HomeMy WebLinkAbout2015_03_17 CC PKTCity Council
City of Brookings
Meeting Agenda
Brookings City Council
Brookings City & County
Government Center
520 3rd St., Suite 230
Brookings, SD 57006
Phone: (605) 692-6281
Fax: (605) 692-6907
Community Room5:00 PMTuesday, March 17, 2015
Study Session
The City of Brookings is committed to providing a high quality of life for its citizens and fostering a diverse
economic base through innovative thinking, strategic planning, and proactive, fiscally responsible municipal
management.
5:00 PM STUDY SESSION
1. Call to Order / Pledge of Allegiance.
2. Record of Council Attendance.
3.ID 2015-0179 Discussion and possible action on the Master Drainage Plan Priority
List.
2015 Prioritized ListAttachments:
- Council Questions / Discussion
- Item to return to Council for consideration or adoption at later date
- Estimated time - 30 minutes
4.ID 2015-0168 Annual Governance & Ends Policy Review.
Gov & Ends Policy 2014_04_15Attachments:
- Council Questions / Discussion
- Item to return to Council for consideration or adoption at later date
- Estimated time - 30 minutes
5.ID 2015-0176 City Council Ex-Officio Reports.
6.ID 2015-0177 Identify topics for future study session (motion required).
7. Adjourn.
Brookings City Council:
Tim Reed, Mayor, Keith Corbett, Deputy Mayor & Council Member
Council Members Tom Bezdichek, Jael Thorpe, John Kubal, Dan Hansen, Ope Niemeyer
Page 1 City of Brookings
March 17, 2015City Council Meeting Agenda
Council Staff:
Jeffrey W. Weldon, City Manager Steven Britzman, City Attorney Shari Thornes, City Clerk
View the City Council Meeting Live on the City Government Access Channel 9.
Rebroadcast Schedule: Wednesday 1:00pm/Thursday 7:00pm/Friday 9:00pm/Saturday 1:00pm
The complete City Council agenda packet is available on the city website: www.cityofbrookings.org
Assisted Listening Systems (ALS) are available upon request. Please contact Shari Thornes, Brookings City
Clerk, at (605)692-6281 or sthornes@cityofbrookings.org. If you require additional assistance, alternative
formats, and/or accessible locations consistent with the Americans with Disabilities Act, please contact Shari
Thornes, City ADA Coordinator, at (605)692-6281 at least three working days prior to the meeting.
Engage Brookings is an online tool where citizens can engage, communicate and collaborate with community
decision makers and other residents. Where these ideas overlap is the future of Brookings.
www.engagebrookings.org
Page 2 City of Brookings
City of Brookings
Staff Report
Brookings City & County
Government Center, 520
Third Street
Brookings, SD 57006
(605) 692-6281 phone
(605) 692-6907 fax
File #:ID 2015-0179,Version:1
Discussion and possible action on the Master Drainage Plan Priority List.
Summary:
The City Engineering staff will present the updated Master Drainage Plan Priority List and facilitate
discussion.
Background:
The City of Brookings adopted the City of Brookings Master Drainage Plan (MDP) in 2008. The
Master Drainage Plan included 12 specific study areas, 34 subwatershed areas, hydrological SWMM
model data, and cost estimates for the projects. The MDP Plan serves two purposes:
1.Identifying improvements for existing drainage conditions throughout the City of Brookings and
future growth areas; and
2.Providing supplemental SWMM model data which may be used by consultants for drainage
analysis of existing and future developments.
The City Council held discussions and gathered public input regarding the 12 specific study areas.
Each area was analyzed for its adequacy to accommodate both a 5 year and 100 year storm event.
Improvements for each of the 12 areas were recommended as well as an approximate cost of each
improvement. After the City Council adopted the MDP, discussions were held to prioritize the order
of the projects. Input was gathered local from residents, developers, and consultants and a “Project
Ranking System” was adopted by the City Council to use as a tool to prioritize and rank the drainage
projects. The first prioritized list of projects was adopted in 2009. Since many of the drainage
improvement projects are naturally interrelated, it was the intent to continue to reprioritize the list as
projects are completed. The first project was completed in 2009 at Garden Square on 8 th Street.
Due to the high costs of certain projects, it was decided that if a project could feasibly be broken up
and “phased” into smaller projects, this would provide the most amount of benefit to the whole City in
a shorter timeframe. These ‘phased’ projects were reintroduced into the prioritization formula as
separate projects. By doing so, it allowed a wider coverage, versus focusing drainage funds on one
specific area at a time. The projects completed to date are:
·Garden Square Drainage Improvement
·Southland Lane/17th Avenue Phase 1 (detention pond)
·Pheasant Nest Phase 1 (detention pond)
·Camelot Drainage Improvement Phase 1 (piping in Christine Ave)
·20th Street South and Medary Avenue Phase 1 (North Nelson Detention Pond)
·20th Street South and Medary Avenue Phase 2 (additional pipe under 20th St S.)
·Division Avenue Phase 1 (2nd Street South detention pond)
·6th Street Drainage Improvement Corridor Phase 1 (Main Ave to Western Ave)
The 12 projects originally identified in the MDP were selected based on citizen input prior to 2008.
City of Brookings Printed on 3/11/2015Page 1 of 3
powered by Legistar™
File #:ID 2015-0179,Version:1
This was never intended to be a limit; but rather, new projects can be added to the list as new
problem areas are discovered. In 2012, the City Council approved the latest prioritization list. This
list consisted of many of the previous projects broken up into phases, with the addition of a new
detention pond project in the SDSU watershed. The completed projects were removed from the list.
Neighborhood Projects
In addition to the Master Drainage Plan projects, the City has also worked on smaller drainage
improvement projects known as “Neighborhood Projects”. These projects focused on areas of
concern that were smaller in scope than the intent of the MDP, and they are generally selected based
on citizen input and observations. The following neighborhood projects have been completed or are
under construction:
·15th Street South, from 17th Avenue South to the east: Storm sewer inlets and pipe
·Copper Mountain Circle: Storm sewer inlet and pipe
·Rotary Park Drainage Improvement Project: detention pond, grading & landscaping
·Minnesota Drive and 22nd Avenue: Storm sewer inlet and pipe
·Minnesota Drive and State Street area: Storm sewer inlets and pipe
·Derdall Drive, east of 17th Avenue South: Storm sewer inlets, pipe and valley gutter to the
tracks
Storm Drainage Fund Cash Flow
The Storm Drainage Fund has paid for all of the drainage projects. The neighborhood and smaller
projects have been paid out of the fund balance. The larger projects have received SRF loans
through DENR which have been at 3% interest over 20 years. The current annual loan payments are
approximately $100,760 in principal and $94,300 in interest. The advantage of constructing only one
large project per year is we can manage the project payments and budgeting. In addition, DENR
requires a detailed cash flow analysis with reserve funds for SRF loan applications, which is easier to
predict when the large projects are spread out.
Project Ranking System:
The ranking of the projects is based on a series of different criteria which are applied to a formula.
The criteria are as follows:
·Potential Environmental Impact
·Number of Buildings Affected
·Occupant Evacuation
·Property Damage
·Traffic Impact
·Location in Basin
·Cost Versus Budget
·Reduced Maintenance Issues
·Infrastructure Age
·Citizen Safety
Each criterion has a certain “weighting factor” assigned to it related to the importance of the specific
criterion. For instance, “Citizen Safety” has a very high weight factor. These weighting factors were
approved by the Council in 2009. In order to maintain consistency each time the projects are
reprioritized, these weight factors never change. For each project on the list, a rating of 0 to 5 is
City of Brookings Printed on 3/11/2015Page 2 of 3
powered by Legistar™
File #:ID 2015-0179,Version:1
assigned in each category above. The rating is multiplied by the weight factor. Then the weighted
ratings are summed up to produce a total score for each project.
It was the City’s intent to reprioritize the project list approximately every three years because, in
addition to new projects, the completion of other projects can affect the score of the remaining
projects. For example, construction of a detention pond in one part of a drainage basin could reduce
peak storm flows into another drainage basin; thereby reducing the urgency of storm sewer
improvements downstream. City Engineering staff has examined each of the completed projects and
their effects in their respective watersheds.
The Latest Prioritization List:
The 2015 MDP project list includes all previously uncompleted projects; plus two new projects. The
new projects are:
1.5th Avenue Downtown Drainage Improvement Project - this project diverts part of the
watershed, which is tributary to downtown, into the 6th Street storm sewer system via 5th
Avenue (versus Main Ave). The City partnered with the DOT in 2013 to install larger storm
sewer in 6th Street which is designed to accommodate this project. This is a 2 phase project,
however overall completion is not possible until the DOT reconstructs 6th Street from Main Ave
to Medary Ave. Therefore, it is time dependent.
