Hennepin County Government Reorganization (1966)

CITIZENS LEAGUE REPORT
No. 202
Hennepin County Government
Reorganization
December 1 966
Citizens
League
Report
Hennepin
County
Government
Reorganizatio n
OFFICERS
DIRECTORS
President
Archibald Spencer
Vice P r e s i d e n t s
L e s l i e C. Park
Greer Lockhart
Fred Cady
James L. Hetland, Jr.
Mrs. Stanley G. Peterson
Secretary
Mrs. Nicholas Duff
Treasurer
Richard A. Nordbye
STAFF
Executive D i r e c t o r
Verne C. Johnson
Associate D i r e c t o r
Arne L. S c h o e l l e r
Research D i r e c t o r
Paul A. G i l j e
ABOUT THE
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CITIZENS LEAGUE.
Raymond D. .Black
Bruce W. Blackburn
Francis M. Boddy
John Burger
Charles H. Clay
Earl F. Colborn, Jr.
Waite D. Durfee
Harold D. F i e l d , Jr.
Richard J. FitzGerald
M r s . Ralph F o r e s t e r
Glen F. Galles
G i l b e r t Giebink
E. P e t e r Gillette, Jr.
David Graven
Roger L. Hale
Henry S. Kingman, Jr.
S a l l y Luther
C. D. Mahoney, Jr.
James Martineau
M r s . J. Paul McGee
John W. Mooty
Wallace E. Neal, Jr.
James R. P r a t t
John W. Pulver
John C. Savage
DIRECTORS
(Cont'd)
D r . John C. Schwarmalde
Paul Van Valkenburg
James L Weaver
John W. Windhorst
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PAS? PRESIDENTS
Leonard F. Ramberg
S t u a r t W. Leck
L e s l i e C. Park
Charles S. Bellows
Charles T. S i l v e r s o n
Walter S. H a r r i s ,
John W. Windhorst
John F. Finn
Frank W. Walters
Malcolm G. Pfunder
James L. Hetland, J
Norman L. Newhall,
Waite D. Durfee, J
James R. P r a t t
Charles H. Clay
. .
The C i t i z e n s League is a non-partisan, independent o r g a n i z a t i o n of more
3,200 members, founded i n 1952, and dedicated t o t h e improvement of l o c a l gove
i n t h e Twin C i t i e s a r e a .
C i t i z e n s League r e p o r t s , which provide a s s i s t a n c e t o p u b l i c o f f i c i a l s and
o t h e r s i n f i n d i n g s o l u t i o n s t o complex problems of l o c a l government, are developed b
v o l u n t e e r r e s e a r c h committees, supported by a f u l l t i m e p r o f e s s i o n a l s t a f f .
The League's annual budget is financed by annual dues of $10 ($15 f o r family
memberships) and c o n t r i b u t i o n s from more than 600 businesses, foundations, and o t h e r
organizations.
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CITIZENS
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RECONMEEIDQ~
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LEAGUE..
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Approved
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fbecember 2 , 1966. ..
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HENNEPIN COUNTY GOVERNMENT
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FOR LEG I SLAT ION q
ONS:
REFOW THE STRUCTURE OF
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The-eriam 4 i 9 u W 0 6 Hennepin County
W&W% *o ~ % en e a 06 a nmderul ~ l b a ncounty. .
, p & m &om venmab& p ~ v h i o r z06~ g e n ~ _ + X a t e ; & w udtich a&
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wuntie6, whetheh .?key wiitah '90(Jj 000.-.pqoPt6.,o/r a& 4~
equ&q a
as 4,000. T k .&uu pnevem W o n by lthe County Bomd $0 ~&@c-t
htte~~a.t .
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ne$om, R~Q.@Uand c o ~ o 06n ~ u n c t i mi n rr?d~$~ctrreab06 i ->
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Henqepln Court@ govm.gwnt. I t v e b a X f i d e p , e ~ d ~ a t : pand
o~ a h o w &
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a, whole bmi'es- 06 ~ q i a m t d yaected obdi&.&
cuho me hot 4upomkbte 0
@q poLbj-~;mfing body at the,
&&&, -b~& M(?)L&Y
fie S W 4 Leg&,
.&twikie.'wkich e x q w i eb
~ no rnpting d u t n e v i ~o~v' . the
~ oppnation~a~@&, /
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~ a n 06
i xhe independendent
&cted o{&c~u-$A pe4dom +s-y
m i p t t . b ~ / o / r 4 ~ & a f iW
vh
e 4. T k m&+e od
j o b d huchc
.that the pubeic i6 &I M p06iti0n *o judge korv e66eotiue on e6Goieb-i.-t fie
opdomo6thueob~{ci&havebm.
Amjoa/w(om&ith~houedbe
adoptd by Jthe 1967 L q , u & Z u e cuou;i!d aboUsk)&e po4iZions u$ MOAX 06
&e independ% dected- o ~$icine6and trephc& ; t h a e p o h . i . t i h da p p o W u e o n a i n wnneaXwun m a-trw@zaAion
oQ .the ~unotions03
Hemepin Cpukj , g o v m & unden Xhe~toultyb a s l d .
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The ixd.Woond concek o{ .the County ~aqp$?>
no& no ton&
.the ,nee& 06 Nmnepin Gout@. The L d g A W e b k o q rrede6he &e '
~uncltion06 fie Cou*
Bomd i n UennepLn Cdutvtq, 4b ab go rde-;ik a lftuLeq
policy-maIzing, body kapomibee dot & ape*
'04 cow@ gbvehm@,
a c e p z &'e j&di,&Vq.
The~ i z and
e - c d m g e w , o 6 e j c i b f i '~wLWlZg g o v m me&; d2 gt6mfi, and it6 need dot ~ v ~ z n t i and
o h~ e o k g ~ & @ o n ,
&gethen &@z ~e nneedp40t c o w g o v m e n t .to b & a 4.to and
coopeftate &h d c l c i p d - a n d p&m tau& 04 g o v m k v r t , w g w & n + W e ahe need ion a dubs*antiaeey .&.%%%m,adeqwte& p,& p
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making body ,&.the c o u n t y t&v&, wid& uk&t be able .to ~ d e v ~i @
t e d~d , .
mtdy .tO dhdy,, pofi cy-mkhLrzg a d t e v i w . The tgh&zt&&
d &d p 4 0 ~
v i d e t o t +theB o d % Ireceding $mh fie peh{ommce 04 t h e ex&L v e and
2 no# keqLied. Zo padom.
am7tinid&.&Lve &n&a
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The ,d&tong appo$ntive pcb&t!iofi 46; ~ o u ~ i t y ~ be,/,
~ & I. . ~ ~ k ~
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- w e d e d aa
, i peces+ay mid i i d ~ p e W L kcom$&i&t to &c, ~eo&.n-tu*ion od &theYCounty Bomd '4 (unction into .i%d
06 a poeify7olablrrg ahf
te'viau b e e . The C o q X y Manag@,, uppbip2a by. and &ponblibee ZO .thp
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Coc.bzXg Boartd, A hodd have - . e n;Drqngw.t pob~ibtgexecLLtive w h i ; t y , '
. c & ~ ~ C C t & an
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p(j4fion and ~ h oBei @ e q.&.&d&m7,
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G v e iue6eado6 c o ~ y J g u ~ e n h e .kt+
n t , aLe d e p m & e n t t h d in tire -tuturetuned * g o ~ & m m /rea\pov&b@ej
t
to qnd &dpX.Cbq-to ktn. f f e 2 & w ~ .
"n.eco~.mend
t h e appoi.ntAevr$o.~p m o n e to l f i ~ qb$brip o ~ + a ~ , dubjec.t,
.to
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~ m v . d i d nA- ho&d be ma* 60; a , : & + & ,$@
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&ow\~c~'&-,
;Drittive A&-6 u ~ t d wfie- Cou&j Managw /bprdLpd~&e66&hs
Ah2 $
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d e n t s , inchdirrg 6 y s t e m and but$& ~ r i v i w ,nea@k-&y d<"*he m-'
A%&
by $he County ::ianagvlb'066icc 06 $/ropo&
doh .,an$ a@+- !
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- 06 M me*, od cou&tq govesmevd .thnough a ugogccenn pnocqb 04
Ffmageh'r phu&g
deXai&edt g o ~ ~ z a &' k eq c - ~ . W o u
'be e - , :/
CauvctLf E p d\ dot &j
b;&chj ,a@ action;..
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The
&fhe- County
& e d 6 kad&@-'
&ve
aedom dhdUed be bmad enougN a,
&c+de @ikhe
~$k4Xat
04
&'~unctionb ct@&e&y hetr~brrmedh%&e ow& and, by;;the C o d , 7
:.+xcepIt 'dinec-tly j u & & ~ y - ~ ~~unc,tia
e d .
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.the p q
d e k z : @at gdv'uqmi&ntae d i w i ~ b n sand ~ a v i c q;the,
, Cbw-tq rnay juovide. HOW*,
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a Xe.gh.EaZLon ~ k o u @deem votuntmtt (~1~lhgrnew
u n d ,~~ c h , ,
municripa.&%e- i k i &e countg can agIree ~on,~;thk~
padohmapcd by Im~mrG-)\
.paLL-tied 06 &ou2ty&nckiua,ot the pen~vmance,by Xkef ixmX$ 04 W .tain n w r i c i p u t -{un&.q~, .&e countyi wodd *e -&&.-9e&alpo~akopmbo/un Zhes e A avicd5 ;Znq.,&itca%~a.
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Ci't izens League
545 Mabil O i l ~ u i l d $ n ~
Minneapolis, Minnesot_a 55402
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W n t y Govq-ent,
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Board of Directors.
'structhre ~ o m ? t t e e ,J G e s %. ~ e t l a n d ,Jr., 7 ~ h ~ i % a n
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s U B ~ E C !:~ ~ e c m m e n d a t i ~ hfko r Special ~ e ~ i s l a t i ot ob Proride -.for the ' Refo m of
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S t r u c t u r e of Hennqpin County Government.
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H i s t o r i c a l l y , t h e =ouht; was an administrative ' d i s t r i c t establ-hed s
f o r ~ t h pconvenience of state government. I t was established. t o serve as a d i s t
f o r j u d i c i a l administration, l a w enforcement, t a x administratiop, eleytions, 10
oad construction and npinf enance, -welfare services and the adminlstratiod of
ftate-edtablished s e r v i c e s , rey l e t i o n s and franchises
Becaw? gf $fits, t h e
was regarded a s a? instrument gf t h e s t a t e f o r the l o ~ a pl k f o r n a d e of take
i l p o n s i b i l i t i e s dndJnot as a u n i t of government t o serve t h e nee% o f i l o & l . r e s
' f o r l o c a l services.
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But 13ennepin Cowty today, along with o t h e r haadly!;rbanined
count
~ i n n e e o t aand eksewhere, has been int%easitlg!ly c a l l e d on t o provide servicqs
form function& whfch
very s i m i l a r t o those nordhally associated with lgunic
.ties. *or example, th" county is now o p e r a t u g a county,,general hospita1,lpr
l i b r a r y e r v i c e i n the suburban a r e a s , and operating' a countywide municipal
System. Ih addition; the county has f e l t $ t necessary t o e s t a b l i s h o r assum
r e s p o n s i b i l i t y f o r d e t e n t i o n o r correct-ional i n s t i t u t i o n s and programs, such
Juvenile Center now hasdling over 1,600 admittances per year and t h e expandh
S3hools f o r Boys and yrls aq GI& Lake. The Minneapolis Workhouse 3s likely
t r a n s f e r r e d tu countyq j u r i s d i c t i o n as i t pro'srides detention r a c i l i q i e s main$
)persons sentenced by t h e Corinty MunicipaX Court, whichJlask year replaced a1
municipal courts i n - t h e bounty. A new county j a i l t o replace t h e sedarz3te c
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c i t y j a i l s - w i l l a l s o be under consideraition by the ,1967 ~ e g i s l a k u r e . ,
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14 c d n t r a s t t o t h e o r i g i a a l purposes of t h e eounpg, &+ny of these-vices ...a
re- be%pgp r d i d e d t o .meet local, needs of l o c a l k i t i z e n s and a r e f i n a n c 4 ,
almost wholly f ~ o mlocal-revenue sources.
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' Despiqe t h e s e ~ 3 ~ n i f i c a changes
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i n the d u t i k -and'$ unction&
t h e Lcounty,'
t h e r e has been no accompanying l e g i s l a t i v e r e c o g n i t i o n , t h a t , 5ia a d d i t i o n t o being an
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administrative arm of, t h e s t a t e l a e n n e p i n County has $so become a limited funct+on, ,
general purpose government with regard t o these expanding l o c a l s e r v i c e functions'.
Nor has t h e Legislature r e a l l y faced up t o t h e f a c t t h a t the ;ge$ormance 'of t%k Sradit-lonal c o u n b functions i n a county of n e a r l y ' orre million people i s very d i f f e r e n t
,
f roih t h e i r perf oh-ance dn a rura_l county of 5,000 r e s i c e n t s ' G e r a t f z& under t h e S_=
This i6 p a r t i y l a r l y t r u e as t o such matters as-highway planping and
, state lavis:
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co=struction, welfqre admiaistration and handling l a r g e coprt. calendars, but at is
a l l b t r u e as t g administration of e l e c t i o n s , mopey' man'agement, record-keepang of a l l I
, Wpes anh almost any county functi\an one might mention.*
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This r e p o r t recomraqnds s p e c i a l l e g i s l a t i o n a t t h e 1967 s e s s i o n of t h e
L e g i s l a t u r e t o modernize and reorgaaize t h e s t r u c t u r e of Hennegin County gove,mmknt,
Thescope of t h e s e recommendations should b e c l b r l y understood a t t h e o u t s e t . The
recornendations do'not involve a home r u l e c h a r t e r , f o r Hennepin Cuunty. Tkey'do
n o t provide f o r t r a n s f e r of new goyemmental functibns t o Hennepin County. They do provide f o r t h e r e s t r u c t u r i n g of e k i s t i n g county government, and iioncern themselves
with the e x i s t i n g d u t i e s and functions of ?he county and t h e e x i s t i n g boards' and
o f f i c i a l s of Eennepinp~ount$government. The committee b e l i e v w t h a t tbe recom&nded
l e g i s l a t i o n is urgently needed s o &hat Reanepin County w i l l be i n a p o s i t i o n t o more
expeditiously and e f f i c i e n t l y perform those neceysary f u n c t i o n s and s e r v i c e s i t is
already charged t o provide.
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Thg needs w e a r e addressing, i n t h i s r e p o r t should n o t be confuse$ with t h e '
widespread d i s c u s s i b n of need -for a w t r o p o l i t a n a r e a s t r u c t u k e of government.? Hen-\
nepin County government i s - n o t c u r r e n t l y de%iply tnvolved ifl t h e f u n c t i o n a l a r e a s
sewer, t r a n s i t , e t c ,
nor with ttie areawide problerns generally a s s o c i a t e d with d i s chssion of a metropolitan areawide
s t r u c t u r e of gave-ent.
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I t is poss2ble t h a t ~ e x m e ~Ci k~ n t yshould be' performing additional.-seizy i c e s and,£unctions
By t h e saiue, token, some- a s p e c t s of c u r r e n t county operations
'might in--t$ f u t u r e pe p e r i o h e d by h i e h e h o t lower l e v e l s of gave-t th$n t h e
county: But t h e r e p o r t i s not eoncemed w3th thkse questions, beybnd recognizing
' t h a t county
has grown enormously and w i l l undoubtedly continue t o grow a t
<a' f a s t pace,
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addresses t h e q u e s t i o n of how t M governmeat of t h e l a r g e s t
county i n t h e state, which w i l l admi,nister a Gudget of n e a r l y $90 m i l l i o n next year,
, c a n be reorganized s o a s to do a b e t t e r job with t h e many governmeqtal s e r v i c e s apd
i n t h e many, a r e a s i n which it'is now operating.
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The'study h a s b e e n primarily focused on t h e antiquated and i n e f f e c t u a l
-stlructure of Hennepin County povera$lent as imposed by exisfing state law, on t h e
/ e f f e c t s of t h i s s t v c t u r e , and on t h e b e s t manner i n whi&\€his s t r u c t u r e can be /
r e v a p e d by t h e L e g i s l a t u r e so-that county government w i l l b e a b l e t o perform-its
functions i n an ef f f cie,nt anxi , b u s i n e s s l i k e manner, '
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The s p e c i a l legislatkori we recommend s bi u l d :
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1. Make appointive a l d t h e currently e l e h t i v e o f f i c e s i i ~ e n n e p i n~ o b t ) ; -,
except f o r the County Board, t h e Coupty Attorney, t h e Judges ~f t h e Dis,trict and.
County Municipaf Courts, - t h e robat ate" Judge-, and the Clerk of D i s t r i c t C o u ~ t
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The CotMty BoaW of Cormaissioners ,should {be'given Tcomplete'authori t y over \ \
alk f u n c t i o n s now required,bp law t o be performed by t h e c u m e n f l y independeht'
e l e c t e d o f f i c i a l s , with t h e exception of t h e Attorney a n d , t h e Court Commissioner,,
and t h e c o u r t record-keeping furretion of t h e ' Clerk of D i s t r f c t Court. The law spould
make c l e a r t h a t t h e Co\rpty Board Bas f u l l p o l i c y a u t h o r i t y over t h e performance of
non-judicial r e l a t e d f u n c t i o n s , and t h a t p e r s o n s holding the top posfti/ons seme a t
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t h e pleasure of t h e County Board, Ib r e t a i n i n g t h e p o s i t i o n of County Attorney a s
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e l e c t i v e , t h e d u t i e s of t h e p o s i t i o n should be redefined s o t h a t t h e person holding t h i s e l e c t i v e p o s i t i o n becomes, t h e County Prosecutor'orbistrict-~ttorney, indepgndent of a second legal ' k s i t i o u , t h a t -of County Law O f f i c e r o r County Counsel, an
, .,
appointive p o s i t i o n ,under the,€ounty Baaed. This p o s i t i o n would he re&pcmsible.for '
t h e function of providing ongoing' l e g a l s e r v i c e s t o t h e various depxctments and a r e a s
- of county g o v e m q n t
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The Court Commissioner function shouLd be appointive, b& under t h e P,robate
Court, not, t h e County Board. The lcourt r-ords-keeping
funct)on of t h e Clerk of
~ i s t r i c tCourt should b e combined v i t h t h e f u n k t i o m of t h e now s e p a r a t e .Fhnicipal
and Probate Courts Clerks and-placed under t h e Z o u r t s A d m i n i ~ t r d t a r ~ w hshould
o
be
r e ~ p o n ~ i b tl oe and serve a l l t h r c~o u r t s
D f s t r i c t , County Municip_aX,- and Probate.
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The Clerk of D i s t r i c t Court p o s i t i o n should be made a p p o i n t i v e but c h n o t
be, as s i n c e '1956 i t has been a C o n s t i t u t i o n a l of Sice. The L e g i s l a t u r e 1should give
consdderation t o amendment t o f he S t a t e Cons t i r u t i o n so\ as t o remorre reference
,'
t h i s office I f t h i s i g done,,individwal c a u n i i e s could then d e t e h i n e .if t h e ppa
t i o n should be e l e c t i v e o r qppointive. Y n t h e meantime, even thoughrkhe o f f i c e mu
remain e l e c t i v e , we b e l i e v e t h e s p e c i a l Hennepin Counfy l e g i s l a t i o n we recommend
should v e s t t h e Courts w i t h t h e power t o set t h e pay of- and a s s i g n d u t i e s t o + h i
Clerk, who should s e r v e under 'the warts i n x h e ,ftlnctJonaI a r e a r e l a t e d t o c a u r t s
record-keeping.
