By Marla Dalrymple
Contributing Writer

Bob Scott

The North Carolina League of Municipalities specially prepared a document for the mayor and council of Franklin in light of the proposed change. According to the document, the main difference between a mayor-council and a council- manager is the “broad power given to the manager to direct and supervise the day-to-day operations and implement policies of the governing body while having full authority to hire and fire.”

The League of Municipalities states that the powers and duties of an administrator are those “expressly granted by the governing body,” — in this case, the town Board of Aldermen. An administrator’s role is further determined by the town ordinance.

According to Franklin Town Administrator Mike Decker, with an administrator position, the power is within the board. “A town administrator carries out the duties the board assigns him or her to do,” said Decker, “the authority is in the board.”

Role of a Town Manager

A council-manager’s duties, however, are provided by state general statutes. Among other duties, a town manager must see that all laws are executed, prepare and submit the annual budget and capital program and make available an annual report on finances and administrative activities. According to the League of Municipalities document, it is a more businesslike form of government, analogous to corporate enterprise. A council- manager system of government is used in the majority of American cities with populations of more than 12,000. The population of Franklin is under 4,000.

The League article states that “because the manager is a full-time official who is aware of local needs, federal programs and what other governmental units are doing to solve their problems, councils rely heavily on his recommendations in budget matters.”

A manager must also concentrate on “anticipating the community’s future needs and developing plans to meet those needs.”

Unfortunately, the role of manager may not always be the positive influence the town deserves. According to James H. Svara, author of “Official Leadership in the City: Patterns of Conflict and Cooperation,” the manager may not only manipulate council, but also pursue a personal or professional agenda and take cues from outside influences. Svara explains that a manager will seek to promote the growth of a city because the personal worth of the manager increases with a larger professional staff, an increased tax base and greater influence.

Said Decker, “State statutes give specific authority to a town manager. The board determines policy for a manager to carry out. In a town manager position, the manager is in charge of personnel, and the board cannot infringe.”

Alderman Bob Scott said a manager position takes the day-to-day hiring and firing away from the board. It changes the whole complexity between the Board of Aldermen and employees.

“The authority to hire and fire subordinates is considered essential by most managers,” reads the League document, reporting that the average manager may spend up to 30 percent of their time on supervision and internal management. “Some charters prohibit the council or any of its members from attempting to influence the [town] manager in appointing or employing any person or persons,” reads the article. Some charters also prohibit a council member from influencing or directing the subordinate of the manager, either publicly or privately.

According to the League of Municipalities, “A manager expects council members to deal with administrative officers or employees through them and not bypass the manager by making requests or issuing instructions to subordinate officials.”

Another 30 percent of a manager’s time may be spent with council or council-related activities. The manager conducts the research and planning that allows the board to make timely political decisions. Council members expect clear and concise reports that outline advantages and disadvantages as well as alternative courses of action. The information council receives will have already been evaluated by the manager.

Managers must determine what studies to initiate, what policies to recommend and how to carry out established policy. Councils look to the manager for decisions, such as timing a bond election. While some councils await a manager’s recommendation on every agenda item, all expect the manager to keep them well informed on administrative concerns.

Often, managers must work with disagreeing parties and with the mayor in order to reach consensus in the board. Another 30 percent of a manager’s time is reputedly spent as a liaison or coordinator. According to the League of Municipalities, managers are “expected to see that all complaints are handled promptly and that policies adopted are explained as being both necessary and rational.”

The final 10 percent of a manager’s time is reserved for public relations, as many citizens call on a manager for information. “Experienced mayors and council members find it administratively desirable and politically advantageous to refer citizens with questions on administrative matter to the manager,” reads the North Carolina League of Municipalities report.

The Franklin Board of Aldermen adopted a resolution of intent to change the town form of government from a town administrator to a town manager at its Feb. 4 meeting. The resolution calls for a public hearing before the board can consider amending the town charter. The hearing is scheduled for Monday, Feb. 18 at 7 p.m.