2.State Avenue Drainage Improvement project - this is an extension of the SDSU watershed,
which includes the Walmart area, Village Square, Faculty Drive, Fraternity Row, State Avenue,
and Jefferson Avenue. It will be designed to relieve some of the flooding in the Jefferson,
State, and 20th Avenue areas, as well as Faculty Drive. The project involves installation of
new storm sewer in many areas, as well as upsizing of existing storm sewer. This project was
broken up into 5 phases.
The current project ranking list is attached. Jackie Lanning, City Engineer and Thad Drietz, Assistant
City Engineer will be available to facilitate the discussion regarding the updated ranking chart
development.
Fiscal Impact:
The projects will be budgeted using Storm Drainage Funds.
Recommendation:
Recommend approval of the priority list.
Attachments:
Master Drainage Plan Priority List
City of Brookings Printed on 3/11/2015Page 3 of 3
powered by Legistar™
Ranking Results
5yr Storm 100yr Storm
Rank Project Score Cost Cost
1 5th Ave Drainage Improvement Ph-1 (4th St to
6th St)22.90 $900,000 n/a
2 LeFevre Drive 22.50 $240,000 $330,000
3 6th Ave Viaduct Flood Warning System (inlet
reconstruction)20.90 $120,000 n/a
4 State Ave Watershed Improvement Ph-2 (8th St
& 20th Ave piping)20.70 $570,000 $870,000
5 State Ave Watershed Improvement Ph-1
(Jefferson piping)20.10 $750,000 n/a
6 Camelot Ph-2 (Parkway Blvd)19.40 $1,100,000 $2,600,000
7 State Ave Watershed Improvement Ph-3 (Faculty
Dr piping)18.50 $813,000 n/a
8 Medary Ave & Intersections of 1st St and 2nd St -
Watershed Improvement 18.20 $8,000,000 n/a
9 State Ave Watershed Improvement Ph-4 (Village
Square-Brickwood Plaza)17.70 $3,880,000 $5,510,000
10 Division Ave Ph-2 (Western Ave detention,
channel improvements)17.60 n/a $850,000
11 17th Ave S and Pebble Beach Dr (downstream)17.50 $480,000 $1,200,000
12 Camelot Ph-3 (Hammond & Horner)17.40 completed w/
Ph-1 $3,100,000
13 Medary Avenue & 20th Street South (Phase 3 -
boxes, detention, county)16.30 completed w/
Ph-2 $7,000,000
14
17th Ave S and Sawgrass Dr (Southland Ph-2
piping south)16.00
completed w/
Ph-1 $1,400,000
15 State Ave Watershed Improvement Ph-5 (Olwein
piping)15.80 $160,000 n/a
16 SDSU Regional Detention Pond 15.30 n/a $750,000
17 West 20th Street South (with street project)14.60 $2,500,000 $2,900,000
18 5th Ave Drainage Improvement Ph-2 (Viaduct to
4th St)14.30 $1,400,000 n/a
19 Southland Lane & 12th Street South (Ph-3 piping
north)13.90 completed w/
Ph-1 $1,250,000
20 15th St S & 7th Ave (Pheasants Nest Ph-2
ditch/piping w/street project)12.60 $2,243,431 $4,962,629
City of Brookings
Staff Report
Brookings City & County
Government Center, 520
Third Street
Brookings, SD 57006
(605) 692-6281 phone
(605) 692-6907 fax
File #:ID 2015-0168,Version:1
Annual Governance & Ends Policy Review.
Summary:
Annual review mandated by G&E Policy 1.7.
City of Brookings
Policy 1, Governance Process
Defining the purpose of the City Council, City Manager, and all City Employees:
1.7 Governance Process, Review and Update of Policies
The Council will review all policies (including Governance, Council-Staff Linkage, Ends, and Executive Limitations) during
the first quarter of each year, although the Council may also review and update any policy at any time deemed prudent
and necessary by the Council. The Council expects immediate adjustment by the City Manager to any policy change
instituted by the Council.
Attachments:
Governance & Ends Policy
City of Brookings Printed on 3/11/2015Page 1 of 1
powered by Legistar™
City of Brookings
Governance & Ends Policies
Adopted: December 11, 2000
Amended: April 15, 2014
Amended: 04/15/2014 1
City of Brookings
Governance and Ends Policies
This document, established by the Brookings City Council, defines, protects, and prioritizes the
workings of City Government. It is the ongoing hope of the Brookings City Council to lead the
Citizens of Brookings in an ethical and prudent manner, in the best interests of the citizens,
looking to the future rather than the past, as provided in the Mission Statement:
The City of Brookings is committed to providing a high quality of life for its
citizens, and fostering a diverse economic base, through innovative thinking,
strategic planning, and proactive, fiscally responsible municipal management.
Table of Contents:
Governance Policies
Defining the Purpose of the City Council, City Manager, and all City Employees
1. Governance Process
1.1 Ownership of the Council
1.2 Council Role
1.3 Council Style and Vision
1.4 Council Action
1.5 Council Code of Conduct
1.6 Citizen Advisory Boards
1.7 Review and Update of Policies
2. Council-Staff Linkage
2.1 City Manager Role
2.2 Delegation to the City Manager
2.3 Monitoring Executive Performance
Ends Policies
Establishing what is to be done, for whom, at what cost, and Executive Limitations to define unacceptable means
1. Financial Stability
2. Municipal Services
3. Business Models
4. Economic Development
5. Employee Training and Development
6. Intergovernmental Cooperation and Relations
Appendix A: City Council Code of Ethics
Appendix B: Volunteer Code of Ethics
Amended: 04/15/2014 2
City of Brookings
Policy 1, Governance Process
Defining the purpose of the City Council, City Manager, and all City Employees:
1.1 Governance Process, Ownership of the Council: Key Performance Area
Governance Process is considered a key performance area by the Brookings City Council, and
appears in the Mission Statement as “municipal management.”
The Brookings City Council shall answer to, and take into consideration the best interests of, all
residents of the City of Brookings, both vocal and silent citizens, with respect paid to all residents,
regardless of their economic status. Since the City is “owned” by the Citizens, the Council’s
thinking shall be influenced by this ownership. Secondarily, the City Council shall consider the
needs of any person who regularly shops in, uses facilities of, or accesses services from the City of
Brookings.
1. The Council represents the Citizens. Therefore, it shall educate itself regarding the values
held by the persons it represents and shall act always under the influence of those values.
The Council’s education may be facilitated by (a) formal and informal Citizen opinions; (b)
formal and informal focus groups to explore specific issues; (c) considering input by citizen
volunteers who participate on advisory boards, committees and commissions; (d) monitoring
the demand and utilization of services; (e) discussions with representatives from other
governmental and educational bodies; and (f) reviewing reports and citizen responses in the
media.
2. The Council shall report periodically to the Citizens on its stewardship. At least once per
year, the Mayor shall give an accounting of the City’s financial resources and the extent to
which these funds have been translated into services, in the State of the City message.
1.2 Governance Process, Council Role
The role of the Council, on behalf of the Citizens of Brookings, is to assure that the City of
Brookings (a) accomplishes what it should, and (b) avoids unacceptable activities and conditions.
1. The Council will engage in structured contact with citizens of Brookings to represent their
diversity.
2. The Council will define in Ends policies what is to be accomplished in terms of benefits,
recipients, and their relative priorities. It will define in Executive Limitations policies those
activities and conditions it considers unacceptable. The Council will delegate performance
on these matters to a City Manager.
3. The Council will carry out its job with discipline, emphasizing strategic rather than
short-term issues, policy rather than single events, and group rather than individual
decisions.
4. Whenever possible, the Council will avoid the use of committees that separate the wholeness
of the Council. When further research on a topic is needed, the Council may appoint one
Amended: 04/15/2014 3
member to investigate. However, the Council should avoid subgroups of Council members,
since subgroups tend to develop a life separate from the Council as a whole.
5. The annual cycle of the Council will conclude with a review of Ends policies, in April, just
prior to City Manager construction of a new annual plan and budget.
6. The Council shall honor all demands and restrictions outlined in the Brookings City Charter.
1.3 Governing Process, Council Style & Vision
The Council will govern with an emphasis on (a) outward vision rather than an internal
preoccupation, (b) strategic leadership rather than administrative detail, (c) clear distinction of
Council and City Manager roles, (d) collective rather than individual decisions, (e) future rather than
past or present, and (f) proactively rather than reactivity. The Council will:
1. Deliberate in many voices, but govern in one.
2. Cultivate a sense of excellence. The Council will be responsible for excellence in governing.
The Council will be an initiator of policy, with the advice and counsel of the City Manager.