The l e g i s l a t i o ? should a l s o place responsibt3,ity f o r t h e no
r e b r d f u n c t i o n s of- t h e Clerk - marriage-licenses, e t c .
under the ~oun* B
Wnager, who should a l s o h S e r e s p o h s i b i l i t y f o r a l l non-co%rts'recotds i n c k d i n g
t r a f f i c v i o l a t i o n s re,cords of t h e Municipal Gourt, record-keeping c u r r e n t l y undert k e o t h e r independent e l e c t e d o f f i c i a l s , e c . ,-
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~ u a r a n t e e st o t h e p a r t i c u l a r county o f f i c i a l s e l e c t e d I n N o d c r p
f o r four-gear te'rms can and should he pruvided i n t h e l e g i s l a t i o r r , specflfical
they s h a l l a u f f e r no!foss of pay while i a i munty employment during t h e period
which they-were elecfed, and t h a t , i f they d e s i r e , they s h a l l be given employme
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t h e - h n c t i d n a l a r e a Involved i n t h e i r e l e c t i v e p o s i t i o n .
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2. Designate t h e ' ~ o u n t ~ ~ ~ as
o a trhde policy~makinno r l e ~ i d l a t i v earm-&
government.
c&ty
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The Board s h a l l be given broad budgetary powers, power t d s e t s a l a r i e s ,
power t o determine t h e n m b e r of p o s i t i & i n t h e r e s t r u c t u r e d department 'of county
government, power t o appofnt and r e l l e v e t h e County Manager and power of approval OF
thp_ Manager's recohmepded appointments
t o t o p county a d m i n i s t r a t i v e p o s i t i o n s .
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The law should r e s t r i c t th& ~ouxityBoard and ,Commissioners,~hoshould
s e m e s t r i c t s y tiq a policy-making capacity, from e x e r c i s i n g a d y i n i s t r a t i v e d u t i e s .
This can be done by d e f i n i n g i n tbe l a w t h e ~ o a r d bpowers and d u t i e s and -its r e l a t i o n s h i p t o t h e recommended p o s i t i o n of County Manager, wh8 should f u l g l l t h e exe. c u t i v e and top a d m i n i s t r a t i v e funqtians of qounty government.
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We cannot over-emphaskze. t h e need t o e s t a b l i s h a s t r o n g policy boQy i n
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county government, r e s p a n s i b l e to' t h e v o t e r ? f o r
no;-jdicial
functions of
,county government - t h e County Board. The importance of the _ongoing need: f o w a subk
s t a n t i a l l y f u l l t i & , adequately paid. policy and revie$ body st&s from t h e growing
s
; i z e and coinplexity of county government, need f o r reiorm and. r=organization, an$
t h e c e r t a i n t y t h a t t h e county w i l l -be asked, t o take on aew t a s k s and dvsies.
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It would be s h o r t s i g h t e d t o expect t h a t p o l i c y d f r w t i o n of as v a s t , , a s
many f g c e t e d and as expensive a n o p e r a t i o n a s hennepin C ~ u n f y ~ t o d ashortld
y
be placed
- i n a pgrt-time, s c h o o l ~ o a r dt y p e body holding one o r two weekly meetings. The budt
g e t and tax levying f u n c t i o n s of t h e Board a l o n e , i f adequately f u l f i l l e d , r e q u i r e ,long d e t a i l e d h e a r i n g s , meetings and Snfonnation 's&ssions over a n extended -period
'
each-year. I n it? c a p a c i t y a s t h e County Welfare Board, and t h e p o l i c y body f o r t h e
" ~ o s ~ i t a many
l,
hours are a l r e a d y s p e n t . Its new d u t i e s i n t h e personnel f i e l d , p l u s
its f u n c t i o n i n many new areas i n which w e b e l i e v e i t 'shoula gtudy and set p o l i c y ~ ,
c l e a r l y r . ~ q u i r ea working c l o s e t o f u l l - t i m e board.
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I n c r e a s i n g l y a i s o t h e Board should and w i l l b e devoting 'considerable t i p e
t o consideratdon of t h e county's r e l a t i o n s h i p t o o t h e r u n i f s of government. How can
i t b e s t cooperate w i t h and a i d t h e m u n i c i p a I i t i e s and f a s t growing r u r a l d r e a s of
,
t h e county? What state a i d s and l e g i s l a t i o n are n ~ e d e dfor. t h e county? What a b h t
, /-lfederal programs? How can Hennepin County government coopera* w i t h t h e area planning a n d o t h e r s p e c i a l agencies of areawide gbver$oent.l J
b
i should t h e c o y n t i e s i n
. t h i s area cooperate t o b e a t provide t h e s e r v i c e s and derform t h e tasks,ass3gned t o
:
The coufities by t h e L e g i s l a t u r e ?
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3. ' C r e a t e add d e f i n e t h e d u t i e s and powers of the new a p p o i n t i v Ie p o s i t i o n
o f County Pinager, bhich should become t h e e x e c u t i v e and a d m i n i s t r a t i v e head of &unty government,
'supported by a s t r o n g s t a f f c a p a b i l i t y .
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The ?!anager should-have t h e confidence of t h e Board. :Thus, he should be
i
anpointed by and b e r e s p o n s i b l e t o t h e Board and s e r v e at i t s pleasure. The Manager
should ,have strong e & @ t i v e and a d m i n i s t r z r i v e a u t h o r i t y
tie should f i l l o r
r e p l a c e t h e top a d m i n i s t r q t i v e and department p b ~ i ~ i o n ssubject.
,
t o County Board coqfiirmation. These are t h e department head and "top deputp" p o s i t i o n s w h h h w f l l remain o u t s i d e of t h e uniform merit personnel plan. The l a w should make clear t h a t
! department heads r e p o r t t o and a r e d i r e c t l y r e s p o n s i b l e t o t h e iElqpager, not t h e
County Board.
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With t h e County Board s e t t i n g g o a l s and p o l i c i e s and reviewing progress
i n t h e i r accomplishment,- t h e Board must r e l y on t h e Manager t o see t
s t h e ac omplish- ,
'merit of t h e Board's aims. tie theref o r e should have t h e p r i e r y say ia t h e ' p e e c t i o n
Af departmdnt beads, s u b j e c t t o B o a ~ dconf irmatdon. The Board holds t h e ' Manager
accountable, and he i n t u r n must rely'on t h e t o p department per-sonnd f r perform/-
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A key r o l e of t h e Pranager which should b e ,provi&ed i n t h e law i s t h a t of
7
making r e g u l a r y e a r l y proposals t6 t h e Board f o r r e o r g a n i z a t i o n and r e f o r n , for'recommended ~ o a r d' a c t i o n , and f o r needed l e g i s l a t i o n r e l a t e d t o Fiqnnepin County government. "The law s l ~ o u l d
h r o v i d e , f o r t h e ~ o a r 's
d holdhg p u b l i c h e w i n g 6 on t h e Manag e r ' s proposals a*,
followinp, such h e a r i n g s t a k i n g a c f i o h o n these
Thus, some formal prokedure w i l l be providedI* f o r t h e e s t a b l i s h ~ t e n gof goats and'
p o l i c i e s f o r county government and f o r some measurement a g p i n s t whfch t h e v o t e r s mgy
judge t h e progress .being made.
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provide s p e c i f i c a l l y f o r the d i v i s i o n of p o l i c y keippon6ibility between
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t h e County Board and t h e J u d i c i a r y f o r a l l e x i s t i n g o r newly c r e a t e d county f u n c t i o n s
- in l i n e with Che f i n d i n g s o f t h i s r e p o r t .
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It s h o u l L p r o v i d e , f o r exauple,. thac:
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There be one combined p r o b a t i o n f u n c t i o n trilder t h e p o l i c y d i r e c t e o n of
CounEy Board.
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. There b e one combined
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. The f u n c t i o n s of
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c o u r t s reedrd f u n c t i o q under" t h e p o l i c y d i r e c t i i r i
u n t i l , t h e Minnesota C o n s t i t u t i o n is amended).
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of t h e c o u r t s (eveh though t h e : Clerk of District Court p o s i t i o n w i l l remain e i e c b i v e
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t h e Department of Cour5s S e r v i c e s and 05 t h e j u v e n i l e
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and a d u l t c o r r e c t i o n a l i n s t i t u t i o n s be plackd undef t h e p o l i c y d i r e c t i o q of t h e ',
,
County Board, s u b j e c t t o t h e - a d v i c e of a c o d t r e e of the-courts on p o l i c y matters t
{ p e r t a i n i n g t o t h e s e f u s c t i o n s a ~ on
d tde q u e s t i o n of ap,pointment and r e t e n t i o n of
r
t h e D i r e c t o r of Courts S e w i c e s
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5 . Provide rpaximum o p p o r t u n i t y ta EIennepin County on a v o l u n t a r y and
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coopprative b a s i s and on-. terms which can b e agreed'upon 6e.gween t h e county and rrtunic i p a l i t i e s t o provide c e r t a i ~ iservice's f o r municipa2fties and<,,conv.ersely, t o aalow
\ m u n i c i p a l i t i e k t o perf o m agreeid upon county ' s e r v i c e s w i t h 3 a k n i c i p a l ,tjoundaries.
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The committee a l s o s t u d i e d a n d consi4ered t h e f i n d i n g s and reconmendations
of c e r t a i n o t h e r r e c e n t C i t i z e n s ~ e a i u er e p o r t s involving a s p e c t s of Hennepin Copnty
government. To t h e e x t e n t t h a t r e c o m h d a t i o n s contained i n )those ~ e ~ o r t s ' h a vneo t
y e t been implemented ( o r r e q u i r e / new
z u t o & t h e s e recommendations where
Legislature. Speqkficall , w e
- C i t i z e n s League r e p o r t s
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I n c l u d e employees o f &he c u r r e n t l y inbepeadent e l e c t e d - : o f f d c i a l s %*;the.County Mer,itfPersonnel ,Plan . t o go. i n t o a f f e c t i n March, - 1967. (CL Report
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of ~a~'.'ro,'
1965. y
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Consolidate the c i t y and county j a i l s under county j d r i d d i c k i o n and' \ -;
under the, c o n t r o l of t h e C o u n t y Beard i n a new b u i l d i n g . (CL Repo9t bf
July' 13, '1966j
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"strung" County Assessor system.:
Kay 14, 1965)
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l a w s p e r t a i n i n g , t o y o t i n g , v o t i n g m a c h i p s and e l e c t i o n proce(CL Report 'of Nprcfi'2, 1966) !
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T r a n s f e r t h e Minneapblis ~ o r k h o A et o County " j u r i s d i c t i o n .
of March 1 7 , 1960) - '
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XCL Report o f . .
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The l e g i s l a t i v e prop*sals o u t l i n e d above, w h i l e r e l a t i v e l y . simple on t h e i r
f a c e , a r e extremely complex i n l t e r m s of - e x i s t i n g ( s t a t e kaw, which, w i t h r e s p e c t t o '
- C o u n t i e s and e s p e c i a l l y Fennepin CoQnty, is s c a t t e r e d throughout t h e s t a t u t e book$,
and c u r r e n t l y p l a c e s powers i n a v a r i e t y of county - o f f i c i a l s - both e l e c t e d and
afipointed. Due t o t h e l e g a l complexity 'bf t h e s e m a t t e r s , w e reconmend t k p t t h e County Board iagbe3iately__conmact f o r l & a l a s s i s t a n c e f o r t h e resear'ch aih d r a f t i n g
r e q u i r e d i n t h e p r e p a r a t i a n of s p e c i a l l e g i s l a t i o n t 0 , c a g - y o u t recommendations for
reform of Hennepin CountyYs t r u c t u r e . The d r a f t i n g a t t o r n e y o r a t t o r n k y s ghould be
i n s t r u c t e d t o cooperate with t h e County Attorney. ,In t h e s h o r t amount of time a v a i l a b l e b e f o r e t h e g e x t s e s s i o n ; and with- t h e p r e s s of work o n h i s s t a f f , we doubt t h e
~ o u n 3 y ' ~ t t o r n e y ' s o f f i c e a l o n e should be--askpd\t o undertake t h i s t a s k .
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L e g i s l a t o r s Mow St County Policy
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Henhepin County p p e r a t e s under a county commissioner plus independent ' ,
e l e c t e d oTficiaXs form of government. This form of government has been prescribed
3n 'general s t a t e law which r e q u i r e s t h e e l e c t i o n of w e c i f i c o f f i c e r s who a r e independent20f each o t h e r and o f t e n uncoordinated i n t h e i r a c t i v i t i e s . Not only i s ,
county government l i m i t e d t o those powers s p e c i f i c a l J y given t o i t by t h e S t a t e
L e g i s l a t u r e , but a l s o i n most i n s t a n c e s t h e l e g i s l a t i o n s p e l l s , o u t \ w h i c h o f f i a e r
s h a l l do what and- how t h e county 's,powers s h a l l be di_scharged. Thus, t h e County
d p e r a t e s i n a ~ i r t u a ~ l e g i s l a t i vs et r a i t j a c k e t and ismt s e ~ kl e g i s l a t i v e consent t o
-make w e n minor changes i n t h e s t r u c t u r e o r functioning of Hennepin County government.
,_
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'fhe approval of!the e n t i r e L e g i s l a t u r e is needed t o r e a s s i g n responsibili-o r a u t h o r i t y from bne o f f i c i a l toL9thef,
even when such reassignment c l e a r l y
I d l e a d t o g r e a t e r ef f dciency o r more coordinated government. Far e x q p l e ,
re Hennepin County could set up a c e n t r a l purcha-siqg department or'a c e n t r a l
r
dget off i c e , l e g i s l q q i v e approval was required.
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a
33e list ofi'minor a d m i n i s t r a t i v e o r housekeeping changes in7counfy govern-
%
n t which- cannot be i h s t i t a e d witHout l e g i s l a t i v e a p p r ~ v a lis almost endless._ The
r e a l governing body f b r Hennepin County, a s f o r t h e o t h e r 86 counties in: Minnesota,
,
t h e S t a t e L e g i s l a t u r e . However, because-of t h e custom of g e n e r a l l y d e f e r r i n g t o
e l o c a l l e g i s l a t i v e delegation on l o c a l i s s u e s , it probably is more accurate t o ay t h a t t h e Wnnepin County l e g i s l a t o r s a c t a s t h e governinebody f o r Hennepip
County. Since t h e county delegation has operated under a "unit r u l e system", whereby t h e consent of a l l b u t t h r e e o r f o u r of t W d e l e g a t i o n members is required befor?
a l o c a l bilJ r e c e i v e s delegation support i n t h e L e g i s l a t u r e , i t is necessary t o ob- - \
t a i n t h e support of'over 90 p e r cent of t h e Hennepin
- County l e g i s l a t o/r s to mqke
changes - i n t h e county 's government.
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County Bdasd's Current Role
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Under Minnesota law t h e five-mehber Henaepin County Board a f Cmmtisdoners
is -supposed t o act a$ t h e a d m i n i s t r a t i v ~o r executive head of t h e cpunty. T h i ~
means t h a t a f ive-member 'board ,$s supposed to make t h e day-to-day d e c i s i o n s e n t a i l e d
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in,'running county -government.
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Within t h e framework of general lair and of some-special l e g i s l a t i o n pert a i n i n g t o ~ e i i n e ~ iCoucty,
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t h e County Board i s a l s o a decision-making element-of
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c o u n r r government. For example;, the-Cognty Board appoints and sets t h e s a l a r i e d f o r
the County General Hospital Administrator, t h e Colinty Medical Examioer, county Sur- ,veyor, County Highway Admlnfstrator, County Highway ~ n ~ i n e e ~Budget
!,
and Purchasing
Dj,recfor, Supeldfsor
Assessmentg , Veterans Service O f f i c e r , Director of t h e Wjzl'f ale 'Department Weed Inspector, - C i v i l DSf ense Director and Cottnty Library Directqr
To t h e e x t e n t t h a t county funds a r e involved in,operating tliese \,functions, i t maint a b s budgetary c o n t r o l over them a s w e l l a s varying degrees of policy control:
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I n a d d i t i o n t o th County Board, '&ate s t a t u t e s provide f o r t h e elect'ion
of a County, Attorney, County Auditor, County Register of Deeds, County Sherif.5,
County Superintendent of Schobls, County Treasurer, C l e ~ kof D i s t r i c t Court and
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-Lake Improvement
-N-axioys- Weeds,
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G.errera1 H b s p i t a l
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OF HENNEPIN COUNTY GOVERNMENT
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{Board of County Commissioners-r-----------cBudget
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Attorney
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Commissioner
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R e g i s t e r of Deeds
Clerk of D i s t r i C t Court
Auditor-------Kccounting o f f i e e
County Superinkdndent Of Schools
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-Probation O f f i c e
- ~ & eSchool f o r Boys and ~ i r l s, - - - D i r e c t o r of Co,urt Services------------Referees (Family and ~ u v e n i l e' ~ o ' u r t s ) '-Domestic R e l a t i o n s , S e r v i q e s
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Judge of P r o b a t e Court---------------------
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Probation pff i c , e
L-Clerk of YuniCipal Court
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Sheriff---L---------------------------2--/' ,
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and ~ u k l i c a t i n ~
$ervices
,-central Telephone ~ d i r v i c e
-Public Information
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--Veteqans S e r v i c e O f f i c e
--Civil Defense
--Book Binder
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~ o u k tCammissioner (plus. a Probase Judge and 30 D b t r i c t Court and County Municipal
Court ~ u d g e s r . These independent county o f f i c e r s are f r e e ,to rug t h e i r o f f i c e s a s
,+,3 h e y , s e e f i t and f r e e t o cooperate o r not t o cooperate with o t h e r county o f f i c i a l s
,
.. o r departments as they qay 'choose. Their s a l a r i e s mid t h e number of personnel i n
t h e i r o f f i c e p and departments a r e determined by t h e S t a t e L e g i s l a t u r e . Once the*
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l e v e l s a r e set, t h e County Board must pass,on tPle year-to-year o p e r a t i o n a l and capital needs of t h e llepartments of the independent e l e c t e d o f f i c i a l s
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' I n a d d i t i o n , t h e r e a h l a r e a r e a s i f i ~ e n n e ~ County
in
gover-nt
operated
-under--the d i r e e t i o h o f - t h e Courts, wwch, under prpvision of various s p e c i a l Pegis-'
-l a t i o n , ap/poifit a d m i n i s t r a t o r s and hundreds of o t h e r personnel engaged i n probation and qdrr$??tioq, as w e l l a s d i r e c t l y court-?elated work, operate county r o r r ~ ~ i o n a l '
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foregoing :chart V ~ O W S a l l - - ~ e l e c t i v e - p o s f t % o &
of ~ e n h e ~ COW
in
gpvand i t s curre&-organizational
s t r u c t u r e , A flve-page appendix t o t h i s :
r e p o r t U . m t l i n e st h e jjowers 'and d u t i e ~of a l l of .dhe 'various e l e c t e d o f f i c i a l s and
judges
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of Hennepkn County
- , gover&ent.
