thepublicservant’soffice,

publictitle,orjobdesignation;(3)afull

descriptionoftheproperty;(4)afull

descriptionofthenature,type,andamountof

interestintheproperty,includingthe

percentageofownershipinterest;(5)thedate

thepublicservantacquiredaninterestinthe

property;(6)thefollowingverification:“I

swearthattheinformationinthisaffidavitis

personallyknownbymetobecorrectand

containstheinformationrequiredbySection

553.002,GovernmentCode;”and(7)an

acknowledgementofthesametyperequired

forrecordingadeedinthedeedrecordsofthe

county.

Apublicofficialwhoviolatestheaffidavit

requirementafterhavingnoticeofthe

purchaseorcondemnationcommitsaClassA

misdemeanor,whichispunishablebyupto

oneyearinjailandafineupto$4,000.

Nepotism

“Nepotism”istheawardofemploymentor

appointmentonthebasisofkinship.The

practiceiscontrarytosoundpublicpolicy,

whichiswhyprohibitionsagainstnepotismare

commoninallstates,includingTexas.

TheTexasnepotismstatute,chapter573of

theGovernmentCode,forbidsthecitycouncil

fromhiringanypersonwhoisrelatedtoa

councilmemberwithintheseconddegreeby

affinityorwithinthethirddegreeby

78

consanguinity.Thisprohibitiondoesnotapply

toacitywithapopulationof200orless,orto

relativeswhowerecontinuouslyemployedby

thecityfor:(1)atleast30days,ifthe

councilmemberisappointed;or(2)atleastsix

months,ifthecouncilmemberiselected.

Whenapersonisallowedtocontinue

employmentwiththecitybecausetheperson

hasbeencontinuouslyemployedforthe

requisiteperiodoftime,thecitycouncil

memberwhoisrelatedshallnotparticipatein

thedeliberationorvotingonmatters

concerningemploymentifsuchactionapplies

onlytotheparticularpersonandisnottaken

withrespecttoabonafideclassorcategoryof

employees.

Thenepotismstatutedoesnotapplytounpaid

positions.

Since“affinity”and“consanguinity”arethe

controllingfactorsindeterminingnepotism,

bothtermsneedtobeclearlyunderstood.

Affinityiskinshipbymarriage,asbetweena

husbandandwife,orbetweenthehusband

andthebloodrelativesofthewife(orvice

versa).

Consanguinityiskinshipbyblood,asbetween

amotherandchildorsisterandbrother.

Twopersonsarerelatedtoeachotherby

affinityiftheyaremarriedtoeachotherorthe

spouseofoneofthepersonsisrelatedby

consanguinitytotheotherperson.The

followingrelativesofapublicofficialwouldfall

withintheprohibitedfirstorseconddegreeof

affinity.

Relativesrelatedwithinthefirstdegreeof

affinityincludeapublicofficial’shusband,

wife,father-in-law,mother-in-law,sons-in-law,

daughters-in-law,stepsons,and

stepdaughters.

Relativesrelatedwithintheseconddegreeof

affinityincludeapublicofficial’ssisters-in-law

(brother’sspouseorspouse’ssister),brothers-

in-law(sister’sspouseorspouse’sbrother),

spouse’sgrandmothers,spouse’sgrandfathers,

spouse’sgranddaughters,andspouse’s

grandsons.

Terminationofamarriagebydivorceorthe

deathofaspouseterminatesrelationshipsby

affinitycreatedbythatmarriageunlessachild

ofthatmarriageisliving,inwhichcasethe

marriageistreatedascontinuingtoexistas

longasachildofthemarriageisliving.

Twopersonsarerelatedtoeachotherby

consanguinityifoneisadescendantofthe

otheroriftheyshareacommonancestor.

Purchasing

GovernmentCodeSection2252.908provides

that,withcertainexceptions:(1)acityis

prohibitedfromenteringintoacontractwitha

businessentityunlessthebusinessentity

submitsadisclosureofinterestedparties(i.e.,

disclosesapersonwhohasacontrolling

interestinthebusinessorwhoactively

participatesinfacilitatingthecontractforthe

business)ifthecontract:(a)requiresanaction

orvotebythecitycouncilbeforethecontract

maybesigned;or(b)thecontracthasavalue

ofatleast$1millionor(c)isforservicesthat

wouldrequireapersontoregisterasa

lobbyist;(2)thedisclosuremustbeonaform

prescribedbytheTexasEthicsCommission;

and(3)acitymust,notlaterthan30daysafter

receivingadisclosure,acknowledgereceiptof

thedisclosurewiththeTexasEthics

Commission.