3. Cultivate a sense of group responsibility. The Council will use the expertise of individual
members to enhance the ability of the Council as a body. However, it is not the intention of
the Council to defer the group’s judgment to any one individual.
4. Direct, control and inspire the organization through the careful establishment of broad
written policies reflecting the Council's values and perspectives. The Council's major policy
focus will be on the intended long-term impacts outside the operating organization, not on
the administrative or programmatic means of attaining those effects.
5. Enforce upon itself whatever discipline is needed to govern with excellence. Discipline will
apply to matters such as attendance, preparation for meetings, policymaking principles,
respect of roles, and ensuring the continuity of governance capability. Continual Council
development will include orientation of new members in the Council's governance process
and periodic Council discussion of process improvement. The Council will allow no officer,
individual or committee of the Council to hinder or be an excuse for not fulfilling its
commitments. In compliance with this policy, in May 2002 the City Council adopted a City
Council Code of Ethics. It is attached to this document as Appendix A.
6. Monitor and discuss the Council's process and performance at each meeting. Self-
monitoring will include comparison of Council activity and discipline to policies in the Ends,
Governance Process and Council-Staff Linkage categories.
1.4 Governance Process, Council Action
The job of the City Council of Brookings is to achieve the mission in a prudent and ethical way.
The job of the Council is to make certain contributions to the total, which are unique to its public
trusteeship role and necessary for proper governance and management of the City. Consequently,
the "products" of the Council itself shall be:
A. Connection between the Council and its "ownership," the Citizens.
Amended: 04/15/2014 4
B. Written governing policies that concern:
-Governance Process (how the Council carries out its task, and the passing of power
and measurement of its use) and
-Ends Policies (what benefits, for whom, at what cost), and Executive Limitations
(prudent and ethical limitations binding upon the staff);
C. The assurance of staff performance (through guidance and evaluation of the City Manager).
1.5 Governance Process, Council Code of Conduct
Since Council members have no authority as individuals, members shall refrain from efforts that
may lead to situations in which a Councilperson might have occasion to overstep their bounds.
Although not every situation can be outlined, some common areas of concern include:
1. Staff being intimidated or manipulated by a Councilperson’s individual comments or actions.
Council members must bear in mind that at times, staff may ask for an individual opinion
from a Council member, and while the Council member may sincerely respond only as an
individual, staff will often place undue emphasis on the opinion, due to the Council
member’s status.
2. Staff being polarized by dissention. Although all Council members are obligated to register
differences of opinion on Council issues at the Council level as passionately as desired,
individual members must not direct their differences of opinion to staff in a manner which
creates dissension or polarization in the organization.
3. Since no one has the right to speak on behalf of the entire Council, individual Council
members are encouraged to conduct themselves in a professional manner in all
communications.
4. Members will not individually render binding judgments of the City Manager or staff
performance apart from compliance with Council policies as monitored by the Council as a
body.
1.6 Governance Process, Citizen Advisory Boards
The Council values the expression of citizen viewpoints on topics of concern to the Council.
Therefore, the Council will continue the tradition of seeking input from volunteer citizen advisory
boards and committees, although final responsibility for decisions, and the implementation that
follows, rests entirely with the Council. The Council reminds staff that the ideal purpose of citizen
involvement is to seek objective opinions from a diverse range of citizens.
Guideline A:
The Council will make every effort to offer overall direction and guidelines to citizen volunteers,
through the use of Council Ends Policy statements, and by reviewing the mission and need for each
citizen advisory board and committee on an annual basis. During the annual review:
1. The Council will determine if the need for a citizen advisory board or committee justifies
continuation of the board or committee. If continuation is justified, proceed to #2.
Amended: 04/15/2014 5
2. The Council will make an effort to determine the most effective use of citizen volunteers,
with a primary decision being the length of service for each board and committee. The
Council believes citizen input will be more likely objective and updated if the advisory board
or committee is kept in an ad hoc (short-term) format. However, the Council recognizes
that some complex issues require citizen involvement for a longer period in order to be
effective.
3. Unless otherwise specified by the Council, the City Manager will coordinate the activities and
reporting functions of all citizen advisory boards and committees.
4. The City Manager will base his guidance of citizen advisory boards and committees on Ends
Policies established by the Council.
5. The Mayor, with advice and consent of the Council, will make all appointments to citizen
advisory boards and committees.
6. Upon recommendation of the City Manager, the Council may approve the creation of ad
hoc committees to assist the City Manager or his staff.
7. In compliance with this policy, in May 2002 the City Council adopted a Volunteer Code of
Ethics. It is attached to this document as Appendix B.
Guideline B:
The Council directs all staff to review relevant Ends Policies with citizens upon their appointment to
an advisory board or committee. The Council asks staff to be as objective as possible in educating
and presenting options to citizens, since the purpose of advisory boards and committees is not only
to hear from citizens, but to increase citizen involvement, loyalty, and creativity toward their City.
1. The Council asks the City Manager to create and regularly update an orientation packet for
each new volunteer that includes relevant Ends Policies.
2. The Council asks staff to review this orientation packet with each potential volunteer, prior
to their appointment, emphasizing this very policy (Policy 1.6), and asking for a citizen
signature on the line that indicates understanding of this policy.
3. Staff will provide regular summaries of citizen committee work to the Council.
1.7 Governance Process, Review and Update of Policies
The Council will review all policies (including Governance, Council-Staff Linkage, Ends, and
Executive Limitations) during the first quarter of each year, although the Council may also review
and update any policy at any time deemed prudent and necessary by the Council. The Council
expects immediate adjustment by the City Manager to any policy change instituted by the Council.
Amended: 04/15/2014 6
City of Brookings
Policy 2, Council-Staff Linkage
Defining the purpose of the City Council, City Manager, and all City Employees.
2.1 Council-Staff Linkage, City Manager Role
As the Council's single official link to the operating City government, the City Manager's
performance will be considered to be synonymous with organizational performance as a total.
Consequently, the City Manager's job contributions can be stated as performance in these, but not
limited to:
1.City government accomplishment of the provisions of Council policies within the Policy
Governance Model, especially Ends Policies, but also including Governance Process, and
Council-Staff Linkage policies.
2.City government operation within the boundaries of prudence and ethics established in
Council policies on Executive Limitations.
2.2 Council-Staff Linkage, Delegation to the City Manager
All Council authority delegated to staff is delegated through the City Manager, so that all authority
and accountability of staff -- as far as the Council is concerned -- is considered to be the authority
and accountability of the City Manager.
1. The Council will direct the City Manager to achieve certain results, for the citizens, at a
certain cost, through the establishment of Ends policies. The Council will limit the latitude
the City Manager may exercise in practices, methods, conduct, and other "means" through
the establishment of Executive Limitations within those policies.
2. As long as the City Manager uses any reasonable interpretation of the Council's Ends and
Executive Limitations policies, the City Manager is authorized to establish all further
policies, make all decisions, take all actions, establish all practices, and develop all activities.
3. The Council may change its Ends and Executive Limitations policies, thereby shifting the
boundary between Council and City Manager domains. By doing so, the Council changes
the latitude given to the City Manager. Council members will respect and support the City
Manager’s decisions and choices, whenever made pursuant to existing Council Policies.
4. Only decisions of the Council acting as a body are binding upon the City Manager.
5. In the case of Council members, citizen advisory committees, or others, requesting
information or assistance without Council authorization, the City Manager may turn to the
Council for guidance, especially when such requests will require an inordinate amount of
staff time or funds, or are disruptive to the efficient operation of the City.
2.3 Council-Staff Linkage, Monitoring Executive Performance.
Monitoring executive performance is synonymous with monitoring organizational performance
against Council policies on Ends and on Executive Limitations. Any evaluation of the City
Manager’s performance, formal or informal, shall be measured against these expectations. This
Amended: 04/15/2014 7
policy places the burden of measuring performance on two primary considerations: well-defined
Ends and Executive Limitation policies, and reasonably accurate measurements. Without well-
defined policies and reasonably accurate performance metrics, the effectiveness of monitoring
performance is compromised.
1. The purpose of monitoring is simply to determine the degree to which Council policies are
being fulfilled. Information which does not do this will not be considered monitoring.
Monitoring will be as automatic as possible, using a minimum of Council time so that
meetings can be used to create the future rather than to review the past.
2. A given policy may be monitored in one or more of three ways:
a. Internal report: Disclosure of compliance information to the Council from the City
Manager.
b. External report: Discovery of compliance information by an objective party who is
selected by and reports directly to the Council. Such reports must assess executive
performance only against policies of the Council, not those of the external party
unless the Council has previously indicated that party's opinion to be the standard.
c. Direct Council inspection: Discovery of compliance information by a Council
member, or the Council as a whole. This is a Council inspection of documents,
activities or circumstances directed by the Council which allows a "prudent person"
test of policy compliance.