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-- Confusion
Diffusion
cases are, befng-beard_(as contrasted t o criminal, juvenile and family courtrooms, i;i'
& ~ i c ha *peace keeper" is c l e a r l y required).
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I n most of khese,,ax& o t h e r s i m i l a r type s i t u a t i o n s t h e r e i s ,no authzity-.
i n thei b q ~ t yBo,ard t o - e ff e c t the administrative !ref o m s decessary t o r e c t i f y t h e .
situation-and to e s t a b l i s h more efficient and b u s i n e s s l i k e procedures and arrangeT
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t o .the f i v 6 county Beard members and t h e 31 J u d g e s of t h e ,
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v o t e r s -now e l e c t a-,
- ~ i s t r i c t ,&unty Munic4pil1, and P r o b a t e Courts., i ~ i n t i e ~ County
C%g.y Auditor-, ~ r e a h r e eRegister of Deeds, Superintendent of Schools, Sheriff ,
:- :
public is .totally
.:Attorney,; -Clerk of Distriet
Couft, and ~ o u r ' ~
t ~ i s s i o n e r The
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c o n f b e d cby. t h i s p r o l i f e r a t i o n of of £icesJ on which i C i s asked t o - p a s s judgment. FO?
example, on ~ w e a ; b e r \ 8 , 1966, i n a d d i t i o n t o voting f o r Senate, Congress, S t a t e off ic e s , tyodupreme Court, Judges, l e g i s l a t o r s , , a D i s t r i c t Judge, f o u r Municipal ~ u r k : ,+dgea, and County Board ( i n two d i s t r i c t s ) , v o t e r s were asked- t o pass judgment
on t h e
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addition& e l g h t county p o s i t i o n s Q s t e d above.
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I ~ h e s ejobs v i a o u t exception a r e -very d i f f e r e n t from t h e j o b s of c a n g t e s s ~'
mcin, .!state l e g i s l a t o r s o r county board memberbi whose a c t i o n s and dec%sions a r e 05.
- s5puld be s u b j e c t t o p u b l i c scrutiny, . C e r t a i n 'of these jobs - 'Auditor, ~ r e a s u r ef t
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~&giziter.-of
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Dee&, Clerk of d i s t r k c t ' ~ o u d t- are c l e a r l y administrative o r m i n i s t e r i e %.-nature. Their perform>nee, while important, 'cannot be e v a l i a t e d Q a s Q n i f i & n t
p o r t i o n df t h e p u b l i c . me decisions which persons i n ehese- posiitions saake a r e ?ot
the:
kind which t h e pub%& Can.or. should i6e asked t o pas's on*
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b e r i n t e d d e n t bf Schools p o s i t i o n - a s i t has develc$ed i n Hennepin.
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no, longer Q ~- . l f i l l--a
s niieded 6unctton and, qhould be abol$shed .
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T h e m a i n work of thg Court ko&ssioner i n t h e commitment f i e l d is impor-;)
'specisliz.ed and reqbires p r o f e s s i o n a l background and experience. The' Prdbate - .
u r t , whi& . i s responsible. for- persons under guardianship, should provide Lor t h e ...
rmance of t h i s f_unction through appoiritment of q u a l i f i e d ~ e r s o n st o d k r e ~ tan&,take7 the d u t i e s .involved.
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. While t h e ~ h e hff i s t h e c h i e f ,law -enforcement o f f i c e r of t h e ' c p ~ h t y ,o h 9 ..
1-percentage of h i s employees a r e engaged i n iipoli.~&
rjark"
the maintdnihg o f '
--order. Rather, i n an 'urban (county i n whtch l o c a l p o l i c e .de'partpents f u p c t h
t a r e a s , tha q e r i f f 's main dirties have become thk provicbhng of s e r v i c e s
mai~L'
,
organization f o r s e r v i e e . p f
g t h e j?ik; a kgdio s t a -.
t i o n , a records c e n t e r ,
ce
is' pro'vided-\; "
apers, p r o t e c t i o n f o r courtrooms,, e t c . ~ i r e c t ' ~ o 1 i proteckion
only .in dutbying smaller non-urbanized a r e a s of t k e county; While t h e ~ h e i . i 6f ~ ' sSaw
e n t ' functions may grrjwi t h e q a n s i o n i s most l i k e l y to be $I s e r v i c e funcn s u p p o r t of l o c a r p o l i c e ; - invkstigatio?, detetkion, communicgtions, pol&ce
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r'@niiig: Whether dhe- Sh&i£f i s r e g a r d e d p p i ~ r i l ya s a lawman o r .as a p&?eyor of,
pecia2lzed s e p r i c e s , we s e e nij-reason t o r e t a i n $e S h e r i f f ' s posit30n''as-elebtive,:Ii
any 'more thah w e would expect th, p o s i t i o n 'of 9 munirip<l p o l i c q o r c o r r e c t i o n s ad- ,I
a t o r t o be _ e l e c t i v e .
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Pending pasfsage o l a C o n s t l t u t i b a l &end&nt t h e c l e r k of D i s t r i c t . c o u r t .
t i o n m&t remain e l e c t i v e , but t h i s ddes.:not preclude' $ e s t r u c t u r ~ q gof the'-fu&
ti'@> perfoi-med by t h i s o f f i c e , 9 t h thbse n o t dir'eqtlg c o G t r e l a t e a - b e i n g placed
under tHe Cbunty Manager and the c o u r t s records funCtions-being made !h'e
responsibilie o f t h e courts.- The judichary by law-should s e t the,CLerk'.~ s a l a r y and p r e s c q b e.-- h i s duties.
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- P G county ~ t t o r n e y ' s 'd u t i e s
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a r e many and varied. To t h e e x t e n t h i s func- '
'tion involves providing l e g a l s e r v i c e s t o t h e many a r e a s pf county g6veqf,~en_t,. he ' ful;
f i l l Z a s t a f f function. But t h e Attdmey i s a1so"~the
t h e la+er
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I county ,prosecutor
who p r o t e c t s and r6preseiats t h e public i n t e r e s t . ,, He convenes t h e grand j u r 9 he con-, ,
ducts i n ~ e s t i g a d i ~ n he
s ; is responsible f o r seeing-\ t h a t a l l e g e d Jaw v i o l a t o r s , includ,ink, on occasion, p u b l i c e l e c t e d ;;^other
o f f i c i a l s o r employee&, a r e , b r o u g h t t o . t r i a l , ;
..)
'As' W e county
o r "D.A.*' weL;b&lievethe Attorney should = p a i n e l e c t i v e .
However, t h e l e g a l a d m i n e t r d t i o n a i d s e r v i c e f u n c t i o k s.-l p . ~ l dbe .placed- i n the' h q d s
iof a s e p a r a t e ' appointed l a w y e r f o r .the
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requ&ed
positiofi.
of Clerlr of D i s t r i c t Cquft, t h e e l e c t i v e p o s i t i o n s
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of a l l of the' c u r r e n t l y ,independent o f f i k i a l s of t h e county should be .
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aboxished. The functions of t h e i r o f f i c e s (except i n t h e case of t h e Court G o y i s - s i o n e r function, which should come under t h e -$robate Judge, and t h e c o u r t s records '
function-of t h e Clerk o f f D i s t r t c t Couxt, which should be placed under t h e Courts a+d Cpusts Administrator) should b'e placed uzzder t h e d i r e c t i o n of the'County Board
and t h e ad;n*tratdve
c o n t r o l of t h e County Manager.
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Local Deoision=Makina Body
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A key i n g r e d i e n t - i n moder&i'in~ county govemmdnt i s t h e need t o pinpoint
' 'responsibility
f o r the p o l i c y decisions-necessam i n t h e : r e s t r u c t u r i & of t h e e x i s t ihp; functions of county ~ove-t
in'one e l e c t i v e bodyJ-,-the County Board - whiqk
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w l d ihen be d i r e c t l y 'accmnt&3~e t o t h e public f o r the perfo'rmance o f county gov' i erbment. / I n c o n ~ e c t i o nGith its t r a n s f o h a t i o n t o a county policy-makine b d y t h e
.Board shoul4. be $ q u i r e d ' tfo recede from i t 8 t r d i t i o n a l s t a t e - d e s i i n a t e d r o l e a s
-,th$ admin%strat$ve arm of W n t y goverdment.
The' demand f o r study, g o a l s e t t i n g ,
spa r e v i e d of county f u n c t b n s &'their f e s f r u c t u r i n g , ,along with t h e Board's onoi~g
'heed t o - c o n s i d e r t h e r e l a t i o n s h i p of t h e count$ and of its f u o c t i g n s t o o t h e r
els of goyernment and theirrfunc$ions, drill r e q u i r e a fulltime: well-paid County'
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l n c l u d e d i n \ t h e pd?rs t o beigiven to t h e County Board should- be i h e power
t o determine t3e year--to-year 6udgets of a l l a#eas of county g o v e r d t , t h e numb~r
0% personnel (except\, Judges) -yepuked i n a l l areas and depaytments of t h e county,
atxi power- t o set wage8 sad 'salaries\fpr a l l county employees (except ' ~ u d g e s ) With
f r e s p e c t t o tts c k i ' s a l a r i e s &d - t h a t of fhg e l e c t e d County P r o s e c u p r , t h e Board
h o u l d s e t sa$aries$ubject t o a 1egisfativeEy sat minimum, which,we b e l i e v e f o r
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t h e County Board should be i y t h e range of $12,000 - $15,000, iand f o r t h e P r o s q u to_r a t \ f i ~ a s t t h e a 6 u n t p f the c u r r e n t s a l a r y of. t h e County Attorney, $17,0QO.
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*limhiting'
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e l b ~ t 5 v eoffi c e s gnd ptnpointing r e s p o n s i b i l i t y
o f i c y making, reform and performance of county' goyernment i n one e l e c t e d board
t enough._ An _innovating p o l i ~ ~ - m & ~
and r e v i e d body performs a decisioning $unction. This fIfn~?t:un_shouldnot'be combined/with t h e executive o r admins t r a t i v e £unction which f o r lakg4 p a r t s of county government t h e County Board i s
eqbired by s t a t e l a w t o perform.
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Yet a s t r o p g , centra&&ed' executi*e-admini? t r z t i v e - f u n c t i ~ nis c l e a r l y
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toda*? and of t h e fukurt:
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llie following tiescription o f t h e County Board-County Manager s t r u c t u r e by
t h e National Municipal +ape 4s f u l l y subgcribed te by t h i s committee:
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. The County Board pOrf ormingA:
a deeisi&-making function must be complemented
'by a County\Hanaget w i t h 2 s t r o n g s t a f f - r a p ~ b i l i t t~o perfor& t h e P x e c u t i v e .administrative f u n c t i o n s of county go,vefiqent.
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robing, m u l t S f u n c t i o n a 1 gennepfn County government of
Needed.
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The fun+mtenta14rule f o r sound govem,ent is t o d l e c t poli!cy-makers and
appoint s k i l l e d a d m i n i s t r a t o r s and t e ~ h n i c i a n st o c a r r y out p o l i c i e s . I f
the -vpters don*t d i k e t h e poficies of t h e e l e c t e d o f f iclals, o r i f t h e
v o r e r s &jeet t o t h e way t h e p o l i c ~ e e sa r e executed, they can change o-.
fficials a t t h e next e l e c t i o n .
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"Yere-is where t h e county'manage~ p l a n comes i n perfectly. The v o t e r s
don' t have to' invest-iga& and compare t h e qualif ica$ions of t h e - candidates
f o r t r e a s u r e r and assessor and eQht o r t e n o t t e r o f f i c e r s . They sintply
mark,their, choices &r county commissioners - a n d county-judge and grosecut+ng a t t o r n e y i n s t a t e s where t h e e l e c t i o n of such o f f i c e r s is reduired.
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"The county cgmissioni5irs carry on from this point. They M r e an e x p e r i - ,
encedyman f o r t h e jbb 03 county manager. He i s chosen on She b a s i s of
t r a i n i n g and a b i l i t y , , without regard t o p o l i t i c s . It is h i s responsibil i t y t o pick q u a l i f i e d people t o do t h e county's work. For example, he
,w i l l hiye-itkose who h a a l e fdaance, records, assessments, public works,
public s a f e t y , l a w , welfare.
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"If the)county+nig,+rpicke a b l e people ind does h i s own job w e l l , t h e county cdnrmissioners w i l l ' keep , h e on t h e paSroll. I f g e btmgies his- job,
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he w % l l be '.fjred f9 rthwi t h ,
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virtu; of t h e county'kanager plan is t h a t t h e mini&umber of
u a l i f i e d peopxe i
; h i r i d t o conduct t h e county's b u s t w s s The taxpayare ,not p b i i g a k ~ d t o spknd unnecebsary thousand* of d o l l a r s t o f i l l
eleciiivii-offices t h a t s e r v e no 'useful purpdie. ' h e taxpayers a r e n o t
penalized f o r t h e costljt blunders of unqualif i d - o f f i c e r s , nor f o r t h e
' waste r e s u l t i n g - f wm Gacoar4inated andl unplanned- a c t i v i t i e s of k p t y _iqdeperident off i c e s and ,boards, )
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Of c o u r s e *he county manager p l w does more than eliminate o f f i c i a l dead- -'
wood. I t _ p r o ~ i d e af o r b r d e r l y , i n t e l l i g e n t g p e i a t i o n of t h e public 's bus in q s . Overlappxng f h c t i o n s and j b r i s d i c t i o n a l c o n f l i c t s a r e abolished.
Buck-passidg doesnlt,work. - A l l r e s p o n s i b i l i t y i s placed on the- shoulders
of 'one executive, t h e manager, whose performancef cat)
e a s i l y be judged by- ,
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r s the publio. "
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Budgetar$ p r b c ~ u r e smii review w i i l consme a major ~ h r t i o nof t h e e f f o f t s
of t h e Board and'of the Hanager and h i s s t a f f . Tb fu f i l l a s t r o n g budgetary r o l e
i t w i l l be ' , n e f e b s a a fo r t h e ~ o h r dt o provide t h e vanage= with managhent , F a l a i n
t h e form -of e cornpktent *nerd. ; a d m i n i s t r a t h e s t i f f f , includfng t h e a b i l i t y t o per- 5
I form ongoqng., -in-depth rbiiew of t h e many bperatibns of cognty government. A buJget
process and timetable providin%'f o r c l h s e cooperation by, t h- e ?+nager,and h i s s t a f f
w i t h t h e reorganized depart&ents i n b u d g e t preparation and review,'sufficient time
.for p r e p a r a t i a n o f , , a ;proposed o v e r a l l county budget by the .Manager and f o r hearings
and' 'review by t h e Board should -be evolved. -,
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IB t h e - c u i r e n t s i t u a t i o n i n fiennepin County with t h e unparalleled growth
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of t h e county and its govegnment; t h e t r a n s f e r of new and expansion of e x i s t i n g
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<£unct.Iona, t h e negg f o r r S s t r u c t u r i a g and modernization, and he need f o r t h e county
.- t o cooperate w i t t i ' a& relate t o t h e n i ~ n i c i p a l ,s t a t e and metropolitan l e v e l s of govi
ernment, t h e r o l e o f , t h e 'Couniy Board and County Manager as innovetor: ceinnot be overemphasiaed. The Manager should-be required by l a w t o submit yeariy,reformproposals
ti t h e County B o ~ r df o r t h e i r study land action. His ,office should have t h e cap_abili t y , i n addf ticm to providing, far r e s t r u c t u r i n g and eooxdiqat ing t h e operations of
' county g o v e r m ~ n ht e r t h e p o l i c i e s of t h e - ~ o a r d , t o candact studie* r e c o ~ e n d e db y
t h e Board, by t h e Legislature, by i n d i v i d u a l o r groups of m i c i p a l i t i e & ~ o rby c i v i c
organi2ations ;(s<bj e c t .to Board approval)
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The County Board should-be required by l i w t o r e p o r t p e r i o d i c a l l y and ind e t a i l t o t h e public and t o t h e L e g i s l a t u r e on +mportant m a t t e r s , such 'as developmenf of county c a p i t a l yprograms i n such arZas a$; highways, l i b r a r i e s and ,county
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buildings, on poskib'le cooperative programs with , t h e u d n i c i p a l i f i e s , on questions of
new govern-ntal functions-r~hich might be performed by Hennepin County, a n 6 b n t h e
need f o r - l e g i s l a t i o n r e l a t i n g t o Hennepin C o h t y ; TheiCounty Boar&,should a l s o be
required by l a w t o h o l d pub$ic"h$arings and t o take a c t i o n on aZ1 recommendations
contained b t h e yearly r e p s t !to th'e Bdar& by t h e County Manager.
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The legis'lation providing f o r a CountrUanager and redefining t h e r o i e of
t h e Cwnty Board should be brda* enough i n scope t o give t h e Board and Manager power
t o consolidpte adminlsQrative and o ~ r a t i c t n a leonfro1 ~f s i m i l a r funct3ons regardress
bf whdre t h h t control inay now r e s i d e . For example, tKere ghould be j u s t one probat i o n off i c e , probably coordinated with t h e c o r r e c t i ~ n ~ ' i n s t ~ t u t i o nnot
s , two sepaf a t e ones as now. ~ i G i l al y , t h e Clerks of' Cqurt functions (should be r e s t r u c t u r e d ,
with t h e non-judicially re a t e d functions of t h e Clerk of D i s t r i c t Court (a&riage
l i c e n s e d , e t c ) placed under t h e Corjnty ,Board bnd- Manager, and the c o u r t s records,
f unctjon consolidsted under//the Courts A4ntinistrator. 1 - ,
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The Courts ~ d m i n r s t r a t o rfunctipn, k i n l . ) : concerned with calendar matter$, 1'
process, and t h i s func'schedblink (of j u r i e s , 'etc., d i r e c t l y relates' t o ' & & judic
; but, as previoilsly
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t i o n should 1cYeagy be r e t a i n e d undek thef ~ o n t m fof
recd&ded
,by t h e C i t i z e n s League, t h e Courts Admiaistrator showld serve - a l l g f t h e
c o u r t s , -not only 'the D i s t l ' i c t Court. I n recommending t h a t t h e c o u r t s records fufic,tion of t h e Clerk of Court be placedc/in t h e C o u r t s Administrator responsible t o t h e ,
j u d i c i a v , w e be1,ieve t h a t t h e law,&h$ld provide t ~ a recoaid
t
keeping, micro£ ilming
methods a n d , technidues be stan&"rdized and coordknated ~ 4 t ho t h e r county recordkeeping opewtctons.
