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1995-03-20 Work Session on Consolidation e e .e ~ MINUTES OF CONSOLIDATION WORK SESSION MARCH 20, 1995 PAGE 593 ASSEMBLY The New Hanover County Board of Commissioners and Wilmington city Council held a joint Consolidation Work Session on Monday, March 20, 1995, at 1:00 P.M. in the Madeline suite located on the UNG-Wilmington Campus. Members present were: Commissioners Sandra Barone; William A. Caster; William E. Sisson, Jr.; Vice-Chairman E. L. Mathews, Jr.; Chairman Robert G. Greer; County Manager, Allen O'Neal; County Attorney, Wanda M. Copley; and Clerk to the Board, Lucie F. Harrell. Members present from the Wilmington city Council were: Mayor Don Betz; Mayor Pro-Tem Katherine B. Moore; Councilmembers, J. D. Causey; Hamilton E. Hicks, Jr.; Laura Padgett; and Charlie Rivenbark. Wilmington City Councilman Michael Youngblood was absent. Mayor Betz called the Wilmington City Council to order. Chairman Greer called the New Hanover County Board of commissioners to order and welcomed Dr. Jake Wicker, a representative from the Institute of Government who has been involved with various consolidation efforts throughout the State, inclUding the last effort by the City of Wilmington and New Hanover County in 1985. He announced Dr. Wicker would make a presentation on.his experience with consolidation of governments that would be followed by a period of questions and answers. PRESENTATION ON CONSOLIDATION EFFORTS THROUGHOUT THE STATE OF NORTH CAROLINA Dr. Wicker reported when he was contacted by County Manager O'Neal to make a presentation, he was informed that both governing bodies had decided to move forward with considering the consolidation of both governments. It was noted that a resolution has been adopted by the governing bodies to proceed with the following action: (1) establishment of a Consolidation Study Committee composed of members from both governing bodies; (2) the consolidation would consist of the entire area of the County minus the beach communities; and (3) a referendum would be held on the plan in October 1995 to become effective July 1, 1996, if approved by the voters. Dr. Wicker reported on the following consolidation efforts now occurring in the State of North Carolina: J (1) Durham/Durham Countv: Last year a Study Committee was appointed to address the basic political questions and present a recommendation to the governing bodies outlining the political structure of a consolidated government. After this information had been received by the governing bodies, a Charter Commission was to be appointed by the two boards. At the present time, the political structure report has been completed with no action taken by the two governing bodies. (2) Elizabeth citv/Pasauotank Countv: Approximately 18 months ago, a Study Commission was appointed with the initial charge to consider either total consolidation or the possibility of functional consolidation. The Commission was to study both issues and prepare a recommendation on the best way to consolidate the two governments. The Commission prepared a report and recommended total consoli~ation. A joint meeting was held, and both governing bodies decided to move forward with the "total consolidation" concept. The Study Commission was then directed to prepare a plan for total consolidation with a second alterna~.ve of functional consolidation if the total consolidation pian was not agreeable with both governing bodies. The plan is in the p-ocess of being completed. ~ MINUTES OF CONSOLIDATION WOR~_~ES~IO~ MARCH 20, 1995 -~~-t PAGE 594 (3) Charlotte/Mecklenburq: A Charter Drafting Committee will complete and present a charter to the governing bodies by the end of April 1995. If the governing bodies are satisfied with the charter, both bodies will appoint a Charter Commission to hold public hearings, and a referendum will be held in November 1995. If the charter is approved by the voters, it will be enacted by the General Assembly in 1996, and the plan will become effective July 1, 1997. Dr. Wicker presented the following approaches to the study of consolidation: (1) The Traditional Approach: The traditional approach is a major study of all functions and activities of both governments with development of a large plan by a Consolidation study Committee. The study is lengthy and costly with a series of reports on the various functions and activities of each government; the options and possibilities of merging; and the structure and organization of the consolidated government. After completion of the study, a charter is drafted incorporating the recommendations of the Consolidation study Committee. Numerous public hearings are held on the proposed charter with the final charter presented to the voters. (2) Preparation of a Charter with the Maior Political structure Identified: Because of a lack of participation by the general public during previous consolidation efforts~ the Charlotte/Mecklenburg governing bodies decided to take a different approach with the current consolidation effort. The initial decision was to draft the charter in a short period of time and then create a Charter Commission to hold public hearings; however, this schedule was modified with a committee