79

ChapterNine:

PersonalLiabilityofCouncilmembers

Alegalconceptknownas“governmental

immunity”protectscitiesfrombeingsuedor

heldliableforvarioustorts(atortisawrongful

actresultingininjurytoapersonorproperty)

andcausesofaction.Buttherearesome

exceptionstothisgeneralrule.Forexample,

Chapter101oftheTexasCivilPracticeand

RemediesCode(alsoknownastheTexasTort

ClaimsAct)providesthatacitymaybeliable

fordamagesarisingfromtheuseofpublicly-

ownedvehicles,premisesdefects,andinjuries

arisingfromconditionsoruseofproperty.

Thus,acity(asanentity)issometimesliable

forlimiteddamagesresultingfromtheactions

ofcityofficialsandemployees.

Butwhataboutmayorsandcouncilmembers?

Mayorsandcouncilmembersacrossthestate

dailymakedecisionsthatimpactthelivesand

propertyofthousandsofpeople.Canthese

cityofficialsbeheldpersonallyresponsiblefor

damagesresultingfromdecisionstheymake

(orrefusetomake)intheirofficialcapacityas

membersofthecity’sgoverningbody?

Inmostinstances,mayorsand

councilmemberswillnotfacepersonalliability.

Likethecityitself,mayorsand

councilmembersareoftenprotectedby

differenttypesofimmunity,thepurposeof

whichistoallowthemtomakedecisionsin

thepublicinterestwithconfidenceand

withoutfear.However,immunityisnot

availableinallinstances.Forthatreason,itis

importantformayorsandcouncilmembersto

haveabasicunderstandingoftheareasin

whichtheyfacepotentialliability.

LiabilityUnderStateLaw

Westartbyexaminingaciviltortsuit,a

commoninstanceinwhichtheissueofthe

personalliabilityofamayororcouncilmember

mayarise.Generallyspeaking,Texascourts

haveheldthatmayorsandcouncilmembers

arenotpersonallyliablewhenthesuitarises

fromtheperformanceof(1)discretionaryacts

(2)takeningoodfaith(3)withinthescopeof

theirauthority.Whenamayoror

councilmemberisprotectedinthisway,itis

commonlyreferredtoasofficialimmunity.A

“discretionaryact”involvespersonal

judgment.Thedecisionaboutwheretoplacea

trafficsignisoneexampleofadiscretionary

act.Anactiontakeningoodfaithisonethatis

takenwithoutintenttodoharm.Thus,

councilmembersshouldensurethat

discretionaryactionsaretakeningoodfaith

andpursuanttotheirauthorityasauthorized

byrelevantstatelaw,ordinances,orpolicies.

Again,generallyspeaking,mayorsand

councilmembersmaybeheldpersonallyliable

fortortsthatarisefromministerialacts.A

“ministerialact”isoneperformedasamatter

ofduty;anactwhichamayoror

councilmembermustperform.Ministerialacts

alsoincludethoseperformedinobedienceto

statelaworfederallawswhicharesoplain

andexplicitthatnothingislefttodiscretionor

judgment.Forexample,canvassingtheresults

ofacityelectionisaministerialandnon-

discretionaryduty.Animproperministerialact

imperilsacouncilmemberregardlessof

whetheritisperformedingoodfaith.A

80

ministerialactrequiredbylaw,butthatisnot

performedatall,couldalsoleadtoliability.In

sum,amayororcouncilmembercould

potentiallybeindividuallyliablefordamages

toindividualsinjuredbecauseofthefailureto

properlyperformaministerialdutyor

negligentlyfailingtoperformthedutyatall.

Personalliabilityofmostcityofficialsiscapped

at$100,000foractionsbroughtinstatecourt

undertheTexasTortClaimsAct.

Inadditiontopersonalcivilliability,amayorof

councilmemberfulfillinghisorherdutiesfor

thecitymaybesubjecttocriminalliabilityas

theresultofaviolationofcertainstatelaws.

Someofthemostcommonstatelawsunder

whichacouncilmembermayfacecriminal

liabilityincludetheOpenMeetingsAct,the

PublicInformationAct,conflictsofinterestand

financialdisclosurelaws,purchasinglaws,and

nepotismlaws.Inaddition,prohibitionsfound

intheTexasPenalCodemaybeimplicatedasa

resultofservingasamayororcouncilmember,

includinglawsdealingwithbribery,gifts,

honorariums,falsificationofgovernment

documents,themisuseofinformation,abuse

ofofficialcapacity,officialoppression,forgery,

andtheft.