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case of-county i n s t i t u t i o n #
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I n the
functions
t h e j a i l c u r r e n t l y under
t h e S h e r i f f , t h e J w e n i l e Center, t h e Boys snq-Girls -~o&es ;under tbe Judges, t h e
workhouse i f t r a n s f e r r e d Ci we^ b e l i e v e t h a t reform l e g i s l a t i o n should belbroad enodgh -.
i n scope . t o allow c l a s e koordination i n the,,adminis$ration of pome o r a l l of t h e s e
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i n s t i J u t i o n s a s the County B q r d may determine. They *auld be administratively and
understand f u l l y the' l e g i t i m a t e '
o p e r a t i o n a l l y re$onsible to_ t h e County Manager.
operation of t h e Department of
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o r t h e Judges $e €these o p e r a t i o n s and i n
'courts Services, which works c l o s e l y with t h e c o ~ r t s ~ a nt hd e Director of which i s
-cul;rent* responsible t o ' 8 c o m m i t t e ~of D i s t r i c t Coukt Judges .' With t h e advent of
t h e new qounty m e r i t p e r a m e l plan,'personnel of t h i s depar$ent and of t h e i n s t i ;
t u t i o n s ( k e p t t h e jail) w i l l come .%nder' t h e county personnel board and) c 6 n t y per=sonnel direotor under t h e Cqunty Board. Cou=ts ,Services is a'$2 m i l l i o n dozlar plus
operation with neqrly 250 e&iloyees. Oe see l r t t l e reason Qhy judges should be
But judges
kesponsibJe f o r t h e operations of t h i q department bT of t h e ' i n s t i t u t i o n s .
should have,-a, ueanirQf$lrole t o pl&y i n policy -decisions r e l a t i y e t o t h e s e functions.
Thus, a , p l a n dhereby a committee of judges would make recornendations ,Lo t h e County oar& on,polici'es r e l a t e d t o these functions'and qn- h i r i n g o r r e l i e v i n g t h e 7 D i r e c t o r
of Court Services appears d e s i r a b l e . j we would e n v i s i p . thqk operation of parole,
probation, and t h e i n s g t ~ t i o r f s( w i t < the-possdble exception of t h e j a i l ) should
proba+ly,,come qnde\r t h e Director of Courts Services, with administrators i n t h e s e
a r e a s r e p o r t i n g t o t h e Director o f Cpurts Send-ces and he i n t u r n r e p o r t i n g t o t h e
J.
County
Manager.
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While t h e L e g i s l a t u r e s6buld no longer s e t khe b i e n n i a l money appropriat i o n s ~ P Tcounty' functions, i t should r e t a i n j t s power t o determine what f u n c t i o n a l
a r e a s i t h e c o u n t ~ 3 h a l land sfial? not engage i n , a n d - t o approve t r a n s f e r of functions,
s e r v i c e s o r f a c i l i t i e s t o o r from Eiennepin Caunty govexdent.- Thus, t h e county would
, n o t be given so-called f u l l home r u l e powers under t h e proposgd l e g i s l a t i o n , b u t
would be given administrative home rule powers'.
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I n &npepid-County we have A d doubtlessdwill continue t o h a ~ gar e a t manyu n i t s of municipal government,.-many s o small chat 'it $ s z d i f f f i c u l t o r impossible f o r <
them t o provide adequately e y r t a i n irnportabt l o c a l s e r v i c e s . A s count -gove&ent is
modernized, i t w i l l be i n , a b e t t e r p o s i t i o n t o p w v i d e on a voluntary nd 'contractual
b a s i s c e r t a i n s e r v i c e s t o l o c a l government. S q i l a r l y , l a b e r m u n i c i p a l i t i e s might
be--i n a p o s i t i o n t o perform some c6unty functions, f o r example snow-.plowing or main1
tenance of county roads i n conjunction d t h l q c a l performance of t h e s e functions with
respect t o l o c a l - ro.adsi
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There ought t o be l & a l means whereby. tolupkary lcontrac5ual agreemeats
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betdeen m u g i c i p a l i t i e s 'and t h e county can $e 'encouraged.
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I n i t i a l l y , the $unctionel a r e a s i p which such c o o p e r a t l ~ n ~ w g u ltake
d
place
h o u l d 'be' those..- sudh as rdad maintenance, snaw,removal, aspects of law enforcement,
etc.
i n which both t h e county and municipalitiesLaperate o r have t h e l & a l power
t o perform. But, because Minnesota c o u n t i e s , including F~nnepin, have oqly very
lfxqited powers, problems w i l l ,4kkqe i n f a n c t i o n e l a r e a s i n which valuntary, cooperative-, mutually benef i e i a l agreement; dou1.d $e wurked o u t between+unicipalities and
t h e F u n t y , but f h e l e g a l i t y might be queitioned on t& grounds of t h e county's
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legal-power t o perform o r provide a goverrlmelrtal s e r v i c e . I n t h e s e / s i t u a t i o n s w e
i e ~ i e v et h e L e g i s l q t u r e should give, c a r e f u l consideration t o v e s t i n g t h e county w i t h
power t o perform and c a r r y o u t - a prg'sed c o n t r a c t 4'n';selected f u n c t i o n a l 03 s e r v i c e
a r e a s when one o r m o r e m i c i p a ' l j t l ' e s 'represenking 2 5 , 0 ~ 6o r more persons and t h e
>c&untyv o l u n t a r i l y -agree on a plan f o r t h e coungy's piovidipg t h e service.
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I n t h e s e ways, without e s t a b l i i h i n g &w&pin County as a g e n e r a l purpose
*government with powerg t o perform z l l services,and functions of government, the,
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L e g i s l a t u r e c ~ u l d ~ ~ r a + neverthel6ss,
~de,
f o r flexible, arrangements under which t h e
c o h t y could v o l u n t a r i l y &operate with l o c a l areas without many of t h e e x i s t i n g
r e s t r i c t i a n s of s t a t e law-*ich
apply t o counties.
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COMMITTEE MEMBERSHIP AND SCOPE OF ACTIVLTY
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I n t h e f a l l of 1965 t h e Citizens League Board of ~ i r e c t o r srecdme9ded t h e
establishment of a committee t o study t h e s v c t u r e of ~ e n n e p i nCounty government,
and 'charged t h i s comhittee' specifically t o "review t h e present s t r u c e u r e of Bermepin
County government and make f i n d i n g s and recomnaendatians on changes-which may be need-.
ad." The Board' observed t h a t Hennepin County has developed i n f o a - c h i e f l y utban
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miilr-ty-twor~itizens League memb=rs have a c t i v e l y p a r t i c i p a t e d - i n t h e d e l i t h i s committee,, which held 24 meetings, s t a r t i n g o n ~ e p t , e & b e r30, 1965. '
Jamys L, Hetland, Jr., a profeqsor a t t h e Law School of t h e U n i v e r s i t y of Minneqola,
chaired t h e px.umittee, w i t h another lawydr, Tau1 Van Valkenburg: s e p i n g T q a i c e chdrman. Committee members included : Richard 1 Bardon , Ralph N. Bearman, Pwrence
Benaon, N r s Nicholas Duff , Harry F i t e m a n , Richard W. F l i n t ,-W. E. Fren3e1, ~ r a F k
' J. Grahan, Jr ,,Dr. K r y o f e r Hegen, James U & h , Robert Jgcobson, Roger T.- Johnson,
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W i l l i a m V. ~ a h r i ~ ~ Raeder
r s .
Larson, Wallace E. Neal, Js., Donald T. Nightingale,
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Ghar3es Nungesser , dames E. OtBrien, Kenneth E b P e t t i j o h n , T. K..Riddiford;
S i t t a r d , Eugene Sloan, Alden C. ! k i t h 9 Edward -3. R. Smith, H. 0%.sogardJ, ~ames'sokm,
Arne Schpeller
% t e p h h 8, Solomon, Arthur J: Stock, Q e t e r Weiss9- and Paul Wilsou'.
of t h e Cit%zens League s t a f f a s s i s t e d t h e c d ~ t t e e ' .
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\Many menbers of t h e committee 'have p a r t i c i p a t e d ) i n previous C f t i z e p s League
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s t u d i e s o f various a s p e c t s of Hennepin County government. Some 'of t h e , c o d i t t e e m e w ,
b e r s a l s o a r e o r have been e l e c t e d OF appointed o k i c i a l s or-employe&s ~f t h e county4
or o t h e r l e v e l s of goxernment.
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The commitwe did not sit u d y and does .not purport :to-have skudied i n aay de-,
tdl >he) operations of p a r t i c d a r departments o r pf fi'cials of Hennepin Xounty )govern- ment.
The c o p i t t e e s t u d i e d and r e l i e d on s + r a l
recept. ~ i t i l b s
League r e p o r t s
,
covering
p
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t
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l
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r
asppet
s
of
J3&nnep
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c&ntyJ
government
and
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s
operations,
and
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c - m i t t e e membership included persons who parxicipated i n k11 of tkiese s t u a i k s . The
--testimony of a number of county of f i ~ k a l sand o t h e r experf s i n c b u n e ' gov+!tlirnent who
aspeared-before g p r e v i o v C i t i z e n s League grouFstudying ~ h need
e
f o r a county home
r u l e c h a r t e r , a s containea i n the, d e t a i l e d thinuqes s f t h a t committee's d e l i b e r a t i o n s ,
\was s t u d i e d i n d e t a i l . I n additio*, selSc\ted ( o f f i c i a l s and o t h e r e x p e r t s , on Hennepin
b e f o r e t h e committee i n c&mectien with its long deliberaCounty goveFent+aPpeared
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These persons included : & b e r t Janes , Chairman of t h e ~ e n n h p i n~, i h m t y
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Board Richard Hansm, a ?kember of t h e ~ o a r ;
d Stanley Cowle , Cou& purchasing Pgent
and Budget Director; Jame's J. 'Dalglish, county and c i t y o f f i c i a l Yrom S t . Pqul; b y rnond T. Olsen, S t a t e Planning D i ~ e c t o r ,and former Bloomington $i$y Manager ?and P r e ~
s i d e n t a f t h e League of Minnesota Munici$alitiesj, Harry Newby, a j c o u n t y , o f f i c i a l ~ f r ~
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Carleton County; r e p r e s e n t a t i v e s f roril. t h e - D i s t r i c t Court bench and- Court Services de*
partment; and ,Walter C. kacobs, pres$d&t. bf Space Utilization'Aaalys.$s, Inc., wh*
- -is i n charge of f h e comprehensive study of goyernment s t r u c t u r e and county b u i l d i n g "
space needs and was employed by t h e County Board i n DecembCr, 1965,'ta conduct t h e
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Hennepin County study and r e p o r t t o t h e County Board.
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Following pyeparaqion of our prelimiqary Findiqgs and RecomindaMons they
, were s e n t ' t o a l l e l d c t e d o f f i c i a l s and judges of Eiennkpiri County- for, t h e i r ' review .J
A l l were given
an opportunity t o r e a c t o r a l l y o r i n w r i t i n g t o t h e- committeq,
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I n a y t i o n t o studying t h e e x i s t i n g s t s c t u r e o f govemmbnt i n b ~ e p i n
- County and some of t h g l a w p e r t a i n i n g t h e r e t o , t h e committee sp@2 -exte&ive time
considering counhy government s t r u c t u r e i n vaFiaus o t h e r l a r g e ~ ~ ~ < ti n
i eMinnesLot,a
s
.and i n thq Uqited ~ t a t e s ~ ~ a r t i c u l acounties
rly
t h e government structures-of which
have been reformed i n r e c e n t y e a r s t o provide f 0 r . a "county ?anage> s ~ t e m ' f . Thhi
~ o m m i t t e econsidered e s p e c i a l l y t h e r e s p e c t i v e r o l e s of t h e c&ntp Poards ar; o t h e r _
, p o l + ~ y ~ ~ a bodies
k i n ~ a& of t h e ,manager i n these couaties, k s r e f l e c t e d i n pertinent:
. / laws and jn c e r t a i n published m a t e r i a l , p a r t i c u l a r l y t h a t s f t h e ~ a t i o ' p lbiunicipal .,
' \ League, which has prepared e x f e b i v e informatioh on saws and c h a r t e r s r e l a t i n g t o ,'
county government s t r u c y u r e throughout t h e country. < ,
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Recommendations P e r t a i n i n g to Hemepin d d r t n t ~c;obesamentbA
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, I n c a r e f u l l y review& t h e &ndifi& and r6come1id~tioos of p r w f o u s
zens League commitfeas, t h i s committee spent considerable time :consWering the
approach t o ref or^ of llennepin County government ?icomoendefl by a d i t f z e m . league,
cdmmittee on county home r u l e , which was( adopted' b k t h e ~ i t i z e n s ' L e a q e Boa& on
- Nyvember 4, 1964. This r e p o r t recornended an approach requiring'legi&etibn
t o pro<
Tfide f o r \ t h e establishment of a county c h a r t e r commis@a,p which would ithen, a f t e r ,
study, recommend a s p e c i f i c fqrm of home r u l e c h a r t e r f o r btlnypin ~ o y h t y ,a i c h - t h e
~ e ~ i s l a t u would
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probably r e q u i r e t o be approved~byt h e v o t e r s of Hed&pin,County.
-' , While subscribing completely- t o t h e d e f i n i t i o n of t h e goverpmenf- s t r u c t u r e p r o a e m s
i n t h a t z & o r t , t h i s xommittee has cGme t a t h e conclusion t h a t th8 most workable
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%cans of e f f e c r i n g r e f o m i n t h e e x i s t i n g s t r u C t u r e of l i e r q e p e County
would be- through t h e passage of s p e c i a l l e g i 5 I a t i o n sqeh a s wq have
t h i s qeport
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The committee a l s o studied and consdd&ed t h e findings,and r b c m w e n d a t i ~ ~
of o t h e r ;ecent Citiaens League r e p o r t s involving c e r t a i n aspqcts of hkmepin ~ a u n t i /
- ( government. These repq;ts recommeeded such & t t e r s as t r a h s f e r of t h e ~ i n n e a p d l i s
Workhouse t o county ,ju.ri-isdictioq t b e consol&latioh 3 f t h e -now s e p a r a t e C i q and
)
coundy)
County ' J a i l s and' con2 t r u c t i o n of a new f a c i l i t y under t h e j l l ~ i s d i c q i o r 'of-he
t h e &ringing of a l l cognty_personnel4?cluding those of t h e now"indepeng6ntly elected1
o f f i c i a l s under t h e coverage of t h e Count$ W t i t - P e r s o n n e l QlaEil,a County^Assessor
l' ' f o r Hennepin Coungy , and implementatiad of remaining - i e c m e p d a t _ i p ~ sof t h e January
13, 1965, C i t i z e n s L e a w e r e p o r t which urged consoligation of cburtroom functions
and reform of t h e system pnder which criminal and t r a f f i c y a r r a n t s ard,served i n the
- county. - I n a d d i t i o n t h e 'committee eonsidered'the?extensive work and d a t a of a C i t i zens League Committee on County Space Meeds, which m e t over 50,timbs betweexi 1964
and-e a r l y this year, e u d y i n g - k q d i v i d u a l count f u n ~ t i o n s .
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The Functional Approach to- Red t r u c k w i n g ~ o & t yG o v e r m e ~ : t ~
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T h i ~c ~ d t t e and
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o t h e r C i t i z e n s ~ e H ~ ucQmmgtteei
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which have b e e n
studying various a s p e c t s of Hennepin County government have heard extensiv&ly
from M r . Walter Jacobs, whose org&ization, S. U. A., Inc., h a s been under
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c o n t r a c t w i t h t h e County Board. Iri- a d d i t i o n , previous r e p o r t s of t h e C i t i z e n s ~eag&e
and minutes of C i t i z e n s League-committe.gs concerned wiEh cbutity matters have been
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made avaglable t o M r . Jacobs and h i s stGdy team.
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The aQproack taken by t h e Jacobs study hits been one of aqalyring t h e
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f u n c t i o n s of Hennepin County government, including, as w e have not i n t h i s study,
new f u n c t i o n a l areas which Jacobs b e l i e v e s could and should be undertaken by Hemep i n County governmbnt. Thus, upon Jacobs' a n a l y s i s of e x i s t i n g - a n d of a d d i t i o n a l
p 3 s s i b l e county f u n ~ t i o n s ,his' team is now about t o r e p o r t t o t h e Count3 Board on
plan f o r t h e stm.cturing on what he believes- t o be 'an e f f i c i e n t and wbrkable manne
of' t h e various f irnctiops, ashtning t h e County Board is l e g i s l a t / i v e l y empowered tq,'
rearrange. and r e s t r u c k u f e e x i s t i n g county functions ,.-and a l s o assuming tb> th&
L e g i s l a t u r e a t t h e upcoming 1%7 o r subsequent %ess%onsallows Hennepin County t o
move i n t y various functional, a r e a s wtiYkcht h e ~ a c o b sstudy recommends a s being (necessa'ry o r desi$able t o have placed a t .the county l e v e l - such functions aq county
p l a k i n g a,&
a department of business development, f i r e i n s p e c t f on_\ s- e r v i c e s , a s p e c t s
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of d&w d o r c e m e n t and p u b l i c s a f e t y functions, e t c ,
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While t h i s c o w t t e e has not been'darged with and i s _ i n t h i s study tak$
/no p o s i t i o n on assun(lptior) by t h e c o u r ~ yof a d d i t i o n a l functions beyond those such
t h e jail and t h e c i t y workhouse, whic! t h e C i t i z e n s League h a s p r e v i o u s D r e c
be County functions, we a r e convinced t h a t t h e approach we have, used i n thSg s
:which is also t h e (hpproach use3 by SUA, Ine., of thinking i n terms of f u n c t i h
of- providing f o r t h e administrat-ive grouping of r e l a t e d functions on a c o o r d i ~ p t
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basis-, if's soulyd,
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Thus, i n \the p a s t w e have urged tfie c r e a t i o n of a c m s o l h l a t e d county '
m&&
personnel system t o cover employees of all departments and a r e a s 03 countf '
government; w e have urged t h a t consideration be given 'to-coordination i n t h e adm
i s y r i n g of sob& of t h e c o r r e c t f o n a l i n s t i t a t i o n s operdted by-the,~county; we hav
upgeged t h a t responsibility 'for t h e v a r i e u s l u n c t i o n s perfonbed i n t h e c o ~ r $ r o o m ~ a s
s e r v i c e s i$ support 6f t h e j u d i c i a l f u n c t i o n be v e s t e d , - i n one place, etc.
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W> have d e l i b e r a t e l y i n t h i s s $ d y r e f r q n e d from making s p e c i f i c recom' m e n d ~ i o n sy i t h regard t o t h e much-need5d redrrangement of functions which a r e cu
- r e n t l y p e r f o w by t h e county, The b a s i c e x i s t i n g problem stems~from;tfhef a c t
t h a t s t a t e law l a r g e @ precludes t h i s type o f m o d e r n i z a t i o n &d r e s t r u c t u r i n g of
e x i s t i n g f u n c t i o n s and s e r v i c d ,of c&ty gov-ent
b e c a u s e i t does not provide
f o r art,overall policy and decision-making a u t h o r i t y a t t h e county l e v e l , 'and i t
not provide ,fo<aiene'ralized adm3nistratFon of t h e many functions and 'serrr$ces n
b e Q g provided by Hennepin County gcjvemment. 8n t h e contra*,
i t s e t s out
wha
uff b d a l o r o f f i c e ' s h a l l perfolpl what s e r v i c e s and functions.