3. The Council recognizes that, at times, non-compliance with a policy may be necessary and
prudent in the short term. However, in order to monitor the performance of the City, and
to modify policies that need improvement, the Council must be constantly aware of
compliance issues. The Council expects monitoring and reporting compliance or non-
compliance to be the City Manager’s highest priority. To promote regular monitoring, the
Council asks the City Manager to follow these guidelines:
a. All Ends and Executive Limitations statements will be monitored and compliance
will be formally announced by the City Manager to the Council on a quarterly basis.
b. Any non-compliance will be reported immediately, at the next Council meeting, if
not before, and non-compliance will then be monitored on a monthly basis, until
compliance is reestablished, or the policy is changed.
4. At a minimum annually, the Council will institute a formal evaluation of the City Manager.
This evaluation will consider only monitoring data as defined here, as it has appeared over
the intervening year.
Amended: 04/15/2014 8
City of Brookings
Ends Policy 1, Financial Stability
Establishing what is to be done, for whom, at what cost, and
Executive Limitations to define unacceptable means
Financial Stability: Key Performance Area
Financial stability is considered a key performance area by the Brookings City Council, and appears
in the Mission Statement as “fiscally responsible municipal management.”
One of the duties of the City Manager is the development of a process that keeps the Council aware
of upcoming budgetary needs and requests, so that the Council may aid in the creation of ongoing
budget priorities. Good stewardship requires the Council to discern what is in the best interests of
the citizens, and budget accordingly.
Therefore, budgeting for any fiscal period or the remaining part of any fiscal period shall not deviate
materially from Council Policies as established in key performance areas, or other City Council
policies. The City Manager is therefore prohibited from budgeting or spending that:
1. Lowers the City’s bond rating;
2. Lowers the pledged revenues collected by the City in the last preceding fiscal years as
determined by the City to not less than 1.75 times the annual principal and interest
requirements on the outstanding bonds with a goal to maintain a 2 times coverage.
3. Violates Federal, State, or Municipal laws; ethical standards; and generally accepted
accounting and budgeting principles.
In addition, the City Manager may not bypass Council judgment to allow budgeting that:
1. Allows expenditures to exceed revenues, including the contingency as an expenditure;
2. Increases the property tax rate;
3. Includes capital expenditures that have not been previously approved by the Council; in a
Capital Improvement Plan or other council action;
4. Causes the City to incur new debt;
5. Increases operating expenses (meaning personnel and capital excluded) in any department
beyond inflation using at least a rolling six month average of the Midwest Consumer Price
Index;
6. Provides for employee compensation and benefits that exceed market standards;
Guideline A:
With respect to budget preparations, the City Manager shall stay within the confines of what
constitutes a conservative perspective, as it is the Council’s intention to:
a. Make conservative revenue projections using the previous five-year average as a benchmark,
with an emphasis on the previous year actual and current year actual. Projections using
current data should not be made with less than 6 months rolling actual data.
b. Provide valuable citizen services;
c. Lighten the debt load of the City;
d. If a property tax rate is justified only because of state limitations, a special reserve will be
created.
e. The City has established the policy that financial, service and program performance
measures be developed and used as an important component of decision making and
Amended: 04/15/2014 9
incorporated into governmental budgeting. The City encourages all departments to utilize
performance measures. At a minimum, performance measures should be used to report on
the outputs of each program and should be related to the objectives of each department.
Performance measures should:
a. Be based on program objectives that tie to the City Council’s goals and program
mission or purpose;
b. Measure program results or accomplishments;
c. Provide for comparisons over time;
d. Measure efficiency and effectiveness;
e. Be reliable, verifiable and understandable;
f. Be reported internally and externally;
g. Be monitored and used in decision-making processes; and
h. Be limited to a number and degree of complexity that can provide an efficient and
meaningful way to assess the effectiveness and efficiency of key programs.
Guideline B:
In addition, as the City Manager assumes his duties, the Council requests that the City Manager keep
information flowing to the Council, especially concerning plans relating to consolidation or
expansion of any City departments. Therefore, the City Manager may not consolidate or expand any
City Department without first informing the Council of the intended action.
Guideline C:
The City of Brookings establishes and will maintain reservations of Fund Balance, as defined herein,
in accordance with Governmental Accounting and Financial Standards Board Statement No. 54,
Fund Balance Reporting and Governmental Fund Type Definitions. This Policy shall only apply to
the cities governmental funds. The fund balance information is used to identify the available
resources to repay long-term debt, reduce property taxes, add new governmental programs, expand
existing ones, or enhance the financial position of the City, in accordance with policies established
by the City Council. Fund Balance shall consist of five categories: non-spendable, restricted,
committed, assigned and unassigned amounts.
a. Non-spendable Fund Balance: Amounts that are not in a spendable form (such as
inventory) or are required to be maintained intact.
b. Restricted Fund Balance: Amounts that can be spent only for the specific purposes
stipulated by external resource providers, or enabling legislation. Restrictions may be
changed or lifted only with the consent of the resource providers.
c. Committed Fund Balance: Amounts that can be used only for the specific purposes
determined by a formal action of the City Council. Commitments may be changed or lifted
only the City Council taking the same formal action that imposed the constraint originally.
d. Assigned Fund Balance: Amounts the City intends to use for a specific purpose.
e. Unassigned Fund Balance: The residual classification for the general fund and includes
amounts that not contained in the other classifications. Unassigned amounts are the portion
of fund balance which is not obligated or specifically designated and is available for any
purpose.
The City Manager is directed to use first the restricted resources, prior to the use of the unrestricted
resources, when an expense is incurred for purposes for which both restricted and unrestricted
funds are available. When expenditures are incurred for purposes for which amounts in any of the
Amended: 04/15/2014 10
unrestricted fund balance classifications can be used, committed amounts should be reduced first,
followed by assigned amounts and the unassigned amounts.
City Council hereby directs the City Manager to establishes and maintain the following committed
fund balance:
a. Fiscal Stabilization Arrangement: A minimum of 10 percent of the General Fund beginning
adopted appropriations (expenditure budget) should be incrementally established and
maintained for use in meeting unanticipated needs and/or emergencies.
I.Use of Stabilization Fund Balance: The amount shall be used only after all efforts
have been exhausted to fund unanticipated needs and/or emergencies, such as an
urgent event that affects the safety of the Citizens of the City of Brookings, City of
Brookings Employees, and Brookings Students. The urgent event could be a
blizzard, tornado, fire, flood, terrorist attack, bombing, explosions, train derailments,
straight-line winds/severe thunderstorm, hazardous materials incident, water
contamination, failure of electrical grid, mass casualty/fatality or health epidemic.
Once the City Manager or his/her designee has determined that it is necessary to
draw down fund balance, written communication should be provided by the City
Manager to the City Council, explaining the nature of the unanticipated need and/or
emergency and requires approval by a two-thirds vote of the Council. The
Stabilization Fund Balance may not be used for more than two consecutive years.
II.Replenishment of Stabilization Fund Balance: If the reserves are drawn down below
the minimum required level of 10 percent, then a budgetary plan shall be
implemented by the City Manager to return the reserve to a minimum 10 percent
level in no more than a 5-year period. The City Manager will report the progress of
the replenishment to the Council in the annual budget.
III.Funding of Stabilization Fund Balance: Proceeds from the sale of City-owned
surplus property and any other funds identified in the budget will be used to increase
the reserve. Interest earnings will be applied on the reserve balance each fiscal year
until replenished to the minimum required level.
The City Council directs the City Manager to establish annually the Assigned Fund Balance by
identifying at the close of each fiscal year, subject approval of the City Council, funds identified in
the annual budget and any revisions thereto to provide for differences, if any, between budgeted
revenues and expenditures for a specific purpose; however, before expenditure, amounts must be
appropriated by the City Council.
Council options for further reserves include:
a. Transfer to increase the reserve of another fund that is not at the established target;
b. To finance un-funded necessities of the previous year’s budget reductions;
c. To pay off debt with a portion of the reserve;
d. To finance the expansion of City services;
e. To offer property tax, or other tax relief.
Other governmental funds are not addressed as they exist primarily to ensure and demonstrate
compliance with limitations on the use of existing dedicated revenues and that they were expended
for their intended purposes. Capital project funds would be spent out at the end of the project.
Amended: 04/15/2014 11
Guideline D:
The use of one-time revenues will be guided by this policy. Examples of one-time revenues include:
infrequent sales of assets, bond refunding savings, infrequent revenues from development, and
grants. These revenues may be available for more than one year (a three-year grant), but are
expected to be non-recurring. Examples of expenditures for which the City may wish to use one-
time revenues include startup costs, stabilization (to cover expenditures that temporarily exceed
revenues), early debt retirement, and capital purchases.