Finally,asanelectedofficial,mayorsand

councilmembersmayfacebothciviland

criminalliabilityforfailuretocomplywith

certainstatelaws,suchasthosegoverning

politicalcontributions,politicaladvertising,

andcampaigncontributions.

LiabilityUnderFederalLaw

Amayororcouncilmembermayalsoface

personalliabilityforviolationsofaperson’s

rightsunderfederallaw.Thisusuallyoccurs:

(1)astheresultofclaimsallegingviolationsof

constitutionalrights;or(2)inanemployment

context(e.g.,aclaimbroughtundertheFair

LaborStandardsActortheFamilyMedical

LeaveAct).

Thelawcustomarilyusedtotakeaction

againstcityofficialsforviolationsof

constitutionalrightsorviolationsoffederal

lawisSection1983,Title42,oftheUnited

StatesCode.Itprovides:

Everypersonwho,undercoloranystatute,ordinance,regulation,custom,orusage,ofanyState....subjects,orcausestobesubjected,anycitizenoftheUnitedstatesorotherpersonwithinthejurisdictionthereoftothedeprivationofanyrights,privileges,orimmunitiessecuredbytheConstitutionandlaws,shallbeliabletothepartyinjured....

Varioustypesofpolicydecisionsrelatedto

bothcityemployeesandcitizenscouldrender

amayororcouncilmemberliableunder

Section1983.However,cityofficialsare

usuallyprotectedbyqualifiedimmunity.

Similartotheofficialimmunitydefenseunder

statelaw(describedabove),amayoror

councilmembermaybeprotectedbyqualified

immunitywhensuedunderfederallaw.Tobe

coveredbyqualifiedimmunity,theofficial

mustshowthattheactiontaken:(1)was

discretionary;(2)waswithintheofficial’s

authoritytotake;and(3)didnotviolateany

clearlyestablishedstatutoryorconstitutional

rightofwhichareasonablepersonwouldhave

known.

Itisrarethatamayororcouncilmemberis

heldpersonallyliableunderfederallawforthe

decisionsheorshemakesasamemberofthe

81

governingbody.Evenso,cityofficialsshould

makesurethattheyhaveareasonablebasis

fordecisionsmade,andthatapplicablestate

andfederallawisreviewedbeforethose

decisionsaremade,especiallywhenthose

decisionsimpactspecificindividuals.

Insum,liabilityquestionsarenotoriouslyfact-

sensitive.Theadviceofthecityattorney

shouldalwaysbesoughtinregardtoany

specificliabilityquestion.

82

ChapterTen:

SourcesofInformation

Thereisnocomprehensiveguidetoeverything

thereistoknowaboutTexascities,butthere

aremanysourcesofinformationthatcanbe

helpful.Severalarelistedbelow.

LocalSources

Dependingontheamountoftimeavailable,

informationonthefinances,services,and

otheraspectsofthecitycanbeobtainedby:

• Readingthecity’scodeofordinances;

• Reviewingtheminutesofcouncil

meetingsheldduringthepastseveral

months;

• Studyingthecurrentbudget,the

previousyear’sfinancialreport,and

otherkeyfinancialdocuments;

• Visitingthevariouscitydepartmentsto

learnhowthecityconductsitsday-to-

dayoperations;and

• Conferringwithpastandpresent

membersofthecouncil,thelocal

newspapereditor,civicleaders,and

otherswhohavefollowedthecity’s

affairsovertheyears.

TexasMunicipalLeague

TheTexasMunicipalLeagueisanassociation

ofcitiesthatexistsforonereason:toservecity

officials.TMLofferscouncilmembersandother

cityofficialsabroadrangeofservices–

includingtrainingseminarsandconferences,

technicalassistance,legaladvice,andmany

otherservices.TheLeagueofficewelcomesall

inquiriesfromitsmemberofficials,nomatter

howordinaryorunusual.TheLeagueisalso

willingtoassistmembersofthepressin

understandingcities.

NationalResources

AmericanPlanningAssociation,103015th

StreetN.W.,Suite750West,Washington,D.C.