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W e b e l i e v e $ t is, high l i m e t h a t t h e County Board be designated t h e policy'decision-making a u t h o r i t y i n county, government and t h a t i t b e given t h e responsibil i t y qnd t h e power t o ma+ t h e decisi8ns on precisely how e r F h t i ~ gCounty government
' s h a l l be modernized -dnd reorganited. I n a d d i t i o n t o gsving t h e e l e c t e d coupty board
t h e s e powers and r e s p q n ? , i b i l i t i e s , t h e l e g i s l a t i o n should provide (for t h e s t r o n g
appointive p o s i t i o n -6 County ~ a n a ~ as
e r we-have &commended,
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It would 'be unwise, and 'we would not,reco&end , t h a t t h e l e g i s l a t i o n go
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a c t u a l l y d e t a i l 'any specific' p l a n f d t~h e y e s t r u c t u r i n g oE-the & t i s t i n g
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f u n c t i o n s of Hennepia County gdireryuent-. Such a h attempt would, now o r i n thef u t u r e , tend t o c r e a t e t h e very i n f l e x i b i l i f y i n county government whfch es~sqs
under c u r r e n t provisions of state law. 'we are i n a f a s t - c h a n g i n g ' s i t s a t i m i n whi
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t h e f u n c t i o n s and r e ~ ~ b n s i b i l i t i -eoef county gave-ent a r e r a p i d l y i n c r e a s i n g , r e v v
l u t i o n a r y ne'methods of record keeping and ,&nforroation c o l l e c t i o n -and-,disseminatihn
\ -- a r e a<ai.labl,e t o g o w n m e n t , and it,/is d i f f 4 c u l . t I f not impossible to' a&cipa+e, a t
any one,-time t h e b e s t method- f o r t h e county to e f f e c t i v e l y , c a r r y o u t i t s r e -s p o n s i ~ . ~ -:
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Jity, a t soine f u t u p -.date i n time.
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- Thps, t h e doyqty' Baatd and the County Manager should'$e given t h e \po
and l r e s p o i i ' b i l i t y between them, not only t o :rearrange And m o d e h e cotdty ' g
ment as we kaow i t today, b u t a l s o t o make changes as,, 'on g h e -b a s 8 o f study a
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they 'appear &dsirabl=,
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Court Related ~ u n t r i q n s ,
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Study of s t r u c ~ u r e ~ w i tregard
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t o t h e 'judicial f u n c t i o n s no& perf orme
t h e codnty ~ u n i c i p a l ,D i s t r i c t a n d ~ l r b b a t eCourts
whether, f o r example, &he
should be meged
i s beyond t h e scope of the charge t o t h i s committee. I&?&?
have bad t o consider, s t r u c t u r e q u e ~ t i o n swith,regatd t o a number of funccio
a w c o u p related,d,either
a s i n tfie case ?f-court recofds, courtroom+ers
epc.,- s e r v i c e functions f o r t h e c o u r t s , o r
a s i n t h e c a s e of firobatisn
ahd t h e c o r r e c t i o n a l i n s t i t u t i o n a , functions v h i c h a r e c u ~ t l undef
y
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directqon and o p e r a t i o n a l e o n t r o t of t h e coutts.. Our f i n i n g s and recomm
- on tmesk functions are/20ntainqd i n &e f i r s t s e c t i o n s of! t h i s keport. 'Be
t h e need f o c t h e L e g i s l a t u r e t o d e f i n e which of t h r e f u a c t i a n s s h w l d \ b e
-primary
policy c o n t r o l of t h e c o u r t s and which und'er t h e County Board,--th
a r e considered i n more d e t d d l i n a s e p a r a t e ssbsection o f t h e Discussion '
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recomended a s t r u c t b r e o r framework which we b e l i e v e w i l l G l o w
Thxs' ~ r ' ki
w i U proceed i n connec'tion with ongoing study by t h e County Manager arid h G s - t a f f ,
and by o u t s i d e 'Consultants h i r e d by t h e County Board f b i s p e c i f i c s t u d f e s at, Y&AQUS , CJe have
l?e ongoihg improvemenf and modernization of Hennepih County .gover&nt.
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We shoukd e ~ p h a s i i eth'ht we do
bexieve t h a t i $ e v e s t $ , h of p a r e r a n d . :;--;
i n t h e Board and iii~
ths ~da&&ra s we
reconmended ~06113piace:,&
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' ,m~chpower i n t h e s e p o s i t i o n s . Under , these recommendations ithe wdrk and'pfogreq.~:of
t h e Board and of t h e Hanager i n r e s t f u c t u r i n g and.-modeinizing gover&entlwilf Come *'
u n d e r c d s publih
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s c t u t i i i y bec,ause{of t h e pinpointing,of pthority;&<d =espohib$- . !
l i t y i n one e l e c t i v e body suppdrt&d by an apeoint-ive Manager with a ,sfrong s t i f f . y
c a p a b i l i t y . As t h e Mahager and c d n s u l t a n t s h i r e d . b t q e Boara h k e s$ecific r e c b p k . .
miendations f o r changes ' i n cpunty government, t h e s e recomme$dations ' w i l l be a v a i l a b l e
fok c l o s e study by t h e - p u b l i c , . & d - c i i i c &roups during t h e period. theyfdre being con- -I
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s i d e r e d by t h e county b l r d : 'in& p r i o r
actio-being
taken by t h e county ~ o a r d .
Furthemore, t h e r e s u l t s , good o r b a d d f t h e moves take* by the ~ k g e c a n dt h e
- i,
Board t o change and improve county government w i l l
s u b j e c t tg ' t h e - > c r u ? d n ~of t h e /' ;
~ u b l ) i cand c i v i c kroups-. Thus, t h e public may -judge ptogress- o r la& of progress
,..,
[ and, w i l l be i n a p o s i t i o n ; t o r e f lecf a t t h e p61ls t t s s a t i s f a$$On o r d i k s a t p f action
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DISCUSSION OF FINDIKC-S, CONCLUSIONS AND RECOMEIENDATIONS
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W e b e l i e v e t h e f i m e is r i p e f o r ;enactment of s p e c i a l 1egirsJatkon providi n g f o r t h e modernizing and r e s t r u c t u r i n g of Hennepdn County government at? we have
bcommended above. There appears t o be reco&h.tion
and understanding o f tpe n a t u r e
of t h e problem among persons-whogre involved with kounty government i n a12 o f , t h e
key a r e a s where understandfng is'ne2essal.y f o r t h e acc~mplishmeatof major reformJ
Hemepin County l e g i s l a t o r s understand t h e problem. Preqentc County ~oard-members
u n d e r s t a d t h e n a t u r e of th, problem aod appear to be generally agreed on b e type
Even t h e independent e'lected o f f i c i a l s themof approach which should be' t&'&i,x
s e l v e s .have markedly changed t h e i r #Asition i n t h e l a s t s e v e r a l y e a r s with v i r t u d l y everyone of t h e &dependent e l e c t e d o f f i c i a l s i n a conqested r a c e i n Ibve'mber,
1966, caqtpaigning f o r reforms along %he l i n e s w e have outlfned i n t h e recommenda,
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t i o n s contained i n t h i s r e p o r t .
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I t - i s s i g n i f f c a n t t h a t no 6ne has argued f o r complete h o e r u l e powers f o r
Bemepin County government a t t h i s time, I n o t h e r wo+s, no one fs saying t h a t t h e
County Board should take over t h e , r o l e . s f t h e L e g i s l a t u r e i n defin&g what functions
seem t o agree t h a t t h e s e major ,
and s e r v i c e s I l e m i p i n county should provide. @ldecisions s h w l d be l e f t with t h e L e g i s l a t u r e And t h a t it should keactTt o proposals
from She County Board, f ram t h e C i t y of 'Mnneapolf s , from suburban comunit-.fes, As -.
w e l l as from thg HennepAn County ~ e a g g eof Municipalit i e s i and from otCer groups a s
t o p o s s i b l e t r a n s f e r s o f ' f u n c t i o n s and s e r v i c,
e s t o o r from Hennepin County. -,
- But,, t h e r e a l s o a p p e a h tp be wide f e e l i n g t h a t , u n t i l county government
c2m be streamlined with padicy and deZision-making a u t h o r i t y f o r e&sting funcNons
and s e r v i c e s placed i n one body, t h e County Board, and s t ~ o n ga ~ n i s t r a t i v power
e
over county f u n e t i o n s , responsi61e t o the\Board, placed i h a County Planagsr, t h d '
L e g i s l a t u r e should consider only with t h e 'utmost c a r e U a y f e r ,of a d d i t i o n a l semiice
,and f u n c t i o m l - r e s p b n s i b i l i t i e k t o t h e ' county.
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The L e g i s l a t u r e apd-Hennepin County Government
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- Since t h e pr&ary
function of t h e L e g i s l a t u r e and .dts members is, o r
,
sdould be.-\,the s o l u t i o n of s t a t e problems, through t h e enactmeiit of statewide l e a i s - l a t i o n , thh l o c a l county problems which must come before t h e L e g i s l a t u r e i f twey Are
t o be solved a r e of-ten regarded a s an intrusio'n on l e g i s l a t i v e , t i m e and a t t e n t i o n .
County problems, housekeeping a s w e l l a s major problems, such as county c o u r t s o r ,
h o s p i t a l s , must be presented t o t h e l e g d s l a t o r s during t h e midst of a busy l e g i s l a .
a i v e s e s s i o n . Thus, the l e g i s r a t o r s w i l l be t r y i n g t o ;cmsjder'such matters a s whether o r not Hemepin County should be permitted t o e s s g b l i s y a c e n t r a l mobile
equipment d i v i s i o n , or how b i g a monthly allowance t h e Hennepin County Surveyor -:
(should r e c e i v e f o r t h e use o f , h i s own automobile, a t t h e s a m e f i m e t h a t they a r e <
,
wresxling with s t a t e f i n a n c i a l problems, problems of support f o r education, and'
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o t h e r statewide matters. I n s h o r t , then, t h e s e l o c a l county i s s u e s , t h e major ones'
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a s w,ell as t h e housekeeping matters, ,dten.do not r e c e i v e as much' consideration a s ,
they deserve. I n / t h i s ,,setting, and when any change i n t h e o p e k a i o n af cbunty government can be blocked by a handful of l o c a l legislators,"meaningful reform has been
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achieve.
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I n 1965, i n t h e t r a d i t i o n a l manner, t h e ~ e b i s l a t u r e ,i d - i t s capacity a s
t h e decision-making a u t h o r i v w i t h r e g a d t o
s a l a r y and wage,matters rel'ated t o
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the county, considered t h e following sTparate b i l l s - r e l a t e d t o s a l a r i e s , wages and '
numbers of p ' o s i t i o k allowed i n <&-ious ,areas of-county governmen_t:
1
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~ l e c t e dO f f i c i a l s ,-~ p p r o ~ r i ~ < iand
o n ' Raises. '
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tlec&ed O f f i c i a l s , Salaries: ..
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court Repofterk , ~ u - n i c i ~ aCqurt
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c 6 m q kt i o n of Municipal ~ u d g e s .
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Huniqipal cCour t ~ r o b g t i o i iO f f Pcers
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eontract i n g +for.. ~ a r r ' h\S,ervice\.
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qee f o r F i t i n g Wills.
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Probate .court, -Fee
Copies ofr Records. ,'- *.
County ,! Fixing Time of Payrglls., 24 , o r $6 , ~ ~ n n u a l l ~ . .
County, To Provide H o s p i t a l and Pfedkqal Care fdr' ~ e t i t e dEmployees.
D i s t r i c t Court, Assigrrment Clerk l ~ u d g e t(. C l e r k uqder Judges, !not/.
k l e r k ? o f District Court>.
Dist-t
Court7, A Q ~ y i n gNew ~ u d g k f o rD- o m e s t i c ~ 8 e l a t i o ~ , I
D i s t r i c t c o y r t , ~ r o $ % t i o n . ~ifc.ef r s
-.-County .,4unicipal ;court, Law Changes. '.
D i s t r i c t : C Q U P ~ Law Clerk ',s Salary.
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..These b i l l s we=& jcbnsidered,ia ,the Hennepin c o u n t y delegation' ~ - ' a d d h + o\. ~
/ $
tg a-series of bills,-.mqq 'of a s i m i l a r nature r e l a t e d t o ninneapolfeicity goverds. -..<
: ment , which a l s o suf,fers !upder, an in£l e x i b l e go*-.ene
s t r y c t u r e requ+ip$ k$wds%o$.-making on .@my i n t e r n a l ?d ? d d n i s t r a t i v e - matters \by7kIk &egislature,~'due tb t h e ' ' . . ..
1
inabil*
of t h _ e a o t e r s i d t h e c i t y of Ninneapplis-to agree through public :v6te$,0LZOL
- -,,. .
' change and niodernizat-ion
of .Minneapolis city -goveqmenh.
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-In the; case' id t h e independent e l e c t e d off i c i ~ l aof t h e countp, the-J.i$gZ.s-.
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l a t u r e attempts every tGo yea=s to-deternine fpr;the next tw; y e a r a ekactly how~atlch~i'
shaZl h e spent s e p a r a t e l y i n e a c h 2nd eve,ry department f o r . wages 4 d s a l a r i e ~ , ~ ; a n d
iC- p r w i d e s f o r any and a l l s a l a r y and wage increases -in these ,areas of c y n t y goyernment, Jbr &.xkple, En -196.5 t h e . b i l l pkovided for the yearly- s a a r y . a l l o & t s
, '
&r the f dll'nring of f i c G ,and:departments f o r 1966! & d f b r 1967;
a s ~ollows
f
(yearly, -(.
a l l o t t e d amount) :
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County A t f ~ r e y -Probate Cburt
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- Coucty Audltor
Sherfff ,L
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' c l e r k of D i s t q i c t C o y t
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Court C o m m i s s ioner
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County Med9cd. Examiner
County Superintendent- of Schools ,,
Book-bi~der-.
county Surveyor
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Civil-legal . ,
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C F t y Treasurer >, , ',
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county Boa~d./ c l e r i c a l
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I n addition, i n a s e p a r a t e b i l l , the L e g i s l a t u r e provided f o r t h e s a l a r j e s
of
t
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e
County
Board members and of t h e independent . e l e c t e d o f f i c i a l s ' i n t h e amounts
.
, indicated i n -the appendix t o t h i s r e p o r t l i s t i n g t h e powers
d u t i e s of th&=
$ff ice$.
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The independeqt a e c t e d o f f i c i a l s request t h e i r bienriial a p p r d r i 8 t i o n s
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from t h e lczgislatyre together i n t h e form of a j o i n t s a l a r y request b i l l c o & i s t i a g
-'OK lump sum amou.t$ requested f o r each s e p a r a t e depa$-tment, plus a s&$tion ~rchridin;
f o r acsods-the-board yearly percent-age pay hikes f o r a l l employees with minlmum art$
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t e q u e s i k and leave i t t b t h e -union r e p r e s e n t y i v e s , t o riegotiate, t h e &mployees ' ''raises i
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The o f f i e t a l s ~he*!elvea send simple',stattemelits/to thexLegis. - wFth t h e - l e g i s l z i t u r e ;
q t u r e covering r e q y s ts f or'new positZons and make , b r i e f appearances, before dhe
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county l e g i s l a t o r s t o answer que$t~-oris.
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This, t h e n , ++emaiikt h e r a l h r y and tiage . a d m i n l ~ t r a t i ~hspect';
n
of persanrrelhdmi&.&tratfon i n coun'iy government a s . f h i s t h e *independent-e l e c t e d % £ f i c i a l s are
Disdoneern&. -The & a c t i & is q u i t e s i m i l a r f o r t h e c o u r t s w i t h ' minor varianqs
''
fox .
ST -f ' f i c t .Court jddges ' kalarigk a r e s e t statewide with a f i,xea;overrjd bf ;S1:5Oa
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'kknnepin ~ b u x - t t ~ .The judges themselves,,work f o r t h e i r p a w i l l s and requebts f o r
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a d d i t i o n a l judges. Distticf Court r e p o r t e r s , w h i l e &ploged by:the judges; 'have- -:.
g h b r ,0161 s tbqewide labby, a u t : MunicipaP court, - r e p o r t e r s f o r AennepTn CG*
lobby
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t g i r o& ' b i l l s a? do t h e C l e r k bf ~ u n i c i ~ Court
al
and t h e s e p a r a t e w c i g a l
Cmrt
; ~ d b a t Department,
i ~
with' t h e ia3d of unio* represedtativ&s.
T h e , ~ u n i c i p a lCouW
,
i n t h e 'case of - i ~ it se i c t - Caurt
,,
~ T t ht ,h e
2' judges handle t h e i r ,own b i l l s , '+uklly,
. c j
ai;d .of t h e B a r Association.
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-With t h e r a p i d growth of county- governmectifn terms o f new f u n c t i ,~nim- . .
b e r s :.of j o b s i i 3 o i e i)nd complexity involved with m~
of t h e county operatiomi, it
. n o longer is -feasib;le. t o continue fhe p r a c t i c ~of. providing b i e n n i a l s e p a r a t e [legis- 2-1"
,
l a g i v e approprdati_ons f o r ;>theaepa-rated p a r t s of county govermept
T h e county
.,
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i e i i s f i t o r s b h o ~ dbe concerned 'during th.e 120-day l e g i ~ l ~ t & y $ , ~ e s s-with
ida m i t t e l s
of Yktate an& areawide concern, and have no t i m e t o s j e n d on tlik d e t a i l e d & l y s i s qf . ,
various- a s p e c t s b f county government which ,should be necgssary i n order to+ mabp ,'inL
.~t e l l i k e n t d e c i s i o n s aq t o approgriations f o r these various departments.
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The e x i s t i n g p r a c t i c e s a r e l i k e ~ i s ien c r e a s i n g l y u d s a t i s f aetory f o r ,the
,
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i caunty off i c i a l q themselves.
The s t a t e 1&ixsf f e c t i n g *county goyetmnent b d t h e
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l o c a l ,laws f or'.fi@nepin Coungy o r i g i n a l $ passed ,.-in--$hee&ly 19401s, envision a '. '. . i .- listati-c s i t u a t i o n r in'which each departwent of county government 3 s off Fiy i t s e l f
.
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doing i t s own job with a r e l a t i v e 1 y : s e t number o f ~ p e p o n n e l ,s o t h a t it is easy' bor i
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th$ L&isIaturb t o r e v i e w t h e needs d.f t h e varidus dei&rtnfents'every t & years-. ,)But
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being, and i n c r e a s i q l y ' --- :
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w i l l be, , s h i f t e d t o cpun&$ -government, .or betwien e x i s t i n g deprtments.:of
county \,
government. -- ~ u t o m a e i d dand dpta procesa'&g w i l l v i t a l l y af f e c t t h e s t a f f i n g require- . .
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is very 'hard £ o r a dep&ttneni h&i t o Enow two y e a r s ahead what h i s
a r e gain8 t o be. > B e has a n a t u r a l qendency ko w k f w rn~ri?
people,
. - j u i t t o p r o t e c t ' h b b e l E . . But, even s o , h e c@n never- be s&e. chat a new functroni
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w i l l n o t Be t h r u s t upon h i s department,
o r possibly a f u n c t i o n s h i f t e d from h i s department. For example, i n 1965 a b i l l pagsed t h e L e g i s l a t u r e which r e q u i r e d t i t l e
r e g i s t r a t i o n f o r a l l v e h i c l e s i n Hemepin County, t o b e adminiqterelt by t h e R e g i s t e r
of Deeds. -The 'Register o f Deeds had made n 6 p r o v i s f o n i n h i s S e g i s l a t i v e Tequeqt
f o r personnel t o h q d l e such s n e w f u n c t i o n , b a t it w a s a o n s e r v a t i v e l y e s t h q t e d ,
although? no me r e a l l y knew, t h a t t h e County R e g i s t e r of,Deeds might need a s ' many a s
40 a d d i t i o n a l employees j u s t t o handle t h e workload r e s u l t i n g from the passkage o f
/
t h i s new b i l l .