composed of three County Commissioners, including the Chairman, and three City Councilmembers, including the Mayor, to decide on the basic political structure, such as the form of government, the size of the governing board, the number of districts whether at~large or combined, a partisan or non-partisan government, the name of the government, etc. Once the recommendations were made by the six- member committee, a Charter Commission was created composed of private citizens and representatives of each governing body to draft a charter based upon those, recommendations. Once the charter is completed, the charter will be presented to the governing bodies. If the governing bodies decide to move forward, a new Charter Commission will be appointed to hold the public hearings and me~tings on the proposed plan to receive input and review by the citizens. If both governing bodies decided the Charter should be amended because of public input received, it can be amended and presented to the voters in November 1995. In summary, Dr. Wicker reported under the approach being used by the Charlotte/Mecklenburg County effort, the massive study that proceeds a consolidated effort ~ill be performed after the voters decide on whether to consolidate the two governments. If approved, the elected officials of the two local governments will serve as the board during the t~ansitional phase and determine the organization and administrative structure of the consolidated government. Under this approach, time and money will not be wasted for performance of a massive study that could be turned down oy the voters. Dr. Wicker reported he would be glad to answer any questions. The following questions were presented: 1. Councilman Rivenbark inquired as to the time frame used by the Elizabeth city/Pasquotank and Charlotte/Mecklenburg efforts? l o o o i.:~y.t\""'~" 'lj1't"'t"Ri#;'''', '--'1',1 ""l '-',~~.", " '>-:.::,,;qJlt'.~ '1;;.--' MINUTES OF CONSOLIDATION WORK SESSION MARCH 20, 1995 PAGE 595 Dr. Wicker responded the Elizabeth city/Pasquotank consolidation effort was started approximately two years ago with most of the work being completed last year. At the present time, no charter has been drafted. The Charlotte/Mecklenburg effort has been in progress for a year and the six-member committee composed of elected officials presented its report in July 1994 with the Drafting Charter Committee beginning its work in October 1994 with a completion date of April 1995. The Staff Members of the city and County have performed the work in-house. - Mayor Pro-Tem Katherine Moore inquired as to the minimal amount of work that must be completed before the consolidation issue can be placed before the voters? 2. Dr. Wicker responded the current North Carolina statutes require a plan to be presented to the voters; however, the statutes do not define the size of a plan. It is the opinion of the Institute of Government that a five-page p+an could be presented to the public defining the size of the governing board; how the governing board would be elected; information about the tax rate and tax limits; and which functions would be county-wide or under an urban service district. The remaining details would be worked out once the charter was approved. . Mayor Betz reported the recent election changed the Durham County Board of Commissioners significantly and the new Board has backed away from the idea. In his opinion, the Board of County Commissioners and Wilmington city Council have a window of opportunity to revisit this matter with the upcoming m~nicipalelection in November. He noted the major study was already in place with the 1985 Consolidation Plan and Charter and suggested using these do6uments .to proceed with the consolidation process. e Councilman Rivenbark inquired as to whether the City and County were moving too quickly under the proposed October time frame? 3. Dr. Wicker commented on the need- to meet the concerns of the citizens and presented the following list of items that should be addressed by the Consolidation study Committee as soon as possible: a. b. c. d. re. e f. g. The form of government, whether a Council Manager, Mayor Councilor some other modification. The size of the governing body. A partisan or non-partisan government. Districts at-large or a combination. The title of the Chief Elected Official. The name of the consolidated government. Special Powers that should be granted to the elected officials that are not currently provided to the elected officials. h. If districts are established, should there be general standards other than population. 1. The length of the terms of office for both for the council and the chief elected official. j. Arrangements for law enforcement. ....IIIl MINUTES OF CONSOLIDATION WORK. SESSION, MARCH 20, 1995 " 'r:' PAGE 596 5. 6. 7. k. Arrangements for fire protection. I. Arrangements for Water and Sewer. m. Arrangements for civil Service. n. Status of the beach towns and their continuing operations, annexation, zoning and land use regulations. relationships to extra-territorial o o. Service Districts. p. Appointed relationship status of all appointed boards and commissions as well as independent bodies such as the public schools, the Housing Authority, the Airport Authority, and other agencies of this type. q. A transitional arrangement schedule should be in place. r. An explanation of the tax rate and tax limits. 