The City Manager will not bypass Council judgment in making use of one-time revenue. In utilizing
one-time revenue, the City Manager will carefully analyze and minimize the need for ongoing
expenditures.
Guideline E:
Capital expenditures will be planned each year in a Five-Year Capital Improvement Plan. The
annual budget will provide a separate accounting of capital expenditures in each department. The
City Manager should plan major projects with an estimated expenditure and with sources of funding
identified.
Guideline F:
Upon the City Council’s adoption of an annual budget and Five-Year Capital Plan that is presented
in accordance with Guidelines A through E, the City Manager assumes responsibility for ensuring
compliance with the budget as an established City Council Policy. This includes expenditure
control, and program and service delivery within that budget.
Minor deviations are tolerable and encouraged to maintain cost control and deliver quality services.
Examples of minor deviations are variances of purchases and costs between line items in a budget,
changes in programs and services resulting in cost savings or without cost, the use of grants that do
not cause future costs, and the purchases of minor equipment. This list is not exhaustive.
Major deviations require notification and sometimes prior approval by the City Council. Examples
of major deviations include the use of the contingency fund, program eliminations or additions, the
use of cash instead of debt when debt was planned, changes in the capital improvement plan, and
change orders in capital projects. This list is not exhaustive.
To facilitate a budget that can respond to changing needs, the City Council will approve a
contingency fund for the City Manager to utilize at his/her discretion. Examples of uses for the City
Manager’s contingency fund include: unbudgeted training opportunities for staff; purchases of
software, hardware, and small equipment that was unbudgeted; one-time expenditures to fill a major
position vacancy; one-time expenditures requested by outside entities; and emergencies in general.
The City Manager would be expected to make an effort to avoid utilizing the contingency.
The City Manager will report compliance or deviations from this Guideline for Financial Stability on
a quarterly basis.
Guideline G:
Budgets for Enterprise Funds will be prepared by the City Manager with a goal of providing quality
services and sustaining a maximum return to the General Fund on a long-term basis. Net Assets
serve over time as a useful indicator of a government’s financial position. Within the annual
Amended: 04/15/2014 12
financial statement the City Manager will annually provide a management discussion and analysis of
business type funds and the changes in net assets.
Guideline H: Appropriation and Subsidy Policy & Guidelines
Purpose. The purpose of this policy is to establish guidelines and criteria regarding the allocation and
use of municipal subsidies within the City of Brookings. These guidelines shall be used in
processing and reviewing applications requesting municipal subsidy assistance. Protecting the
financial interest is of the City of Brookings is of the utmost importance, so it is the intent of the
City to provide a minimum amount of municipal subsidies, as well as other incentives that the City
may deem appropriate, for the shortest term required for the project to proceed.
The City reserves the right to approve or reject projects on a case-by-case basis, taking into account
established policies, specific project criteria, and demand on city services in relation to the potential
benefits to be received from a proposed project.
Meeting policy guidelines or other criteria does not guarantee the award of municipal subsidies.
Furthermore, the approval or denial of one project is not intended to set precedent for approval or
denial of another project.
Whenever possible, it is the City’s intent to coordinate the use of municipal services with other local
governing bodies and taxing jurisdictions.
Objective of Municipal Subsidies.The City of Brookings is committed to providing a high quality of life
for its citizens and fostering a diverse economic base through innovative thinking, strategic planning,
and proactive, fiscally responsible municipal management.
To fulfill this commitment, the Brookings City Council will closely examine its goals and the goals of
its city departments to identify outcomes that will meet the standards as outlined in the mission
statement above.
The Council also recognizes that its support of programs and services outside the scope of its city
departments may be necessary to fulfill the commitment and achieve the desirable quality of life for
its citizens. As a matter of policy, the City of Brookings will consider using municipal funds to assist
in the following areas, but are not limited to, opportunities in the areas of:
Affordable Housing
Arts & Culture
Youth Development
Diversity
Economic Development
Education & Literacy
Environment
Government Stewardship
Health
Parks, Recreation & Open Spaces
Partnerships
Preservation/ History
Safety
Amended: 04/15/2014 13
Transportation/Transit
The Brookings City Council may choose to annually allocate a specified funding amount for a
specific category, regardless of the number of applicants for that particular programming area.
General Guidelines for the Allocation of Municipal Subsidies. The City of Brookings may allocate up to four
(4) percent of the annual General Fund expenditures to subsidize community needs and programs.
The City’s current and projected financial health and stability will be the key deciding factor in
determining its ability to provide funds to outside organizations.
In addition, the Council will consider a number of factors as defined in the City’s Funding
Application when making this decision. A key factor will be the applicant’s ability to provide a
service or outcome that improves the quality of life for the citizens of Brookings. The applicant
must also provide a “but for” analysis which demonstrates the need for public assistance. Other
factors include the applicant’s ability to become self-sustaining, the duration of the funding
commitment, and operating verses capital requests.
Municipal subsidy will not be used for projects that would place extraordinary demands on city
infrastructure and services.
Request for donations or subsidies from individuals, religious or political groups based out of the
City of Brookings will not be considered.
Request for donations or subsidies from qualified organizations outside of the funding timeline will
not be considered.
General Guidelines for Subsidies. The Brookings City Council evaluates program-funding proposals on
an annual basis for funding in the following calendar year. The City’s fiscal year is January 1 to
December 31. Proposals must be submitted to the City Clerk in accordance with the budget cycle
schedule and proposal format outlined below. Requests may only be made during this period of
time. Completed applications must be received on or before June 1st of each given year.
Following, a review by the City Manager and Finance Manager, the application shall be referred to
the City Council for further consideration during the annual budget meetings.
Organizations applying for a donation or subsidy must submit a completed Application for Funding
along with a detailed description of the project; a preliminary site plan; the amount requested; the
duration of the funding request; the public purpose of the project; verifiable funding sources and
uses; and a “but for” analysis which demonstrates the need for public assistance. Additional
documents which may be required include the organization’s current expense statement and budget,
Board of Directors listing, current Annual Report, and all other items specified in the City of
Brookings Application for Funding.
Budget Hearing Process. Brookings City Council budget meetings are held in the months of August and
September. All budget meetings are open to the public. Applicants may or may not be invited to
make a presentation on their funding proposal. Applicants are encouraged to attend all budget
meetings to remain informed during the process. Applicants should be prepared to answer
Amended: 04/15/2014 14
questions based on the application. Final action on the budget occurs at the last Council meeting in
September.
Brookings School District Subsidies. Appropriation of public funds can be set aside for specific purposes
which promote the City of Brookings mission and the local quality of life within the City of
Brookings. Brookings Municipal Utilities transfers funds each year to the General Fund as a means
to keep city property taxes at a low level for the citizens of Brookings. The City of Brookings may
annually appropriate up to 15% of the transfer from the Brookings Municipal Utilities to the
Brookings School District.
Economic Development/Promotions Subsidies. A subsidy from the 3rd B Fund shall meet the requirements
of the SD State Statute 10-52-8*. Funds will be appropriated from the 3rd B Fund to entities with
the capacity to promote and advertise the city, its facilities, attractions, and activities. In any fiscal
year, the City may require the unencumbered funds be returned to the City 3rd B Fund.
Subsidy Agreement and Reporting Requirements. The City of Brookings requires all recipients of
municipal funds to enter into appropriate agreements that identify the reason for the subsidy, the
public purpose served by the subsidy, subsidy payment schedule, final the specific performance
measurements to be attained, and final reporting on outcomes. Failure to provide final reporting of
funds and all other required reports will make applicant ineligible for future subsidies.
The City has established the policy that financial, service and program performance measures be
developed and used as an important component of decision making and incorporated into
governmental budgeting. The City encourages all departments to utilize performance measures. At
a minimum, performance measures should be used to report on the outputs of each program and
should be related to the objectives of each department.
The performance measurements should:
1. Be based on program objectives that tie to the City Council’s goals and program mission or
purpose;
2. Measure program results or accomplishments;
3. Provide for comparisons over time;
4. Measure efficiency and effectiveness;
5. Be reliable, verifiable and understandable;
6. Be reported internally and externally;
7. Be monitored and used in decision-making processes; and
8. Be limited to a number and degree of complexity that can provide an efficient and
meaningful way to assess the effectiveness and efficiency of key programs.
All agreements and reports shall be timely prepared and filed with the City Clerk. Failure to comply
with any of these requirements may result in the revocation of the requested subsidy as well as fines,
repayment requirements, and a determination that the organization is ineligible for future municipal
subsidies for a period of years.
*Applicable State Statute:
10-52-8. Additional tax on lodgings, alcoholic beverages, prepared food, and admissions -- Purposes -- Conformance with state sales and use tax.