I
Th'ere is r i g i d i t y - i n t h e c u r r e n t p r a c t i c e , and a - r e l u c t a n c e on t h e p a r t
of e l e c t e d o f f i c i a l s who a r e r e s p o n s i b l e t o no one but'-the L e g i s l a t u r e t o e f f h t
change. F& e-ple,
i t has g e n e r a l l y beep agreed by t h e ~ e h n e ~ C
l nW t y gudges and '
t h e S h e r i f f - t h a t i t is no longer n e c e s s a r y , t o have a d e p u t y l s h e r i f f p r e s e n t a t a l l \
t i m e s i n a13 o f - t h e many c o u r t a n d h e a r i n g rooms i n Hennep'ln Cpunty. The judges
' have s a i d , and- t h e S h e r i f f h a s agreed, t h a t a paol of deputy s h e r i f f s could handle
quitnumber of courtrooms i n wt~fchcriminal and t r a f f i c masters are n 0 t i b e i ~ g
heard. Nevertheless, i n t h e i r l e g i s l a t i v e r e q u e s-.tL
s n e i t h e r t h v judges n o r t h e
S h e r i f f i n 1965 i q i t i a t e d any a c t f o n t o reduce by. even me man t h e namber of deputy
S i m i l a r l y , many judges and o t h e r s h a v e agreed t h a t /
s h e r i f f s q h o s e r v e -a s b a i l i f f s
a courtroom c l e r k i s / n o t n e c e s s a r i l y needed a t a l l - t i m e s i n a l l q£ t h e courtrocms' 2
of t h e country, t h e- /
i n t h e county, and t h a t , as h a s been done i n many okher
number of clerks'might be reduced. Meirertheless, i n his 1965 requesg t o t h e Legisl a t u r e , t h e th$n Clerk of D i s t r i c t Court, who is ,nqt r e s p o n s i b l e t b t h e judges b u t ionly t o t h e ~ e g i s l a t u r e ,r e q d s t e d f i v e a d d i t i o n a l d e r k s f o r 1966-67 bienniurh,
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S t i l l another u n d e s i r a b l e as@ect of t h e e x i s t i n g s i t u a t i o n is t h e tendency
oF t h e o f f i c i a l s t o r e q u e s t a p p r o p r i a t i o n s s o a s $0 b H n g 'the--pgy a f t h e i f employees'
1 n l i n e with t h a t of oth& e l e c t e d c f f i c i a l s , even fhough t h e r e ' is n o r o o r d i n a 5 i o n as t o c l a s s i f i c a t i o n s o r pay a s be-tween t h e v a r i o u s o f f i c i a l s :For example, i n h i s
1965 r e q u e s t t o t h e L e g i s l a t u r e , t h e Hennepia County AudZtbr s t a t e d as follows:-'
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"I hereby r e s p e c t f u l l y requesf ,that an a d d i t i o n a l $2.937 I 6 q b e
a l l o c a t e d t o t h e ~ u d i t o r ' sS a l a j Allowance t o enabl'e t h e Auaitor
to a d j u s t - a n d e q u a l i z e t h e , s a l a r i e s of t h e Ctrief/Deputy, Chief
Accountant, e l e v e n (11) Counter and Deputy County Auditors, andt h r e e (3) Key Punch Operators. T h i s r e q u e s t becomes necessary t o
b r i n g t h e s e em&oy5es, whose p o s i t i o n s a r e a t least comparable, ,
t o t h e i r c o u n t q p a r t s ~ m p l o y e di n t h e Counfy T r e a s u r e r ' s O f f i w .
The i n e q u a l i t y between s a l a r i e s paid f o r t h e s e p o s i t i o n s r e s u 4 t s '
from t h e T r e a ~ u r e rsubmitting a s a l a r y l i s t f o r U 6 5 , spreading a
b l a n k e t i n c r e a s e t o t h e amount of $10,000' ovet-_thir&y-six (36)
p o s i t ionl.
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The surveyor requ;ste&"6p0
a d d i t i o n a l t o b t i n g t h e s a l a r y of h i s o f f i c e
s e c r e t a r y t o $575 p e r month, which he claimed was, t h e s a l a r y of & h e r , d e p a r t m e n t
heads' s e c r e t a r k e s
Other r e q u e s t s on s i m i l a r -grounds Qere s p y i n k h i through t h e
w r i t t e n requests-of o f f i c i a l s t o t h e L e g i s l a t u r e .
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The f a i l u r e bn t h e p a r t df t h e independent e l e c t e d o f f icia$s to. set ,,or
e n f o r c e f i x e d s a l a r y ranges, and t h e n a t u t e of t h e acros6-the-board raises g t a n t e d
employees of t h e independeat e l e c t k d o f f i c i a i s every two ypars by t h e ~ e g i s l a t u r e ,
result i n a number of u n s a t i s f a c t o r y kituations.-'For
e x q p l g , i n 1965 9 theclerk-::'
o f D i s t r i c t Court's o I f ice a - fong-term- e m p l o y e w q -king $1,500 -more per Xear
t h a n .h e.r s u p e m i s o r , who h e l d a s i g n i f i c a n t l y more r e s p o n s i b l e - job.
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Much more s e r i o u s i s t h e tendency of t h i s p r a c t i c e t o r e s u l t i n a "panA l l employees j r e g a r d l h s s of t h e n a t u r e o r r e s p o n s i b i l i t i e s of
caking" *f f e c t
,:
, . t h e i r j o b s , and r e g a r d l e s s of t h e i r a b i l i t y , a r e given percentage wage i n c r e a s e s
e v e r y y e a r , w i t h f i x e d minimums and maximums. This a p p l i e s to'everyone, f r o m - t h e
t a p deputyior a s s i s t a n t County Attorney on down t o t h e most j u n i o r c l e r i c a l worker.
For bxampl'e, i f t h e below 1965 request b e f o r e t h e S t a t e L e g i s l a t u r e of t h e inde?
nden5 e l e c f e d o f f i c ; t a l s had been granted, and t h e same r e q u e s t was granted i n
(
o subseque~fts e s s i o n s , we have computed below what t h e e f f e c t would be over a
ix-yeqr period f o r a c l e r i c a l 'worker and f o r a ,prof e s s i o n q l worker i n departments '
f f e c t e d by t h i s p r a c t i c e . The f i g u r e s are a s follows:
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.~ ~ s s u m e :7%e a c h y e a r with $30 minimum and $40 maximum, f i r s t year; and
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-$25 minimum and $35 maximum, second year.
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Year 1
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$ 900
Year 2
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Year 4
Year 4
YeBr 5
Year 5.
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over &year p e r i o d / -
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Other a s p e c t s 4 0 f a d m i n i s t r a t i v e chaos under the,prolif e r a t e d ,s i t u a t i o n
e x i s t i n g i n cobnty government under independent e l e c t e d o f f h i q l s are as fo4lows:
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+
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r e c e i v e percentagewfse s i g n k f i c ~ t l y + g r e a t e increas+s
r
t@n t h e p r o f e s s i o n a l worker. It i s amply c l e a r from a
stud$ of t h e a&vnty budget t h a t , a f r e r years of t h i s p r a c t i c e , r o u t i p e p o s i t i o n s
yqder t h e independent e l e c t e d o f f i c i a l s ,- such as c l e r i c a l ' p o s i t i d n s , are p a i d cons i d e r a b l y i n excess of t h e community p a t t e r n , 'but, on t h e 'contraw,, $r&fessional
p o s i t i o n s are poorly paid, r e s u l t i n g i n d i f f i c u l t y i n a t t r a c t i n g competent personnel t o these positions.
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57.6%
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E$nployees under one job t i t l e , f o r ,example " k p u t y heri if f", are performing
a wide v a r i e t y of task&, r e q u i r i n g apparently s i g n i f i c a n t l y d i f f e r e n t s k i l l s
and trainkng. Dif f e r e p t 6ersons w i t h t h i s same t i t l e - a n d paid t h e same are
performing c l e r i c a l work, act _ as courtroom b a i l i f f s , do p a t r o l work, in~ v e s t i g a t i o n , s e r y e c i v i l process, s e n e c r i m i n a l and t r a f f i c warrants, and
perform a v a r i e t y o$ o t h e r dutiesb.,
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There is a wide divergencebetween the praetices i n various departments as
t o stich matters as hours of work, f r i n g e benefits, record keeping, length
of lupch hours, and/re_latedymatters. Offices close a t d i f f e r e n t times,
The lack of anyt
, making $or public-confusion and employee morale problems:
uniformity o r a poliey on t h e p a r t of: the independen$ elected o f f i c i a l s as
' t o severance pay matters has resulted, f o r example, according tb County
1
Attorney Ge'orge Scott, i n a a i t u a t l o n i n which a retired-employee~coll.ect$d
,,
in'excess of $6,000 -from the county f o r accrued vacation and ,sick W v e ,
c
when
h i s department was unable t o produce records t o counter h i s claim,;
,
,'there was no s e t L
department
policy. Quite of tea, _Mr./' Scott reported t6
1965 League co-ttee,
emp2oye'es have been paid/over $1,000 i n severance
pay on leaving one department t o -take another job with the c-nty $n a d i f , ' f erent department.
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Xn most dkpartments 6 6 r e a r e &o w r i t t e n - job descriptions., work rules o r . '
is no assurapce whatsoever t h a t bakic
sFandards f o r perfoAmance. P ~ r e
sound personnel practices w i l l be followed. Whether there i s an* personnel .
a$minidtration accordipg, t o generally prescribed s t a n d a ~ d sand, if
so, whe- .
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someon-the judges and t h e i ~appoiotees.
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debqrtments a r e w e l l ' adpinisf ere$ and a t h e r s poorly.
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The ,unsatisfactory s i t u a t i o n o h l i n e d above is, we-.beli;eire, g e s e r a r l y m y,. . . .
derstood as,.well &:'the d i r e c t i o l ~ w h i c hshould be taken' i n impraving\th&.situa- .i .;
o n Tfie ~ e g i s l a t u r e , par~fetilar'l? the county delegation, should be
up frcioi .!
c i s i o n making'in t h e administrative or housekehpiqg a r e a s of county g o v e 9 , n t
t h a t ,~ i ,nt h e time i t has t o consider important l e g i s l a t i v e questions r e l a t e d t o . ;
nnepin County;' it may devote f u l l time t o eoqsideration of t h e 'role of thq.coun&jr.
.
tikerms of w%at functions and s e r v i c e s t h e kounty should be p&&p,rmfng, and? t h e
l a t i o n s h i p of Hennepin.~
County government t o t h e other- l e v e l s of g w e r m 6 n q ~ i n c l u ~ :rbe municipalities, t h e s t a t e , ~d the merging g o v e ~ e n t a sl t t u c t u r ~ sand '
;
-encies
a
t
the
metropolitan
' areawide l e v e l .
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Restructul;ing
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We a r e notfrecommehding I n t h i s report . k ,s p e c i f i c d e t a i l e d &an. f o r re3 t-&cturing the existing fundtions of Kennepin County gov&n.ment. We.are recotfuneiid- ing t h a t t h e power-'to r e s t r u c t u r e , except with regard to, c e r t a i n fv$ctiop'which w e
, b e l i e v e should remain under.' the fudiciary; should be giirea- tci the Counky Beard,, ._
which would then, after stbdy, make t h e .riece&ary policy decisions with -the ad+icel
o f . t h e County Manager and h i s s t a f f ,
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We qould
t o point out here, ..how~ver, s 6 w of the -fgpes of .changes
which might. be involved i n r e s tructdring . - F i r s t , a 'thorough and 'ongoing analysis
of the' various functions of ' county government, such a s is. now being under-t&en. bg;
SUA, Inc., pust be made. Such study,invol%es d e t a i l e d analysPs of dl1 of t h e areas
and departments of county governmenho as t o d e t e r m i d i n each cah what kind of
rocedures- a r e involved i n the^ department, I n a l l instances ,' f o r example? - - .
t h e r e a r e record-keeping operations, of' some type -involved i n , t h e department. These
t h a view towards seeing t o w h a t ezte+t modern and up-ta-date ;record-,'
dq-for a l l of county government can be recoqnnended. . Next, record
of view= asCertaining what aspects can-be c&-,. analyzed frorq the
w h i t place. ' The analysis - reveals, fof example, t h a t record keeping with.
, is being- kept i n ,
r s h i p of property, and t ~ a n ser
f ,of real
There,
of
county
government,
areas and departmen&
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. is much overlapping
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id this) i n s t a n c e ,
&d d3dplication i n ~ o l v e d
keeping i n t h e county. - .
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as t h e r e is i n o t h e r a s p e c k of reco,rd
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With e s t a b l i s h e d and recognized modern mythods of &cord keeping, and with
.- t e use of - computers and d a t a processing, it is e n r i r e l y pessib-le t o maintain cenL
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d!altried
countpiwide record keeping fg_r &my fypes of records, with information
a r m s t ' i n s t a n t l ? a v a i l a b l e - i n t h e various cbunty b f f i c e s and depa&tments wh'ere i t
is needed. For tbt.matter, it is e n t i r e l y f e a s k b l e t o keep a l l s o r t s of records ~n
.a -cehfralizcd b a s i s , end t o make them a v ~ i l a b l enot only throughout county government but a l s o t o t h e ~ ~ u ~ d c i ~ a l i t ' i eThis'
s . would be t r u e with -regard t o qax, records,
property records, aecord keebing -relat&f t o law enforcement, courts- records, h e a l t h
a d welfare-records, etc, \
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.&other-aspect ~f
3 u n c t i o n a l approac6 would involve t h e l o g i c a l group- '
in$ o f functi6,
which +lvf
c e r q a i n aspects of p u b l i c contact. Thus, f o r examp l e , -tar registiati.tign, 'logrriage Jicehes, d r i v e r ' s l i c e n s e s , f i l i n g of certain,
of taws; etc,could be loqicalLy,grouped togeehei bnd coordi)$nst-ents,
l n a t e d i p aveh a manner t h t L
t h e puqlie w w l d d e a l i n one p l a c e and with one departdent in:connec'tioa w i t h 2 % e s s and similar t h e s of t r a n s a c t i o n s . '
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S i a i l q r l p , a+khjinl&trati*e £unct$ons of t h e county, d i r e c t l y uhder t h e
esY'an# h i s 's't;aff,\ woulh be l o g i c a l l y grouped together. , These 'would inn general .&?&ice iuqctipns i n v e l v i n g a l l or' near19 $11 a s p e c t s of
govenuaeht, incldding such:m a t t e r s .as persbnnkl, pkbcurement , G o v i d i d g of
,,
t y p q 03 e.guipment anil.sugpl$es such a s typewriters, forms, o f f i c e s u p p l i e s ,
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C r u c i a l t o m e t a l 1 r e s t r u c t u r i n g is t h e p h y s i c a l - r e z a t i o n s h i p of the v a r i ,
ous r ~ s t y c t ' i r r e ddepartments. and functions of county gqernment
For -example-, eer(
: - * ta&n/Types of funceions should'be coordinated and performea a t one place, and,-where
-'> publiCY c o n t a c t Ps involved, i n a b u i l d i n g - o r i n p a r t of a buPYding convenient t o t h e
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involves %ibing khC County Board and '
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power
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q
n
the
'gmuping
gf functioiis -or sab-functions under
- , d i r e c t k s or-administrators respo%$ble f o g groups of functions. Thus, t h e required
I .
l e g i s l a g i o n we recommend should n o t prescribe'the number ar t i t l e of t h e department
heads o-q clirectors, ,oe be r e l y maka t h e c u r r e n t l y independent e l e c t e d o f f i c i a l s *
l
dosition& appointive, but still r e q u i r e t h a t a p a r t i c u l a r n a m e d o f f i c i a l , per example
~ h e , ~ ~ e + i s of
t e rDee.dsl', perf o m p a r t i c u l a r d u t i e s o r servihes To t h e e x t e n t t h q t
'
general s t a t e l a w &ht s t i l l r e q u i r e t h a t k named p o s i t i o n be r e t a i n e d i n t h e
s t r u c t u r e of couney g o d e m e n t t o perf o m c e r t a i n adminis@=ativea c t s , t h e County
~ o a r hought to be:allo&d-wi*
l a t i s u d e i n d a s i g n a t w g a b i n i ~ t r ~ t o as'
r s the' holder
of
t
h
e
required
p
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s
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t
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q
.
I n t h i s manner omie administrator miqht conceivably be
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"Register bf ' a e d s " , ."Treasuter4', b d lpossibly l i D Q ~ t yClerk of D q s t r i c t Court" f o r
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1 p u r p o s e ~ o f i s s u i n g marriage licenses.
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, The f n d i c i a l l y Related Functions-
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~ e c ~ u 'p
% e& , w i l l - bd n e c e b a h f k t h e Legislaeure f> d e f i n e 'what functibns,
s e ~ i c e so' r inkk:itutions, i f b y , cshould remain: o r be placed .,under t h e policy control?
I of' t h e j u d i c f a r y , ,our eqphittee has .:had
consider a w i d e gamdt of- f unctiops whid;/
The j u d i c i a l , f u n c t i o n i t s e l f , as
p " are % one yay o r @the= r e l a t e d t o ,.khe court$.
- , , . contras+ed t d J u d i c f d l l y t e l a t ? d ' f w ~ ( t , $ ~ h $is
; Geyond t h e s c o p i qf t h i s ' commit t e a ' s
. , assigroaent,.' $ 0 - t! h a t si$h quest$onsrk&tO
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whether t h e c o u r t s shoul& be_. herded, o r
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t h e i r j a r i s d i c t i o n a l J i m i t s a l t e r e d , have n o t been considered. bwever, b6tw within
t h i s coogaittee an&on t h e b a s i s ofcarefu!, review-of previous Citizens Lesigue
resear'ch a n d m?comntendations w i i h regard : t o cou,rt r e l a t e d f u5t.ctions, we h a p consi-dered tpese v p r i ~ .functians
s
from t h e point of' view of making recommendations on
where t h e p'oli~,rau'thority'ought20 .&side a s befween t h e county Board-and t h e ~ n a yecommendations suggesting
ger on t h e une h&dLand. the j u d i c i a r y on >he other. ~ u r
a partimsay,. u s e r o f . r e s t r u c t u r i n g of these functions, .,.e. i t h e r by the County Board
o r by t h e judici&ry, should be taken as d i r e c t i o n a l .