4. Councilman Hicks inquired as to when the different ordinances should be combined? Dr. Wicker responded this would be determined at a later date. He explained that combining all city and County ordinances would take a great deal of time; however, with the proposed schedule, the charter would provide that all ordinances would remain in effect as adopted until changed by the new consolidated governing body. - ' Mayor Pro-Tern Katherine Moore inquired as to whether both governing bodies had to approve the recommendations by the committee composed of six elected officials under the Charlotte/Mecklenburg plan? o Dr. Wicker responded the committee of six made the recommendations and directed the Drafting Committee to prepare a charter based on those recommendations. The charter is subject to change by the governing bodies and subject to change by public reaction to the proposed charter during the public hearings. Councilman Rivenbark inquired as to whether the used by Charlotte/Mecklenburg was taken consolidated effort? approach being from another Dr. Wicker responded the Charlotte/Mecklenburg approach was the result of discussions by several persons, including himself, based upon the lack of public participation in previous consolidation attempts. Councilman Hicks commented on the right of the citizens in the unincorporated areas of the County to vote on consolidation, including the beach communities, and inquired as to whether these communities would be able to continue to vote on elected officials in the future even though the beach towns chose not to participate in the consolidated government? Dr. Wicker responded the beach communities would be able to vote for future elected officials. In the Charlotte/Mecklenburg plan, persons living 'in those areas were able to vote for the three at-large members of the new consolidated board and for the member from the district in which they reside. o , ' Councilman Hicks reported, in his opinion, this would create a problem. .~ ~~7 ~ "'- ~rw:-Hl'~; ~ ~,'~Y. MINUTES OF CONSOLIDATION WORK SESSION MARCH 20, 19~5 8. Councilman Rivenbark inquired as to whether the beach towns could become a part of the consolidated government at a later date? . PAGE 597 - Dr. Wicker ~eported the citizens of the town would have to agree and the Consolidated Board would have to agree to allow the town to become a part of the government. He noted it would be rare for a Consolidated Board to deny a town an opportunity to join the consolidated government at a later date. Councilman Rivenbark reported the beach towns should be informed upfront that a future Consolidated Board could prevent a town from becoming a part of the consolidated government. Mayor Betz explained that by allowing the voters of the beach communities to vote on future elected officials of the Consolidated Board, these citizens could support candidates that would allow the beach communities to join the consolidated government. 9. Councilman aicks reported on the beach communities not being able to annex after the formation of a consolidated government and asked Dr. Wicker if this was correct? Dr. Wicker reported that annexation by the beach communities would have to be addressed in the charter and enabling legislation. e commissioner Caster reported the 1985 Consolidation Plan recommended that Carolina and Kure Beach annex all the unincorporated property south of Snow's cut, which in his opinion, was an excellent idea. 10. Vice-Chairman Mathews expressed concern for the citizens not knowing exactly how the consolidated government would function and inquired as to how the Jacksonville/Duval County consolidation effort was approached? Dr. Wicker reported Jacksonville/Duval County had a completed charter before the referendum, which is the most common approach. He noted that most consolidation efforts have used the traditional approach and currently there are 40-45 consolidated city/county governments throughout the country. commissioner Sisson reported if the charter defines the key issues presented by Dr. Wicker, he feels the questions and concerns of the citizens will be addressed. e 11. Commissioner Barone reported the joint resolution adopted by the City council and the New Hanover County Board of Commissioners clearly stated that citizens should have as much information as possible about how the consolidated government will function including the costs involved with a new government before the October referendum. She asked Dr. Wicker if he felt cost figures could be established within the October deadline? Dr. Wicker reported, in his opinion, it would be very difficult to project an exact tax rate; however, cost figures could probably be prepared. Discussion was held on the number of committees that should be appointed and the number of elected officials that should serve on each committee. Chairman Greer presented a list of seven commi ttees. ...:ter a lengthy discussion on the number of committees needed, the "Services and utilities Committee" was eliminated from ~ ( MINUTES OF CONSOLIDATION WORK SESSION MARCH 20, 1995. '1 ' PAGE 