20005,202-872-0611.Majorpublications:

Planning,JournaloftheAPA,andZoningPractice.APAalsopublishesanumberof

guidestozoning,subdivisiondevelopment,

andotheraspectsofmunicipalplanning.

www.planning.org

AmericanPublicWorksAssociation,1200Main

Street,Suite1400,KansasCity,Missouri

64105-2100,816-472-6100.Monthly

publication:APWAReporter.APWAalso

publishesseveralpublicworks-related

manuals.www.apwa.net

AmericanSocietyforPublicAdministration,

1730RhodeIslandAve.NW,Suite500,

Washington,D.C.20036,202-393-7878.Bi-

Monthlypublication:PublicAdministrationReviewfeaturesarticlesforcouncilmembers

interestedinmunicipaladministrativeand

organizationalprocessesandtheory.PublicIntegrity,publishedbimonthly,addresses

ethicalissuesaffectinggovernmentand

society.ASPA’squarterlynewspaper,PATIMES,coversdevelopmentsintheacademic

andprofessionalfieldofpublicadministration.

www.aspanet.org

GovernmentFinanceOfficersAssociation,203

N.LaSalleSt.,Suite2700,Chicago,Illinois

60601-1210,312-977-9700.Majorpublications

83

includetheweeklyGFOANewsletterandbimonthlyGovernmentFinanceReview.GFOAalsopublishesawealthofexcellentoperating

manualsonthetopicsofbudgeting,debt

management,financialforecasting,and

relateditems.www.gfoa.org

InternationalAssociationofChiefsofPolice,

44CanalCenterPlaza,Suite200,Alexandria,

Virginia22314,703-836-6767.Major

Publication:monthlyPoliceChiefsMagazine.www.theiacp.org

InternationalAssociationofFireChiefs,4795

MeadowWoodLane,Suite100,Chantilly,

Virginia20151,703-273-0911.Major

publication:OnScenenewsletter.www.iafc.org

InternationalCity/CountyManagement

Association(ICMA),777NorthCapitolSt.N.E.,

Suite500,Washington,D.C.20002-4201,202-

962-3680.Majorpublication:PublicManagement.Otherpublications:LGR:LocalGovernmentReview(biannual);SmartBrief(dailynewsletter);andLeadershipMatters(weeklynewsletter).ICMAalsopublishesa

seriesofmanualsondifferentaspectsofcity

government.www.icma.org

InternationalInstituteofMunicipalClerks,

8331UticaAve.,Suite200,Rancho

Cucamonga,California91730,909-944-4162.

MajorPublications:IIMCNewsDigest,ConsentAgendas,IIMCMeetingAdministrationHandbook,andLanguageofLocalGovernment.IIMCprovidestrainingand

informationtocityclerksandcitysecretaries.

www.iimc.com

InternationalMunicipalLawyersAssociation,

51MonroeStreet,Suite404,Rockville,MD

20850202-466-5424.Bimonthlypublication:

MunicipalLawyer.IMLAalsopublishesa

varietyofdocumentsofspecial

interesttocityattorneys.www.imla.org

InternationalPublicManagementAssociation

forHumanResources,1617DukeSt.,

Alexandria,Virginia22314,703-549-7100.

Majorpublications:PublicPersonnelManagement,HRNews,andHRBulletin.IPMA-HRisasourceofexcellentinformation

onproductivity,employeeperformance

appraisal,andotheraspectsofmunicipal

personneladministration.www.ipma-hr.org

NationalAssociationofTownsandTownships,

1901PennsylvaniaAvenue,NW,Suite700,

Washington,D.C.,20006,202-331-8500.Major

Publication:WeeklyUpdates.NATaTofferstechnicalassistance,educationalservices,and

publicpolicysupporttolocalgovernment

officialsfromsmallcommunities.

www.natat.org

NationalCivicLeague,190E.9thAve,Suite

200,Denver,Colorado80203,303-571-4343.

MajorPublication:NationalCivicReview.NCLservesasaresourceforinformationoncitizen

participationinstateandlocalgovernment

andprovidesguides,modelcharters,andlaws

onspecificsubjects.NCLalsosponsorstheAll-

AmericaCityAward.www.ncl.org

NationalLeagueofCities,660NorthCapitolSt.

NW,Washington,D.C.20001,1-877-827-2385.

MajorPublication:CitiesSpeakBlog.Additionally,theorganizationconductstwo

nationalconventionsofcityofficials,thefirst

ofwhichfocusesoncity-relatedfederal

programs,whilethesecondemphasizes

methodsofimprovingmunicipaloperations.

www.nlc.org

U.S.ConferenceofMayors,1620IStreetN.W.,

Washington,D.C.20006,202-293-7330.USCM

providescurrentinformationonfederalpolicy

84

developmentsofinteresttocitiesoverthe

populationof30,000.www.usmayors.org

2019 Handbook for Mayors and Councilmembers - Texas ...

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Transcript of 2019 Handbook for Mayors and Councilmembers - Texas ...