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b e l i e v e t h a t ' t h e c l e r k of courbfuncrion fc; a l l t h r e e of the & i e t i h g
eou&';in
t h e county ought t o b e .$ombined, even though t h e courts tl'yxiselves a r e not
merged. Fut~her, we; b e l i e v e t ~ a tth e non-Judicially . r e l a t e d functions of t h e Clerk
of,_Diserif~t-Cwrt
issuance of marriage, l i c e n s e s , f o r eriample
should be separated
from, t h e conrt:;f.ecordTkeepipg- function and placed bnder t h e control of t h e .~oGnty-,
:'~oard
~liinager
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-d& of t h e c o u r t s qemselv& is, we believe, suff f c i e n t l y
c i a 1 'function i t s e l f s o that t h i s -function might be
,'t h i s f u n c t i o * is also only onezof 1 t h e recordf.y, and, t o t h e extent possible, we,believe it should
~h',other r e ~ o r d - k e e ~ i *fQnctMns
~
in. t h e county ~ & t cf u l a r l y with
tezs, a s .micrqf ilmixii, dtorage and r e t e q t i o n of o l d 'or i n a c t i v e
s, we believe t h a t t h e l e ~ i s l a t i o nshauid provide f o r . c l o s e '-ore - c l e r k o f couft $unction under t h e judges and t h e c e n t r a l i z e d vnder t h e County Manager, and might provide f o r t r a n s f e r of
n period of time f r o 3 the j y r k s d i c t i ~ nof ' t h e court t o cen..
cord ktzepkng. . @urthemore, we- beiieve t h a t the. j u d i c i a r y should
a&ttirt;Yst.ration 'of t h i s c o u r t s recocds furictian under the- c o n t r o l
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t h e District ~ourt:chatsre&ntly,@ired an aimiiis?ratdr,
i e e n s Leagrie r e p o p of January, 1965. We;, b e l i e v e t h a t , e$en ..
...
o t . &e'rged, t h e r e is g r e a t merit i n t h e c o u r t s r having. one - ,.,
courts, p a r t i c u l a r l y i f , as we -have i n d i c a t e d , t h e
,
s h p l d be consolidated under t h e d i r e s t i o n of a top & i n i s i b l e : . t o - t h ejudiciary.. The law , ~ h o u l d
provide t h a t tfie
r k of D i s t r i c t 'Court, hhich must remain. e l e c t b e u n t i l therk
n t , have i t s d u t i e s a n d - ~ set
a ~ -by the - j u d i c i a r y and b6
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' --Coikrtro* f u n e t i & i of l a d c l e r k qnd court r e p o r t e r ought t o be under fh';~-.
,jFdirec.tion o f ' t h e . j u d i c i ary , and, a s i n t h e case, of the courts record f6fiction9 admiReferees , 60
n i s t r a t i - v e l ~uq%r - the to+ a h i n i s t t a t o r responsible t o ' t h e judiciary.
t h e e x t e n t needed, should behired by/ t h e c o u r t s ~ d m i n i s t r a t o runder t h e d i r e c- t i o n ,
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' of th:e c o u r t s
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- . W e bel&Ce t h a t t h e p r o b a t i o n q l parole functions of the ~ u ~ i i ! i ~ a l . a n d - ' \
D i s t r i c t dour&.ou&t 'to be imm%diatel$:<onsoli~ted under the Director of C ~ u r t
Services. Ttfls 'departme*\, which works c l o s ~ l ywith t h e cour-ts, has a broad 'range
of r e s p o n s i b i l i t i e s , i s a r a p i d l y expanding departme@' with a budget i n e x c e s s of
$2/mi&llon, and empbys = t t h i s 'time approximately 235 p r b f e s s i o n a l and qtlier empzoy-,
ees :dpeGigoix o f t h e Home, School . f OF BOYS, t h e adw bu31~ing Hpme .School f o t G i r l s
f t . t h e same site, and af $.he Juveai.le Detention Ceaeer, eomes h d e r t h i s depaftiiient,.
B ~ c ~ u.it
s ~~ o l v e corrections,
s
as,contrai ted t o the , j a i l i which is e s s e n t i a l l y a
holding o$eration, the Workhouse, which we believe
be t ~ a n s f e r r e dto'county
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7 .j d s d i c t i p a , might - l o g i c a l l y & s o come under the,>,
operational, corirrol of the ~ e ~ a r t &nt of 'Court ~ e r v i c e d iMe, a r e 'impfess& w i t h t h b afgu$nf that c l o s e coortdinatioxi
_..
is "desirable bqtween parole, probation ahd ,coyrectional work, as.:dliated::bath go
,;.
j~wen3l~s
agd to a d u l ts
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With t h e advent ofi the pew county ,merit personnel systed, t h e employees
-of:, t h Department
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o f Court ' Services .and of t h e Bo)rs and G i r l s Homes 'and t h e a e t e n t a n CeB;teq w i l l some under the;uniforpt county merit personnel plan as of March,
1947. We have been informed t h a t the,'hgnitude of t h e operations oE, t h e Department
...;- of Court 'Services and t h e i r ever-inerewing c o m p l a i t y have--meant much increased
- . involvem?nt 'of t h e County Budget and i Fur chasing Off icie wikh thiq, cfepartment . ,Represeotatives of t h e M s t r i c t C ~ Y + Chave a l s o informed us of t h e g r e a t time and e k f o r t
o&Pe9ded'
by S h e D i s t r i c t Cpurt judges, p a r t i c u l a r l y 'those who serve on the Court
.
-4~ervieea~oprmi6teg~
i n connection with ex&rcisidglpolicyadd a d m i n i s t r a i v e d i r e r
tibn oveq t h e department and its functions and t h e i n s t i t u t i o n s c o n t r o l which t h e
;- - -Ms r,ict C&U~t strongly .b$lf9ves should rema&* with t h e judiciary.
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e have ~ a r eufl l y considered these questfons a
v we (are -impressed-nigh t h e
r$q+rabi+i ty of ttie judges hiving'-anbgngoi+a.d impbttqnq h e 1 .in cons i d e t i n s policy
! ~ q u t k t i o n g r e l a t e dt o a l l &pects of t h e - ~ e ~ a r t n k & ' o Wuce
f
Services and of the tor;
recpional i n s t i t u t i o n s . However, w b e l i e v e tha*, tlirough provision $ o r f a committee
of*hihe j u d i ~ i a f y ~ a d i r i s ithe
* ~ Count'$' Bo?d ar@ t h e ~ ~ d ~ e 6 a re,gqrd
j t ~ h t o t h e s e mat- ,
-ters, t h P s need can b e m e t 1without t h e , j u d i c l a r g being required t o be intimately in:,?oiblvq with t h e - 6perat ions of t h e d&p&rmentJ -&d thi i + t i t u t $ o n s on a regular b a s h .
adviscky volce with r e g a r d
belied: t h a t the j u d i c i a r y shokl& h 6 a~ ~
' ~e-ti$so
S e r v i ~ e s , ~ a nof
d t h e top
t_o the, s e l e c t i o n and r e f e n t i o n bf 'the ~ $ r e c t d t
a g i i i n i s t r a t i h personnel i n connection with t h e c o r r e c t i o n a l i n s t i t u t i m p . The
.
fegi$%m,ate Foneern of t h e jiiii'ciary f o r t h e broad; ~ o l i c ' g' d i r e c t i o h of t h e depar,tment
and of t h e i n s t i t u t i o n s w i l l be w e l l served, we b*elieve,- through tfie provision f o r
'-)/,a 5 u d i c i a l adbisory - committee'. But ue.bdieve
thaf ultimate policy r e s @ m i b i l i t y
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r
the
.Department
sf
Ckvqc!
Services
and
t
h
e
i&tXtntjtons
+id / f o r t h e h i r i n g and,
rgkption o f . t h e - ~ i r e c t o of
r Court ~ e - c e s and,sp$ the qop admfnistrators f o r t h e '
q
s
U
t
u
t
i
o
n
s
,
should
resdde
-6it h the- W n t y w a g e r , rpeponsible t o t h e Counb Board.
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Powers and Duties of t&
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of Tnese'Two ~ k i n c t i o n s
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?hecommittee has s t u d i e d k i z e f u l l y q t e n & f e e ipformation fro? counties i n
'6tker areas of t h e doyntry , \lp\_articularly,those which haxe adopted some form 'pf coun/ t y manager system.
For purposes of r e s t r u c t u r i n g i n ~ i r n e p i n / ~ o u n t ywe
, believe
- fhat'fhe f o l l y $ n g i p n s i d e l a t i o d s wvfth regard t o the r o l e s of t h e county Board an$
'\
, of tph Counky Menegqr should be taken --oaccount i n the preparation Bnd draftillg
of the l e g i s l a t i o n % h a v g prbpo'sed ,
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Creating an o f f i c e r c a r e d 'the 'Saunty ~ a n a i e r "d o e s h o t i n and ofi i t s e l f
,
- -p/rovide20%t h e type of s t r u c t u r q i we recormaeni. A Founty Manager s t r u c t u r e r e q u i r e s
)
(a) _a sing19 e l e c t i v e board with c o n t r o l over p r a c t f k a l l y a l l county expenditures
end personnel,\ (b) e x e r c i s i n g i t s i3u/thority through a county)&nager 'of i t s s e l e c ." ,t i o n , ( c ) ~
who, i n turn, appoint4, dr&novesFanddire;ts. a l l . administrative appoint_ees
and i n i t i a t e s t h e annual. b u d g ~ t , ~ , w i t ha xnipimunr of i n t e r v e n t i o n i n administratiye
,-'mattee by t h e board o r 'any o f i t s memb'ers.
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-The'structure wdvLd n o t - i b our view be sufficiexit (a) i f personnel o r
qr.
e l e f t undei indepenaeot, eJectivp o f f i c e r s ; o r (b) Sf t h e
, opkrations decis-
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department heads and o t h e r l o g i c a l subordinates of \ t h e County Manager a r e appoht6d
by t h e ~ o a r d ,leavink the 'County Manager without e f f e c t i v e 2ower t o d i s c i p l w e and
" control t h e a d m h i s t r a t q v e ~ t k . E fIt
~ is, however, d e s i r a b l e t o ?quire the Manager's,
more important appoiatmedts to be submibte~for~confirmation
by the Board, s i n c e a ,' ,
Manager holdjng o f f i c e at Che pleasure of t h e Board must s a t i s f y the Board q n all
things. But a si~uuat$on o r grackico i n which t& Board ' i n i t i a t e s thk s e l e c t i o n of
- t h o s e whoni the ~ a n a ~ is
e r t o ' p i r e c t contradicts- t' h\e intent-,of t h e plan and s t r u c t w e
w e recommend.
,
-
d
r-
t-
f
\
Assigned d u t i e s , ordnj.mt$nal
structj2fk'and l i n e s of authorit; within the
Manager's o f f i c e must be a;l?owed $0 develop t o 'keep pace with the growth ,of county
bGsiness, t h e s i z e of ,,the county 3udget, and the meed,f o r - coordination. The need
f o r a strong s t a f f capability--w$thin t h e ~ a n a g e r ' sa f f i c e cannot b e over-emqhasized,
Keyff unctions- ~ h i c hshoutd be pl&ed ddireetly i n -@heq a y g e r 's o f f i c e or closely
coordi&&ed therewith i n c l t t q u d g g , purchahing, management analysis, coumy 'record
keeping ,-a separate l n t e r n a l l a u d i t function, property management, ~ u ,
k l i cinf ormat ioni,
Fompkahta, ilnd county personnet*
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The systems e d i u n c t i m a n a l y s i s fiuaction h g h t t o be closely t i e d ' i n to:
thec a p a b i l i t y of worlling clbsely wfth the d l r e ~ t o r sq r department heads of -t$e various .
areas of, county go~snmen_t/. IC should be, ma# c l e a r th.at t h e Biana@rg a s the duty
and r e s p o n s i b i l i t y t o ''alyze and make .recomraendarlons
the budgets of the v a r Q u s
departments-as t h e - ~ v e r a ~ l - -budget-~~~nb
eqpared
~
-by t h e Hanager following submis- s i o n oFLseparate dep%rtmenta&'budgets to h i m is prysented t o and studied-by the
County Board. %&'3c?q~rd'
ik t u r n +oul$.h&w ample time t o review and stysly t h e bud- --e t . The Board
t h e budgetAsetting, a c p r o p r i a f l q g ~zpd taxing authority qf 'county
overnment , and, through the ,budget process, i n ef f &t segs- and, c a r r i e s ou't key -,
policy decisiond.
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-. - . .
1.
,
..
The ~ o u n t y - ~ a n zkhould\:
t ~ ~ r have'.$~~&;:.autho:ri
tp h e approve dkyartmeptal 4 '.
-spending' schedules. and.
k o i k proPr-&s
He should wo-&iinate t h e &dministracim 03
county se:mices ,,and approve -tr^&&fe r s 9% p < k s ~ & e l , ' e q u i p ~ t ,and supplies; b-etwe*n _--f
depar;,ments o r areasr of;county 'g~v&-~t:'
tfe'c,shoul-d analyze and recommend. sa&ar&es
to, be paiQ countg emplajr&s. . d$s o f f %a&- d h q u ~ d ~ e g o t i aand
t e ac?@nister
a l l of the
board.'~ real p m p e r t y tr&sactio& ;*
&qte~as,ts
$. I.
- ~\,
---,- . !
'a strong budgetary fuhction under ehe County MBaager so t h a t t h e I4ariageY;has
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-we7have p i e d t o emphasize i n t h t s - ~ ~ o r t - t h eqole of the G a r d i n connecL
,\
t ion withi evolving reqmrnendations with regard t b Iiennepia County 's r e l a t i o n s h i p t o
the stkte; the municipalities of /Hexmepip County, and the s t r u c t u r e s >f government,
a t the ~ i r i _ c i t P e dmetropol$tan l e v e l . $a 'this connection, as w e l l a s i n connection
with study and r e c o ~ e n @ t i o * s t d t h e board on r e s t r u c t u r i n g of c a t y gqvernment,
creation and elimioakioh of county positipns', employment o r s h i f t i n g of personnel
_ between County departments, etc. a str6rig s t a f f and research
capability i n the
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manager's
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be
required.
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&:assist t h k Board,, of cornmi&
m&agef's acTivi-ties should be
.
e 'recommepaed l e g i q l q t i o n 6u.tlin- ,indiructidns &d 'authorization i. he general -adGisor, overseer ,and
i d t i e s and functions, except
of Xh& judiciary. - ..
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a
tion, r e q u i r e a yearly d e t a i l e d
nges, i n county government, as a
s t a f f . The l e g i s l a t t c p should
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a i s o f&@ire t h a t t h e h o a r d hold annual hearidgs on/ t h e r e p o r t s a i d re6onmead~tions
he couhty 'klana'ger ,, and t h a t t h e board, a f t e r st,uay 'mdxhearings, t o which t h e ,i c and i n t e r e s t e d kioups' should be i n v i t e d , should t a k e a t t i o n with regard t o
.'
s p e X f i c ,reconnqendations
contained i n t h e manager's r e p o r t s .
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*
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a r d as a policy-making, goal-setting, and revlea
d ' b e s p e l l e d o u t -in t h e legislkti.on. The l a w
d with relationshflp t o t h e h n a g e q a n d t o t h e
s
t h e . r e s t r u c t u r e d county governmen&. The d i r e c - - '
n t h e -l_unclassifi e d s e r v i c e , and appointments t o
~ a n a g e rere .subj ~ c t :t o conf i q a t i p n by t h e .County ' ,i o n s witb :regard t o s h i f t i n g o r r e l i e v i n g persons i n t h e s e
e-leg$slht$on should makake c l e a r t h a t , i n ks new pa3ricy- ,
inember9 should not become involve& .in,$he( adminis- ?
Except ifor purposes of- obtaining ;inf ol;tnation., board
artment,(beads through t h e County Waager ~ r o v i s i o n
w t o t h e e f f e c t t h a t . the,,County B q r d and i t s members
ttempt .to coerce, khedcou4ty Manager or any oth:er county\-,
the'perkormapce of,-his-dutieq.
by t h e boarrOin
c*$et
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discharge
r ~ p o n k L b i l i t td-appoint
y~
aid'
!h' e Coupty
de&d &hat protac@on, i f any, should be providk
h t h e philosophy 0-f t h e county manager blan: t o ' -.we'b_e$deve &.at t h e board s h k l d have, t h e ,power t o
on withbyt no'tice :or hearing; b u t $h&t-':the l a w
t h e manager"is4 r e x i w e d of . h i s . p o s i t i o n by t h e
bard would be rkquired t o pay t h e manager ' h i s
h i 9 being so relieved.
:
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c a s e of LOS Angel& iCounty, f o i eximplet t h e county is equipped t o
, ~ r o v i d s tm. y m u n i c i ~ a lse'rvic'es fo-r l o c a l u n i t s of government.
Charter and I
q t h e r provis'hns of 13w with regard t o some cbhnties provide that,, u p m ' t h e request
o f i i~
n c b p o r a t e d a t e a , the-count'y m y t provide namicfpal functions f o r l o c a l
a r e a s , ~ d , ~ + lLos
n Angeles County w e have beed informed t h a t t h e county i n some
i;
i n s t a n c e s is kkov ding v i r t u a l l y ~ 4 ~ a l l , ' l o Csael p i c e s y including f i r e and policex
h t e c t i o n , cbde enforcement ,'s t t e e t building and (maintenance, BEc. f o r -&nicipalxties.,
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~ u ~ ~ r e c o m e n d e t i o ~tthhe aLt g i s i a t d r e provide f b r voluntary cooperat&
'
rarrangements between t h e county and q w n i c i p a l i f i e s does (not envision t h i s type of ;" artangwen?. illowever, we b e l i e v e t h a t , a s ~ e n n e p i nCeui&y government is r e s t r u c ~
turbd afzd -becomes -make e f f i c i e n t i n !,its operations, i t w i l l i n c r e a s i n g l y be i n a
~ t a m s h i p s , and uili gain - t h e fonf idence of
- , p o s i t i o n ,to 'aid t h e m t t n i c & a l i t l ~'and
, . ) h e a l government as , a n e f f i c i e n t govertrniental operation capable of provid~r;ig, on a
' &ontract b a s l a , c e r t a t n s e r v i c e s ; p a r t i c u l a r l y i h those i n s t a n c e s where ' a; munici\p a l i t y o r township_ is s o
.in population o r physical s i z e t h a t i? might p r q q
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e f f i c i e n t f o r t h e caunty t o provide some l o c a l s e r v i ~ e s . < I n addition, t h e r e
a r e tho_se s i t u a t i o w we have i q d i c a t e d Flsewhere in t h e report w h e r e ~ c o ~ t r u c t i v e
cooperaJion with regard - t o services such as street maih/tenapce ordsnow remqval {co&d
\
be worked out. \
.
-(
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-
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have reconmended t h a t voluntary cooperative ,arrau8menkg'be pray
Z
\
~ h u,s.we
vided f ~ byr %he Legiqlature s o t h a t ,as t h e countnand f o c a l - b i t s can agree a s t o ''
t h e b e t method f o r t h e provision of v a r i d i services/, whethgr t h a t means performance ,in t h e l o c a l arga by 9 e county, o ~ conv&rsely,
,
performan~eof some aspects of;
courtty functions by municipal- u n i t s , t h e law be broad enough 'to allow, f o r the carry-;
ing ,out of such Voluntary arrangement?.