Notwithstanding the tax rate limitations of §10-52-2 or 10-52-2.1, any municipality may impose an additional municipal non-ad valorem tax at the rate
of one percent upon the gross receipts of all leases or rentals of hotel, motel, campsites, or other lodging accommodations within the municipality for
periods of less than twenty-eight consecutive days, or sales of alcoholic beverages as defined in §35-1-1, or establishments where the public is invited
Amended: 04/15/2014 15
to eat, dine, or purchase and carry out prepared food for immediate consumption, or ticket sales or admissions to places of amusement, athletic, and
cultural events, or any combination thereof. The tax shall be levied for the purpose of land acquisition, architectural fees, construction costs, payments
for civic center, auditorium, or athletic facility buildings, including the maintenance, staffing, and operations of such facilities and the promotion and
advertising of the city, its facilities, attractions, and activities. Such taxes shall conform in all respects to the state sales and use tax on such items with
the exception of the rate.
Amended: 04/15/2014 16
City of Brookings
Ends Policy 2, Municipal Services
Establishing what is to be done, for whom, at what cost, and
Executive Limitations to define unacceptable means
Municipal Services: Key Performance Area
Municipal Services is considered a key performance area by the Brookings City Council, and appears
in the Mission Statement as “providing a high quality of life for citizens.”
The City Council deems City Services, along with fiscal management, as the highest priorities of the
City Manager and City Employees. There is no more important function of City Government than
to serve the Citizens of Brookings in a friendly, effective manner.
For this document, the City Council defines Municipal Services as Life Safety (police and fire), and
Functional Services (all other departments).
Guideline A:
In terms of Life Safety, involving the police and fire departments, the City Manager will:
1. In emergency situations, uphold the decisions made by the fire or police chief;
2. Maintain personnel at established baselines;
3. Provide appropriate equipment to maximize safety of personnel;
4. Enforce ordinances and laws;
5. Not allow situations to develop that may raise insurance rates for citizens or for the City;
6. Maintain the budget in such a way that will not lower the quality of services.
Guideline B:
In terms of Functional Services, which include all departments of the City other than Life Safety, the
City Manager will:
1. Repair infrastructure in a timely manner;
2. Increase services while forecasting benefits;
3. Expand department budgets only while documenting baselines;
4. Approve changes that fall within the long-term plan;
5. Continually strive to improve operational efficiencies;
6. Establish, model, and enforce the highest standards of exceptional customer service from
city employees;
7. Enforce ordinances and laws;
8. Document ongoing citizen satisfaction and performance reviews for services provided;
9. Provide support and guidance for staff when they are forced to work outside of their
expertise;
10. Seek opportunities to share facilities with other entities;
11. Anticipate foreseeable needs;
12. Use foresight in developing services;
13. Deliver services in a timely and quality manner;
14. Consider citizen complaints;
15. Emphasize a user-friendly approach;
16. Apply technology whenever beneficial.
Amended: 04/15/2014 17
Guideline C:
The City of Brookings has unique enterprise operations including the Solid Waste Fund, the
Edgebrook Golf Course, the Research and Technology Center, the Liquor Retail Store, and the
Liquor Override. In terms of enterprise operations the City Manager will:
1. Comply with Guideline B;
2. Review the Return on Assets (ROA) on an annual basis. The Return on Assets will be
calculated, using the formula: Net income divided by average total assets. The numbers to
calculate the return on assets ratio will be taken from the last and latest balance sheets and latest
income statements for each enterprise fund. It will be necessary to average the total assets
entries from your last and current balance statements when doing the calculation, but excluding
the General Fund transfer expense.
3. Net Assets are an indicator of a financial position. The financial position of an enterprise fund
can be tracked over time to assess whether a funds financial health is improving or deteriorating.
The City Manager will report annually to the City Council a comparison of the net assets for the
two most recent audited fiscal years for the above enterprise funds listed in Guideline C.
4. In addition the Liquor Fund’s annual report will be presented annually comparing the net profit
as the net asset report includes both the operating agreement income and the retail income.
5. Compare, as a percentage, the General Fund Transfer to the gross revenue of each enterprise
operation on an annual basis.
General Fund Transfer Comparison, Item #3
Total
Year Landfill Collections Liquor Retail Override
2000 13.2%6.6%6.1%4.6%7.3%
2001 14.0%6.7%5.9%4.4%7.1%
2002 29.2%12.4%6.5%5.1%7.8%
6. Review a five-year Capital Improvement Plan (CIP) on an annual basis. The CIP must list the
capital outlays and source of funds, including demonstrating that needed capital reserves are
maintained so that the enterprises are being operated in a stable financial manner.
Each department prepares a Five-year CIP on an annual basis.
Amended: 04/15/2014 18
City of Brookings
Ends Policy 3, Business Models
Establishing what is to be done, for whom, at what cost, and
Executive Limitations to define unacceptable means
Business Models (Long Range Planning, Customer Satisfaction, Productivity and Process
Improvement): Key Performance Areas
Operation of the City under a business model, emphasizing long range planning, customer
satisfaction, and productivity and process improvement, is considered a key performance area by the
Brookings City Council, and appears in the Mission Statement as “innovative thinking and strategic
planning.”
The City Council chooses to import models and practices not only from government, but just as
importantly, from innovative business models. In other words, the Council wants the City,
whenever possible and prudent, to operate with similar systems and attitudes adopted by any
successful business. Some of the major themes the Council chooses to emphasize are:
1. Benchmarking. The Council wants to constantly compare City performance with other cities
and other departments; to be sure Brookings is operating in not only an efficient, but
creative and innovative manner. The Council is aware that Brookings is unique—at times,
the City’s emphasis and direction will, and should, differ considerably from other cities.
However, information about best practices from other communities will always help the
Council make better choices.
2. Continuous improvement. The Council expects measurements of performance to challenge
the status quo, through the use of continuous improvement processes. Since the needs of
our citizen customers are constantly changing, so should our practices.
3. Goal-setting. The Council expects specific goals to challenge each City Department.
4. Accountability. The Council expects the City Manager to hold City Employees to standards
that demand excellence. “Good enough” is not an acceptable standard.
5. Customer satisfaction. The Council expects the City to institute a form of measurement to
gather and monitor customer satisfaction.
Amended: 04/15/2014 19
City of Brookings
Ends Policy 4, Economic Development
Establishing what is to be done, for whom, at what cost, and
Executive Limitations to define unacceptable means
Mission Statement : “The City of Brookings is committed to providing a high quality
of life for its citizens, and fostering a diverse economic base, through innovative
thinking, strategic planning, and proactive, fiscally responsible municipal
management.”
Economic Development: Key Performance Area
Economic Development and expansion is considered a key performance area by the Brookings City
Council, and appears in the Mission Statement as “fostering a diverse economic base.”
The Council understands and intends to emphasize the importance of a healthy economy in
Brookings and the surrounding area. For the entire community a healthy economy is critical to a
high quality of life. Because of its great importance, there are many entities involved in economic
development in Brookings. As the City is a significant funding source for much of the economic
development efforts in Brookings it is the Council’s intention to spend economic development
dollars in the wisest most productive manner possible.
The City Council’s desired End is to have an economy that is healthy and growing with enough
economic activity to support and fund public services. Toward that end, some overall indicators,
expressed as ends, have been identified:
A. The property tax base is growing.
B. Sales taxes are increasing.
C. Retail, Commercial, and Industrial buildings are not vacant.
D. There are employment opportunities.
E. There are competitive wages.
Having developed some overall Ends, following are more specific Ends to provide guidance to both
the City Council and the City Manager.
1. City Government is prepared for economic development opportunities.
a) 5% of the annual revenue of 75% - 2
nd Penny Sales & Use Tax should be reserved for
future economic development opportunities until a $1 million dollar committed fund
balance is achieved. A strategic plan will be developed to replenish the committed fund
balance should it fall below the minimum committed fund balance of $1 million dollars.
b) One-time sales of land will be added to the committed fund balance for future land
purchases for industrial and economic development.
c) The City Manager is designated as the primary contact from city government for
economic development inquiries.
d) City government, through its City Manager, acts as a facilitator for cooperation amongst
the various economic development entities.
e) There is adequate land available for future Industrial and Commercial development.
f) BEDC has an Action Plan with Committees in place to foster economic development,
create opportunities, and react to opportunities.
Amended: 04/15/2014 20
2.Economic development entities are working cooperatively and collaboratively.
a) A comprehensive economic development strategy exists.
b) Economic development entities, the Growth Partnership Board, the BEDC, the DBI,
and the Chamber meet with the city manager on a regular basis and report to the City
Council on a regular basis.
c) There is an excellent relationship between economic development entities and the
Governor’s Office of Economic Development.
d) The BEDC is the primary host. There will be a planned, cooperative effort for all
“hosting.”