598 the list and the following committees were established composed of the following elected officials: Administration and Personnel Committee Members: Chairman Robert G. Greer Commissioner william A. Caster Councilman J. D. Causey Mayor Pro-Tem Katherine Moore o Meeting Date: April 4, 1995 - 8:30 A.M. Place: 1st Floor Assembly Room County Administration Building 320 Chestnut street, Wilmington, N. C. Charter Committee Members: Chairman Robert G. Greer Commissioner Sandra Barone commissioner William A. Caster councilman J. D. Causey Councilmember Laura Padgett Councilman Charlie Rivenbark Meeting Date: April 3, 1995 - 5:00 P.M. Place: 1st Floor Assembly Room County Administration Building 320 Chestnut street, Wilmington, N. C. " Finance and Budqet Committee Members: Mayor Don Betz Councilmember Laura Padgett Chairman Robert G. Greer Commissioner William Caster o Meeting Date: March 27, 1995 - 6:00 P.M. Place: 1st Floor Assembly Room County Administration Building 320 Chestnut street, Wilmington, N. C. Planninq and Zoninq Committee Members: Commissioner William E. sisson, Jr. Vice-Chairman E. L. Mathews, Jr. Councilman Charlie Rivenbark Councilman Hamilton E. Hicks, Jr. Meeting Date: March 30, 1995 - 10:00 A.M. Place: 1st Floor Assembly Room County Administration Building 320 Chestnut Street, Wilmington, N. C. Public Safety committee o Members: Mayor Pro-Tem Katherine Moore Councilman Charlie Rivenbark commissioner William sisson Vice-Chairman E. L. Mathews, Jr. , . Meeting Date: April 3, 1995 - 8:30 A.M. Place: 1st Floor Conference Room city Hall, 102 North 3rd Street wilmington, N. C. .ft"'-<'l';''ft" """l1lI \'1 ",,~::~ rl "1 ,'f"':J ~, ~;t~i", :1, ~~ ., MINUTES OF CONSOLIDATION WORK,,'SESSION' MARCH 20, 1995 PAGE 599 utilities Committee Members: councilman Hamilton E. Hicks, Jr. Mayor Don Betz Commissioner Sandra Barone Vice-Chairman E. L. Mathews, Jr. e Meeting Date: March 31, 1995 - 8:30 A.M. Place: 1st Floor Conference Room City Hall, 102 North 3rd Street wilmington, N. C. Mayor Pro-Tern Katherine Moore inquired as to whether the recommendations prepared by the committees would be approved by each governing body, or voted on as one body? After discussion, it was agreed to vote'as one body "on the recommendations from the various committees. Councilman Padgett inquired as to weather the final chart~r would require a vote by each separate governing body? Chairman Greer expressed concern for each governing body having to approve the final charter, and he recommended acceptance of the charter as one group during the joint meetings with the voters making the final decision at the referendum in October. e Councilman Rivenbark, again, reiterated the importance of providing adequate information to the public and inquired as to whether any of the consolidated governments have delivered a savings to the taxpayers, or have the governments continued to grow? Dr. Wicker responded that he could not factually answer this questioni"however, when visiting places like Jacksonville, Florida, and Nashville, Tennessee, he had received glowing reports. commissioner Sisson reported both governing bodies desire to provide adequate information to the general public, and if necessary, the time frame can be changed. He explained the reason for moving forward with an October date was because of the proposed annexation by the City of Wilmington. Councilmember Laura Padgett reported time was a critical factor for the city of Wilmington. Mayor Pro-Tern Katherine Moore agreed and reported the City is moving forward with an annexation plan, and the schedule outlined must remain in place. - Discussion was held on providing adequate staff to assist with the committee meetings. Mayor Pro-Tern Katherine Moore recommended not requiring the City Clerk and County Clerk to record the meetings of the committees because of their busy schedules. After discussion, it was agreed to request the City Manager and County Manager to assign and provide the necessary staffing needed for the committee meetings. ' Dr. Wicker reported it would be helpful to hire a coordinator to oversee the consolidation process to be .sure materials are properly distributed, staff is available to perform the clerical work; information is available to the news media, and meeting rooms are properly set-up for the committee meetings. SCHEDULE OF WORK SESSIONS Discussion was 'held on scheduling future meetings and keeping the public informed on the consolidation process. Councilman . ..... /' ( ,MINUTES OF CONSOLIDATION WORK SESSION ~ MARCH 20, 1995 '. ..~, PAGE 160'0 ' Rivenbark recommended using the governmental access channel to keep the public informed. ,.' .. After further discussion, governing bodies to schedule the at the Madeline suite: it was the consensus of both following Work Sessions to be held April 10, 1995 May 1, 1995 May 22, 1995 8:00 A.M. 8:00 A.M. 8:00 A.M. ,,', .. o . . ADJOURNMENT Chairman Greer expressed appreciation to Dr. Wicker for his informative ,presentation and adjourned the meeting 2:.50 P.M. , .. Respectfully submitted, ~F~~ Clerk to the Board . ~" ., r ,~..;: o . c , ., ., ,k. .....,...,..... ,-. ~, , i' .lrt.... " .- "', 1.""" 0 '. '" ><r''':,J. , .U'_ 4't . t,.,... . " " .' ,I' , - ,I. i" l'\",~ r .~-~