Items that the League of Municipalities recommends a town consider before moving from an administrator to a manager include:

• Are town operations generally inefficient?

• Is more improved information needed by the board?

• Is the governing board lacking time or talent?

• Are things falling through the cracks?

• Is the board willing to leave the implementation of policy to the manager?

• Is the board willing to give up personnel authority?

Aldermen Respond

In November, during the recent election of aldermen, all candidates cited favoring the use of a town manager over a town administrator form of government. The burden upon board members will be lessened with the hiring of a manager who is meant to act as a source of support.

Board members seemed eager to adopt the resolution and work toward the change earlier this month.

“I don’t think things are happening inefficiently here, and it’s good to have opposite opinions on the board. Little things now occupy the time of the board, though,” Alderman Verlin Curtis said. “A manager would allow the board to concentrate on bigger issues at the meetings. A manager might improve things by making decisions on a daily basis instead of having to wait on the decision of the board. It would be a more streamlined approach to personnel management. Right now, we operate under heads of departments.”

Said Franklin Mayor Joe Collins, “The board will be able to concentrate on policy and longterm growth with the hiring of a manager. Moving to a manager isn’t just about population. It isn’t fair to the aldermen to attempt to run a town with the dollar size, employees and activity of Franklin. We can expect increased efficiency from entrusting this to someone with the proper training. It will be a change for all of us.” According to Decker, the annual budget of Franklin is between six and seven million dollars.

As the manager serves as liaison with the mayor, in most situations the manager is closer to the mayor than to board members. According to the League of Municipalities, “frequent personal communication between the mayor and the manager can help to secure agreement on goals and policies and to reduce misunderstanding.”

Robert Paul Boynton and Deil S. Wright, authors of “Mayor-Manager Relationships in Large Council-Manager Cities: A Reinterpretation,” term the mayor-manager relationship as a “collaborative or team relationship.”

The only vote in opposition of the resolution, Alderman Bob Scott voiced his concern that he would no longer support this change unless he receives “confirmation that the position will be advertised” so that qualified people may have the opportunity to apply. “For some reason,” said Scott, “the board will not commit to advertising the town manager position. I think they have someone in mind,” he added.

“It’s premature to advertise. We have not even voted to do this yet,” Collins said. “The decision to go to a manager should not be based upon who will be considered for the position.”

“My concern,” said Curtis, “is who gets the job. We need somebody who would be more effective than the system we have now. I wouldn’t want to be in a hurry to see some of our personnel go.”

While hired managers have complete authority in personnel matters and administrators must share hiring and firing power with the elected governing body, the Board of Aldermen do have a voice in the hiring of the manager.

According to Shelby Sebens in “Candidate Pool for Managers Drying Up,” there is presently stiff competition for manager positions between towns in North Carolina; at least 18 towns are currently seeking managers. Sebens reports that there has been a “growing negative attitude toward government” and that “with more money to be made at state and federal levels or with nonprofits, a career that requires 24/7 availability can be a hard sell.”

According to Sebens, roughly 30 percent of city managers in North Carolina will be eligible for retirement in five years. It is especially difficult, said Sebens, for small, rural towns to attract younger workers.

What’s next?

In order to make the change in government, the town charter must be amended. As the Town of Franklin has already done, a council must first adopt a resolution of intent that describes the proposed charter amendment and at the same time schedule a public hearing to be held within 45 days.

According to General Statute 160A- 103, an actual vote of the people is not required in this change of government. However, the move may have to be supported by a referendum should enough voters deem this necessary.

Citizens can react to the resolution by forming a petition signed by 10 percent of registered voters (approximately 278 signatures) and requesting a referendum vote.

The public hearing, at which time people are free to give their comments to the board, will take place at 7 p.m. on Monday, Feb. 18, at Franklin Town Hall.