3. Economic development efforts are conducted with an emphasis on the community’s assets.
a) The growth and expansion of existing Brookings industries and retail is the primary
target for increased employment and economic growth.
b) SDSU students and SDSU Colleges are viewed as potential partners to targeted
businesses and industries. A business or industry closely related to a field of study at
SDSU can profit from the use of a quasi-professional/professional work force willing to
work part-time and eventually full-time, the knowledge base held within an SDSU
college, and other partnerships with SDSU.
c) The City will partner with the innovation campus at SDSU.
4.The land around the Swiftel Center/Ice Arena is developed to enhance and complement the
existing land use in the area.
5.Tourism is bringing outside money to the community.
a) Quality events and promotions occur frequently.
b) There is an events coordinator and an emphasis on filling the summer months with
activities. Hotel rooms are full.
c) “3rd Penny” tax receipts are increasing.
d) Sales tax receipts are directly impacted by events.
e) Facilities (Ice Arena, Swiftel Center, Sports Fields, Performing Arts Center, Wellness
Center) are used at capacity.
f) Promotion dollars leverage significant visitor spending.
g) The community accepts a plan for the broadening of the tax base for promotional uses.
6.Tourism entities are working cooperatively and collaboratively.
a) A comprehensive promotion strategy exists.
b) City Government acts as a facilitator for cooperation among the various tourism entities.
7. Business Improvement District #1 “Pillow Tax” is bringing outside money to the
community.
a) Conferences, conventions, meetings occur frequently.
b) The CVB aggressively recruits and promotes activities with an emphasis on filling week
days with activities and increase week day overnight stays.
c) Facilities are maintained, expanded to remain competitive in the market.
d) BID Tax “Pillow Tax” funds leverage significant visitor spending.
e) The Board of Directors appointed by the City Council annually prepares and updates
plan reporting improvements for the district area for City Council approval.
Amended: 04/15/2014 21
f) The City Council shall assign 10% of the annual revenue from the “Pillow Tax” until
such time a minimum of $100,000 is assigned and maintained for the specific purpose of
cash flow.
8.The Research and Technology Center operates to facilitate the start-up and continued health
of commercial based business and industry. A specific policy guides the management of the
Research and Technology Center.
9. Because the State of South Dakota provides local control of the number of liquor licenses
allowed in a City, there are ample liquor licenses available for future development of
amenities the traveling and visiting public desires. The City of Brookings has a policy to
guide the distribution of licenses (operating agreements).
10.The appropriation for tourism and promotion will not exceed the sum of the “3rd Penny”
revenues raised annually.
11.The cost of economic development activities fluctuate based on the need and projects
proposed.
12.The City Council has considered predevelopment agreements with large retail developments.
Amended: 04/15/2014 22
City of Brookings
Ends Policy 5, Employee Training and Development
Establishing what is to be done, for whom, at what cost, and
Executive Limitations to define unacceptable means
Employee Training and Development: Key Performance Area
Employee Training and Development is considered a key performance area by the Brookings City
Council, and appears in the Mission Statement as “proactive, fiscally responsible municipal
management.”
The Council values City of Brookings employees as emissaries to the world. With this in mind, the
work environment for employees shall be one in which employees are appreciated, and encouraged
to grow and expand their skills. Compensation and benefit packages will promote excellence, within
the safest possible working conditions. The goal of training shall be to provide tools to assist staff
to exceed management and customer expectations.
Deviations from the below stated guidelines must be reviewed and approved by the Council.
Guideline A:
Training shall equip employees with the attitudes and behaviors necessary to achieve excellence.
Based on this guideline, training shall:
1. Commence immediately upon hiring, and continue throughout the career of the employee,
providing specific tools for optimal performance and productivity;
2. Emphasize continuous improvement of employees and processes;
3. Enhance an employee’s opportunity for promotion;
4. Emphasize customer service;
5. Focus on effective technological practices.
Guideline B:
Compensation Ranges will be objectively determined by the City Manager in accordance with this
policy. Research shall compare compensation and benefits with those of other public entities with
whom the City may compete for qualified employees, along with private sector organizations that
have similar positions in the surrounding area.
Infrequently, full market surveys may be required to evaluate and implement necessary modifications
to the City’s pay system. Full market surveys that might require the services of a consultant to
evaluate the City’s compensation levels will be completed only upon recommendation of City
Manager and approval by the Council.
The organizations to be included in the market research for non-exempt positions will consist of
other public sector entities primarily in South Dakota, as well as private sector organizations in the
local region, as appropriate, that have similar positions. For management and professional positions,
the market will include many of the organizations previously identified, plus similarly sized cities in
surrounding states that the city would compete with for applicants as identified by the City Manager.
It is not intended that the market will include significantly larger South Dakota cities, such as Sioux
Falls and Rapid City, unless the market conditions clearly suggest the need to do so.
Amended: 04/15/2014 23
In order to ensure that there is consistency in the methodology used when determining the
compensation ranges and benefits, the City Manager will follow the guidelines below.
In addition to infrequent full market surveys, periodic checks of benchmark positions will be
completed as directed by the City Manager to monitor and maintain the City’s compensation
program. To maintain compensation levels that are comparable to market, the City Manager will
identify and select benchmark positions and organizations to survey on a timetable appropriate to
upcoming budget year. Efforts will be made to survey the same or like organizations as in the
previous survey unless an exception to this policy can be justified.
In order to maintain the internal equity of the compensation system, the Job Factor Evaluation
System adopted by the City will be used for all job classification reviews. The job evaluation is not
intended to provide a specific value for a position; rather it is intended to provide an assessment of
the “relative” value of a position to the organization, compared to other positions. The following
criteria defined in the Job Factor Evaluation will be used in evaluating the internal equity placement
of City positions:
1. Scope of Supervision: Factor measures both the level of supervision required as well as the
number of individuals supervised.
2. Job knowledge: Factor measures the extent and nature of knowledge required to perform
the duties of the position.
3. External Contacts: Factor measures the nature and frequency of external contacts.
4. Decision Making: Factor measures the level of decision-making and independent thought
required.
5. Job Complexity: Factor measures level of analytical ability required in the position and the
complexity of typical situations faced.
6. Physical Working Conditions: Factor measures nature of physical working environment and
frequency in which employee typically works in that environment.
7. Exposure to Hazards: Factor measures employee’s typical exposure to health and physical
dangers and frequency of such exposure.
The pay grades and pay ranges will remain consistent and uniform as follows:
1. The bargaining unit will have established pay grades with ranges of 21.7% and a six percent
differential between each grade. The pay grades will be determined based on position title,
specific duties involved, and job factor evaluation system.
2. The management group will also have established pay ranges of 35%. Pay ranges will be
established by position title, specific duties involved, and job factor evaluation system. The
non-union/non-management will be placed on a similar pay system with ranges of 21.7%.
There is also in place for management exempt employees a pay for performance system
which is administered by the City Manager based on budgeted funds to provide recognition
to management staff for their additional contributions, achievements and service to the City
of Brookings over the past year.
3. For the police bargaining the Council will have pay grades with ranges of 21.7% with
exceptions with less than 21.7% ranges to minimize overlap.
Amended: 04/15/2014 24
A combination of the data collected on the identified benchmark positions and the job factor
evaluation system will be used to place each City position at appropriate pay grades in the City of
Brookings Pay Plan Schedules. By using both the market survey data and the job factor evaluation,
the City will have a pay system that is within market and reflects the City of Brookings organization.
The Council will not assume an obligation to automatically increase pay ranges without justification.
Justification will rely on a review of the Midwest CPI and specific salary date received/obtained
from sources as determined appropriate by City Manager. The purpose of this process is to develop
a pay system that is fair and within market and to provide a process that is consistent and
reproducible.
In summary, this policy provides further definition to the following Council policy. It is the intent
of the Council for compensation to:
1. Be commensurate with individual productivity within the market range;
2. Be systematic, with defined ranges, with consistent span in the pay ranges where feasible
using the median of the maximum rate of pay of surveyed positions as a benchmark;
3. Be used as a reward and motivation to achieve excellence;
4. Be attractive to top candidates;
5. Be adequate to retain top performers;
6. Exceed standards only when justified by exceptional performance;
7. Emphasize the use of reward bonuses over pay increases;
8. Be structured, when appropriate, to allow staff attrition to maintain market rates.
Amended: 04/15/2014 25
City of Brookings
Ends Policy 6, Intergovernmental Cooperation and Relations
Establishing what is to be done, for whom, at what cost, and
Executive Limitations to define unacceptable means
Intergovernmental Cooperation and Relations: Key Performance Area
Intergovernmental Cooperation and Relations is considered a key performance area by the
Brookings City Council, and appears in the Mission Statement as “providing a high quality of life for
citizens…through innovative thinking and strategic planning.”
The Council wishes to coordinate efforts with other governmental bodies, to mutual benefit,
whenever possible. The Council hopes to continue to work closely with any governmental body
seeking to serve the best interests of the Citizens of Brookings in a more integrated manner.
Staff must remember their importance in establishing and maintaining rapport with scores of
governmental agencies and groups. At times, one staff person is the only representative of
Brookings to encounter a given government official and regardless of the size or length of the
interaction, the Council hopes staff conducts themselves in a manner that would be the pride of
Brookings.
Though too numerous to mention every governmental body, examples of governmental bodies that
the Council wishes to coordinate efforts with include (not in order of importance): Federal, State,
County, University, School District, Cities with home rule, other Cities, and Municipal League.
Amended: 04/15/2014 26
Amendments
May 13, 2002 – The City Council approved the City Council Code of Ethics as Attachment
A, and the Volunteer Code of Ethics as Attachment B.
November 27, 2002 – Amended Ends Policy 2, Municipal Services, to add Guideline C for
enterprise funds.
May 27, 2003 – Amended Economic Development Policy.
January 11, 2005 – Amended Financial Stability Ends Policy.
May 8, 2007 – Amended Policy 1, Governance Process; Policy 2, Council-Staff Linkage;
Ends Policy 1, Financial Stability; Ends Policy 2, Municipal Services; Ends Policy 4,
Economic Development; Ends Policy 5, Employee Development and Training.
April 29, 2008 – Amended Ends Policy 1, Financial Stability, adding Guideline H:
Appropriation and Subsidy Policy & Guidelines.
November 22, 2011 – Amended Policy 1, Financial Stability Kay Performance Area,
Guideline C, Guideline E, and Guideline G; Amended Policy 2, Municipal Services,
Guideline B, and Guideline C; Amended Ends Policy 4, Economic Development #1, #2,
#7, #8 and #10.
December 4, 2012 – Resolution No. 153-12*: Amended Ends Policy 1, Financial Stability,
Guideline C, Section a. Fiscal Stabilization Arrangement.
May 28, 2013 – Amended Appendix A, City Council Code of Ethics
April 15, 2014 – Resolution No. 40-14. Amended Governance Policy 2.2(2), Council-Staff
Linkage, Delegation to the City Manager; Amended Governance Policy 2.3, Council-Staff
Linkage, Monitoring Executive Performance; Amended Governance Policy 1.6, Governance
Process.
*Commencing 2012, all amendments to the Governance & Ends Policy must be done by Resolution.
Amended: 04/15/2014 27
City of Brookings Governance and Ends Policies - Appendix A
City Council Code of Ethics
Approved May 13, 2002
Amended May 28, 2013
The mayor and council are responsible for making policy decisions for the community. The City Council
provides vision, direction and leadership to the community and the organization. The City Council further
represents the Brookings Community with other governmental entities and officials. In order to maintain
and enhance public trust and confidence in our local government, to achieve equity and social justice, to
affirm human dignity, and to better the quality of life for residents of Brookings the members of the City
Council dedicate themselves to the stewardship of the public trust and therefore embrace the following
ideals, seeking to:
Uphold constitutional government and the laws of the City of Brookings by recognizing I am an
agent for the democratic process and not the owner of authority;
Conduct public and private life as to be an example for my fellow citizens and take responsibility
for my actions, even when it is uncomfortable or unpopular to do so;
Be mindful of my neutrality and impartiality, rendering equal service to all and to extend the same
treatment I wish to receive myself;
Abstain from voting when a conflict of interest exists in accordance with the Brookings City Charter,
Section 7.01 (a) Conflicts of Interest provision;
Be tolerant, respectful and attentive to divergent ideas, suggestions and opinions;
Maintain and respect the confidentiality of private and confidential information, and treat all
persons, claims and transactions in a fair and equitable manner;
Attend and be actively engaged in all regular and special meetings, including briefings, and public
functions where my presence is expected and be prepared in the execution of such;
Be a prudent steward of public resources and actively consider the impact of my decisions on the
financial and social stability of the City and its citizens;
Make decisions based on the merits of the issue with attention to due process and citizen
participation;
Be knowledgeable and develop an understanding of local, state, and national governmental
guidance, directives, regulations and ordinances pertaining to my position.
Be prepared to make unpopular decisions based on my interpretation of the public’s best interest;
Make decisions and recommendations based upon research and facts involving staff and
stakeholders which considers the goals, impacts and the best interest of the greatest number of
those affected.
It is the policy of the City of Brookings to uphold, promote, and demand the highest standards of ethics
from all its Council members. Brookings Council members shall maintain the utmost standards of
personal integrity, truthfulness, honesty, and fairness in carrying out their public duties, avoid any
Amended: 04/15/2014 28
improprieties in their roles as public servants including the appearance of impropriety, and never use their
city position or powers for improper personal gain.
The code of ethical behavior will govern members of the City Council. City Council members are
encouraged to monitor their compliance and offer constructive recommendations to fellow Council
members if necessary. As a member of the City Council, I accept these ideals and policy, and pledge to do
in the interest and purposes for which our government has been established.
Date Signature
Amended: 04/15/2014 29
City of Brookings Governance and Ends Policies - Appendix B
City of Brookings Volunteer Code of Ethics
Approved May 13, 2002
Volunteer advisory boards, committees and commissions provide a very important service to the City of Brookings.
Members of volunteer boards, committees and commissions are often the first and only contact an individual might
have with city government. In order to maintain and enhance public trust and confidence in our local government, to
achieve equity and social justice, to affirm human dignity, and to better the quality of life for residents of Brookings the
members of volunteer boards and committees dedicate themselves to the stewardship of the public trust and therefore
embrace the following ideals, seeking to:
Uphold constitutional government and the laws of the city of Brookings;
Conduct public and private life as to be an example for my fellow citizens;
Abstain from voting when a conflict of interest exists in accordance with the Brookings City Charter, Section 7.01
(a) Conflicts of Interest provision;
Be mindful of my neutrality and impartiality, rendering equal service to all and to extend the same treatment I
wish to receive myself;
Be tolerant, respectful and attentive. Avoid comments, body language or distracting activity that conveys a
message of disrespect for the presentations from citizens, staff or colleagues;
Maintain and respect the confidentiality of private and confidential information;
Attend all regular and special meetings, including briefings, subcommittee meetings and public functions where
my presence is expected;
Be prepared by reading all documents pertaining to an issue in advance of the above mentioned meetings or
event;
Be an active and attentive participant;
Be professional in both appearance and manner; and
Read, comprehend and comply with local, state, and national governmental guidance, directives, regulations
and ordinances pertaining to my position.
It is the policy of the City of Brookings to uphold, promote, and demand the highest standards of ethics from all its
appointed officials. Brookings City officials shall maintain the utmost standards of personal integrity, truthfulness,
honesty, and fairness in carrying out their public duties, avoid any improprieties in their roles as public servants including
the appearance of impropriety, and never use their city position or powers for improper personal gain.
The code of ethical behavior will govern members of all City of Brookings boards, committees and commissions.
Volunteers are responsible to self-monitor their behavior. Concerns regarding a volunteer’s behavior should be reported
to the City Manager. Deviation from this Code of Ethics may result in removal from the Board.
As an appointed official, I accept these ideals and policy, and pledge to act in the interest and purposes for which our
government has been established.
Date Signature
City of Brookings
Staff Report
Brookings City & County
Government Center, 520
Third Street
Brookings, SD 57006
(605) 692-6281 phone
(605) 692-6907 fax
File #:ID 2015-0176,Version:1
City Council Ex-Officio Reports.
Summary:
Pursuant to council direction, “City Council Member Ex-Officio Reports” will be a standing agenda
item at all Council Study Sessions. The Council Members that serve as Ex-Officio members on the
Brookings Health System Board of Trustees and Utility Board will provide verbal reports regarding
recent meetings they have attended.
Brookings Municipal Utility Board:
1.Council Member Niemeyer
2.Council Member Hansen
Brookings Health Systems Board of Trustees:
1.Council Member Kubal
2.Council Member Corbett
City of Brookings Printed on 3/11/2015Page 1 of 1
powered by Legistar™
City of Brookings
Staff Report
Brookings City & County
Government Center, 520
Third Street
Brookings, SD 57006
(605) 692-6281 phone
(605) 692-6907 fax
File #:ID 2015-0177,Version:1
Identify topics for future study session (motion required).
Summary:
Any Council member may request discussion of any issue at a future meeting only. Items cannot be
added for action at this meeting. A motion and second is required stating the issue, requested
outcome, and time. A majority vote is required.
City of Brookings Printed on 3/11/2015Page 1 of 1
powered by Legistar™