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I n i t i a q y &he Legislature ,should -prebably--provide f p r such arrangements,
where they -do nqt already e x i s t ( a s in t h e case of police proteefion 6eing provi'ded -by_the s h e r i f f * % contract- i n s$a*e$,y s e t t l e d p a r t s o f ' t h e coudty), only i n those
1 s i t u a F i o m r rhe?te au individcal munlci$ality o r group of muri$cipa%ities o r t o d s h i p s
xepres'6nting a s u b s t a n t i a l @umber of pCtsons a r e ieqdy, witling and a b l e t o contract
-h $,sew%
a2 oy tb hdve county
with t h e coudty , and t h e county has agreed t o p r o v i d ~
l
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,
also,
t
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~
idlaturw
e i l l probably
s provided by t h e lq-1 k n i t s .
r e s t r h the functional areas i n which s&h c o n t r q t s n Q h t be made' t o t h o G
coun$$ and t h e l o c a l 2 t i e s r e c b h n d paikht 'be the .6iibject of ,such contrac*.
county g o v e m e n t i s restructured and m~ekqLzed,-s&dies-she@
be under- ,the Eounty Manager unGr t h e d i r e ~ t % o n , o kthe..County'~oar$, and i n coopera-:'
h e municipal u n i t s of govemiient =
; t o ,asce$,ten a d d i f i d f u n c t i o ~
areas
~
between the eoun,
lend theaselves 40-a vol<&ary eocyeradve ip p a
it's. - For e x d p l e , spects of law e n f a m e n . @g t w e l l b e coordinateZtr en provided f o r t h e l o ca fi f i e e % y the e o m t Y;-%ads
-2o r county; s e r ~ i c di n
rgas as f i r e inspection, building code enf$reement, ets. n Q b t wed2 'prove t o
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e a s i b l e and d e s i r H e . - '
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Ou= main concern is t h a t e x i s t i n g yqate fav wt b c a bar to the p r k i n g o u t
county and l o k a l u n i t s o f govenrmeht of mutually + s f r a v e a r r a h ~ k h e n t s
t h e pravisiod of g ~ 8 t n m e n t a ls e r v i c p,.- I f some f lex$b.%%4ty:could be ,t a t e -law without providing, fir £ul hame r u l e rpcwer6 ,&n t h e C o ~ n t y
we believe t h a t much progi-ess can be made,'? and e f f i c ~ e n c i e sre ax zed^
)
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. \
7
Certaill propodd l e g i s l a t i o q of t h e ~ d j s e emission an ~n'te$govermsen- ,
t a l Relations, which t h i s ~ c ' o m d t t e ehas studied, - m i g h t be, adripta6le f purposes of
Implemen6Ang t h i s rscomenddtion -thropgh-thF en$c&t&nt of neq I b g i s l a t i o n * ,
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APPENDIX
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E l e c t e d ' O f f i c i a l s and Judges
P o s i t i o n s and Duties
of Hennepin County Government
1. Hennepin County Board of Commissioners (Chapters 373 & 375, Laws of Minnes o t a , 1961). Commissioners a r e e l e c t e d f o r four-year terms a t a l t e r n a t e e l e c t i o n s ,
t h r e e a t one e l e c t i o n and t h e o t h e r s two y e a r s l a t e r . Three of t h e d i s t r i c t s comp r i s e c i t y and suburban a r e a s , one only c i t y , and one only suburban. Commissioners
a r e paid $9,000 p e r y e a r p l u s mileage, e t c .
The r e s p o n s i b i l i t i e s of t h e Board a r e p r i m a r i l y a d m i n i s t r a t i v e i n character, and broadly s t a t e d they a r e charged with c a r r y i n g o u t t h e laws of t h e S t a t e of
Minnesota a t t h e county l e v e l . The Board h a s t h e p r i n c i p a l f i n a n c i a l powers of t h e
county and does have l e g i s l a t i v e powers i n s e t t i n g t h e t a x levies f o r t h e o p e r a t i o n s
of county government. The a p p r o p r i a t i o n s , however, f o r t h e departments of t h e
e l e c t e d o f f i c i a l s and f o r t h e c o u r t s a r e set by t h e L e g i s l a t u r e , which a l s o d e t e r mines t h e number of p o s i t i o n s i n t h e s e a r e a s .
Duties :
Levy t a x e s f o r t h e o p e r a t i o n of t h e county government and such r e l a t e d
a c t i v i t i e s a s t h e Municipal Building Commission, Park Museum Fund, Twin
C i t y Metropolitan Planning Commission, Metropolitan Mosquito Control D i s t r i c t , etc.
Approves t h e o p e r a t i n g budgets of a l l county departments, s u b j e c t , i n t h e
c a s e of t h e c o u r t s and departments of t h e e l e c t e d o f f i c i a l s , t o t h e approp r i a t i o n s set by t h e L e g i s l a t u r e .
Authorizes t h e disbursement of a l l county funds.
Approves and executes a l l c o n t r a c t s on behalf of t h e county.
Serves a s a Board of E q u a l i z a t i o n t o set property t a x p o l i c y w i t h i n t h e
county.
Serves a s a Board of Welfare t o a d m i n i s t e r t h e c a t e g o r i c a l a i d programs of
t h e f e d e r a l government and t h e Old-Age Assistance program of t h e S t a t e of
Minnesota.
Manages a l l county p r o p e r t i e s and i n s t i t u t i o n s .
D i r e c t s by p o l i c y o b j e c t i v e t h e a c t i v i t i e s of t h e Highway Department, Budg e t and Purchasing O f f i c e , Medical Examiner, Veterans S e r v i c e O f f i c e ,
Supervisor of Assessments, C i v i l Defense, t a x f o r f e i t e d l a n d s , Hennepin
County General H o s p i t a l , and a l l county b u i l d i n g a c t i v i t i e s .
When a vacancy occurs i n t h e e l e c t e d o f f i c e s of Auditor, T r e a s u r e r , Register of Deeds, S h e r i f f , County Attorney o r Superintendent of Schools, t h e
County Board f i l l s t h e vacancy.
Appoints t h e followtng o f f i c i a l s :
a . H o s p i t a l Administrator
b
Welfare D i r e c t o r
c. Budget and Purchasing D i r e c t o r
d. Highway Administrator and Highway Engineer ( o p e r a t i o n of whose
o f f i c e , however, is determined by s t a t e law)
e. Supervisor of Assessments ( d i r e c t s l o c a l a s s e s s o r s o u t s i d e of
Minneapolis)
f . Medical Examiner
g - C i v i l Defense D i r e c t o r
h. Surveyor
.
i.
j.
k.
1.
11.
12.
13.
14.
15.
Veterans S e r v i c e O f f i c e r
Weed I n s p e c t o r
S i x suburban members of County L i b r a r y Board under 1965 l a w .
Five-member County Personnel Board under 1965 law.
Appoints H o s p i t a l Advisory Board and such o t h e r permanent o r temporary
boards o r s t u d y groups a s t h e County Board may determine.
Executes t h e b u s i n e s s of county government through f i v e s t a n d i n g committees
which meet weekly:
a. P u b l i c Grounds and Buildings
b. Road and Lake
c . Taxes
d. Ways and Means
e. Veterans A f f a i r s Committee
Designates County Board members t o s e r v e on following boards and commiss ions :
a. Metropolitan Mosquito Control D i s t r i c t
b. Twin Cities Metropolitan Plaimfng CommSssion
c. Minneapolis Planning Commission
d. County A g r i c u l t u r e Extension Committee
May a u t h o r i z e t h e o r g a n i z a t i o n , d i s s o l u t i o n o r c o n s o l i d a t i o n of school
districts.
The Chairman of t h e County Board is a u t o m a t i c a l l y a member of t h e follow-i n g bodies :
a . County Board of Audit
b. E l e c t i o n Canvassing Boards
c. Board of Tax Levy
d. Municipal Building Commission
2. County-Auditor (Chapter 384, Laws of Minnesota, 1961): The a u d i t o r i s t h e
chief accountant and c o n t r o l l e r of t h e county. The county a u d i t o r i s e l e c t e d f o r a
four-year term. H e a c t s as bookkeeper and c a s h i e r f o r t h e county. H e keeps complete
records as t o what disbursements and r e c e i p t s a r e executed i n t h e name of t h e county.
H e a l s o determines what is owed t o o t h e r governmental d i v i s i o n s ( v i l l a g e , s t a t e ,
school d i s t r i c t , e t c . ) from t a x r e c e i p t s . H e a c t s as e l e c t i o n o f f i c i a l i n preparing
b a l l o t s f o r e l e c t i o n . H e makes annual f i n a n c i a l r e p o r t s of t h e county, conducts t a x
s a l e s . H e a l s o i s s u e s f i s h i n g and h u n t i n g l i c e n s e s .
The county a u d i t o r a c t s a s s e c r e t a r y t o t h e County Board and Welfare Board, and
is a member and s e c r e t a r y t o t h e Municipal Building Commission, S a l a r y and C l a s s i f i c a t i o n Commission, Board of Tax Levy, Board of E q u a l i z a t i o n and County Cooperative
Extension Connnittee. The a u d i t o r i s p a i d $12,150 p e r year.
3. County T r e a s u r e r (Chapter 385, Laws of Minnesota. 1961): The county t r e a s u r e r is t h e t a x - c o l l e c t i n g agent f o r a l l u n i t s of government and r e c e i v e s and coll e c t s a l l t a x e s of t h e county, r e g a r d l e s s o f whether l e v i e d by s t a t e , county o r
o t h e r d i v i s i o n . H e h a s charge o f a l l bonds and s e c u r i t i e s of t h e county, t a k e s
charge of a l l s i n k i n g fund bonds and i n v e s t s s u r p l u s funds. H e makes c o l l e c t i o n s
upon t h e a u t h o r i t y of t a x l i s t s prepared by t h e county a u d i t o r . The t r e a s u r e r pays
o u t money only on w a r r a n t s i s s u e d by t h e county a u d i t o r ; he s u p e r v i s e s t h e opening
of s a f e t y d e p o s i t boxes of deceased and a t t e n d s a p p r a i s a l s of e s t a t e s . H e d i s t r i b u t e s t a x monies t o a l l o t h e r u n i t s of government. The t r e a s u r e r is paid $12,100
per year.
4. S u p e r i n t e n d e n t of Schools (Chapter 121.35, Laws of Minnesota, 1961: The
Hennepin County s u p e r i n t e n d e n t of s c h o o l s i s s u p e r i n t e n d e n t of t h e common (ungraded
r u r a l ) s c h o o l s i n t h e county. I n a d d i t i o n , h e s u p e r v i s e s t h e ungraded r u r a l s c h o o l s
i n t h e independent s c h o o l d i s t r i c t s . He p l a n s c o u r s e s of s t u d y f o r each g r a d e and
approves t h e a c t i o n s t a k e n by t h e s e s c h o o l boards i n r e g a r d t o t h e h i r i n g of t e a c h e r s
and textbook s e l e c t i o n . H e v i s i t s t h e s e ungraded s c h o o l s r e g u l a r l y .
The county s u p e r i n t e n d e n t of s c h o o l s has 30 s u p e r v i s o r y powers o v e r . t h e high and
graded s c h o o l s i n independent s c h o o l d i s t r i c t s ( a l t h o u g h h e does s u p e r v i s e ungraded
r u r a l s c h o o l s , whether i n common o r independent s c h o o l d i s t r i c t s ) .
The county s u p e r i n t e n d e n t of s c h o o l s performs c e r t a i n d u t i e s which a f f e c t a l l
s c h o o l d i s t r i c t s i n t h e county, i n c l u d i n g t h e h i g h and graded s c h o o l s of independent
s c h o o l d i s t r i c t s and Minneapolis. For example: He checks a l l s c h o o l census c o u n t s ;
checks a l l t e a c h e r s t pension payments ( e x c e p t Minneapolis, which h a s a s e p a r a t e pens i o n f u n d ) ; checks s c h o o l a t t e n d a n c e i n a l l s c h o o l d i s t r i c t s i n t h e county; and,
a f t e r checking t h e annual r e p o r t s of a l l s c h o o l d i s t r i c t s , p a s s e s them on t o t h e
S t a t e Department of Education. The job pays $9,250 p e r y e a r .
5 . R e g i s t e r of Deeds (Chapter 386, Laws of Minnesota 1961): The r e g i s t e r of
deeds i s c u s t o d i a n of a l l county r e c o r d s connected w i t h r e a l estate t r a n s f e r s . H i s
d u t i e s i n c l u d e t h e r e c o r d i n g o f - a l l i n s t r u m e n t s p e r t a i n i n g t o real estate, p l a t s f o r
new a d d i t i o n s w i t h i n t h e county, c o r p o r a t i o n p a p e r s and m i l i t a r y d i s c h a r g e s . The
r e g i s t e r of deeds i s a l s o ex o f f i c i o r e g i s t r a r of t i t l e s governing t h e t o r r e n s d e p a r t ment. T h i s department has c h a r g e of t r a n s f e r s as w e l l as i n s t r u m e n t s evidencing encumbrances on l a n d which h a s been r e g i s t e r e d under t h i s system. The t r a c t index
department t a k e s o f f p e r t i n e n t i n f o r m a t i o n from a l l i n s t r u m e n t s recorded r e l a t i n g t o
a b s t r a c t p r o p e r t y and indexes t h e s e t r a n s a c t i o n s a c c o r d i n g t o l e g a l d e s c r i p t i o n s , s o
a t t o r n e y s , a b s t r a c t t ompanles, real estate f i r m s and t h e g e n e r a l p u b l i c can l e a r n
what h a s been f i l e d f o r r e c o r d a f f e c t i n g any s p e c i f i c p i e c e of p r o p e r t y . The c h a t t e l
mortgage department f i l e s f o r r e c o r d mortgages, assignments and r e l e a s e s on p e r s o n a l
p r o p e r t y l o c a t e d i n t h e county o u t s i d e of t h e c i t y of Minneapolis. This department
a l s o makes c h a t t e l mortgage a b s t r a c t s and f i l e s f o r r e c o r d b i l l s of s a l e on p e r s o n a l
p r o p e r t y l o c a t e d anywhere i n t h e county. The j o b pays $12,150 p e r y e a r .
County O f f i c e s and Departments
Headed by E l e c t e d O f f i c i a l s ~
C o u r t s and Law Enforcement
The S t a t e of Minnesota l o o k s t o t h e c o u n t i e s f o r e n f o r c i n g t h e laws of t h e
s t a t e , and t h e l a w e n f o r c e r s of t h e county a r e , i n r e a l i t y , o f f i c e r s of t h e s t a t e
j u d i c i a l wing, and are removable by t h e governor f o r malfeasance o r nonfeasance.
6. The 16 D i s t r i c t Court Judges: Hennepin and Ramsey Counties a r e each a
s e p a r a t e j u d i c i a l d i s t r i c t . Hennepin is t h e Fourth J u d i c i a l D i s t r i c t . S i x t e e n
judges a r e e l e c t e d by t h e v o t e r s i n Hennepin County. They a r e e l e c t e d f o r s i x - y e a r
terms and h o l d t h e o n l y e l e c t i v e o f f i c e s i n t h e county f o r which q u a l i f i c a t i o n s a r e
d i s t r i c t judges must b e l e a r n e d i n t h e l a w . S a l a r i e s of t h e judges are
made by l a w
p a i d from t h e s t a t e t r e a s u r y , b u t Hennepin County pays a l l of t h e o t h e r expenses of
t h e c o u r t ( w i t n e s s e s , j u r o r s , e t c . ) , as w e l l a s $1,500 a n n u a l l y t o each judge.
-
According t o t h e s t a t e c o n s t i t u t i o n , d i s t r i c t c o u r t s " s h a l l have o r i g i n a l j u r i s d i c t i o n i n a l l c i v i l c a s e s , b o t h i n law and e q u i t y , where t h e amount i n c o n t r o v e r s y
exceeds one hundred d o l l a r s , and i n a l l c r i m i n a l c a s e s where t h e punishment s h a l l
exceed t h r e e months' imprisonment, and s h a l l have such a p p e l l a t e j u r i s d i c t i o n a s
may be p r e s c r i b e d by law".
District c o u r t s a r e empowered a l s o t o e s t a b l i s h highways and d r a i n a g e systems.
The D i s t r i c t Court of Hennepin County assumes a d m i n i s t r a t i v e r e s p o n s i b i l i t y f o r
t h e o p e r a t i o n of t h e Department of Court S e r v i c e s (Probation O f f i c e , J u v e n i l e Center
and Home School).
This very important department c o n t a i n s about 250 of t h e
300 p l u s personnel under t h e judge's c o n t r o l . A s e p a r a t e a p p r o p r i a t i o n i s passed
every l e g i s l a t u r e f o r t h e o p e r a t i o n s of t h e Department of Court S e r v i c e s which a r e
governed by Chapter 487, Laws of Minnesota, 1961. The District Court h a s a l s o
r e c e n t l y h i r e d a Court Administrator, who i s mainly concerned w i t h t h e c o u r t calend a r , scheduling of c a s e s , j u r y l i s t s , e t c .
7 . The 14 Hennepin County Xunicipal Court Judges: This c o u r t , new i n 1965,
r e p l a c e d t h e s e p a r a t e municipal and j u s t i c e c o u r t s i n t h e county. It has i t s own
s e p a r a t e p r o b a t i o n department. It d i f f e r s from t h e District Court i n t h a t i t
a p p o i n t s i t s own c l e r k of c o u r t ( t h e D i s t r i c t Court c l e r k i s e l e c t e d ) . Court i s h e l d
i n a number of p l a c e s i n t h e county i n a d d i t i o n t o downtown Minneapolis. It handles
a l l c r i m i n a l and t r a f f i c m a t t e r s i n i t i a l l y and h a s j u r i s d i c t i o n i n c i v i l m a t t e r s up
t o $4,000. The c o u r t a l s o i n c o r p o r a t e s t h e " c o n c i l i a t i o n " o r small claims c o u r t .
8. Clerk of D i s t r i c t Court (Chapter 485, Laws of Minnesota, 1961) : The c l e r k
of d i s t r i c t c o u r t i s r e s p o n s i b l e f o r keeping t h e r e c o r d s of t h e j u d i c i a r y and a g r e a t
v a r i e t y of o t h e r d u t i e s . ' H e keeps a register of a c t i o n s (book of proceedings i n each
c a s e ) , a docket of judgments, c a l e n d a r of a c t i o n s t o be t r i e d , i s s u e s c e r t i f i c a t e s t o
j u r o r s and w i t n e s s e s . H e a d m i n i s t e r s t h e g e n e r a l o p e r a t i o n of t h e courtroom. Gener a l l y , t h e c l e r k of d i s t r i c t c o u r t is a r e p o s i t o r y f o r l e g a l i n s t r u m e n t s and l i c e n s e i s s u i n g . H e i s s u e s marriage and d r i v e r ' s l i c e n s e s , n o t a r y commissions, t r a d e name
c e r t i f i c a t e s , m i n i s t e r s c r e d e n t i a l s , medical c e r t i f i c a t e s , b a s i c s c i e n c e c e r t i f i c a t e s
and r e c o r d s l e g a l changes of name. H i s s e r v i c e s a r e c a l l e d f o r i n some way i n each
i n s t a n c e of c o u r t l e g a l a c t i o n . The job pays $12,150 p e r year.
9. Judge of P r o b a t e Court (Chapters 525, 526, 527, Laws of Minnesota, 1961):
The p r o b a t e c o u r t s i n Minnesota a r e c o u r t s of r e c o r d and handle t h e estates of deceased persons and persons under guardianship. (Persons under guardianship i n c l u d e
minors, t h e mentally ill, feeble-minded and incompetents). Probate c o u r t s a r e allowed
no o t h e r j u r i s d i c t i o n i n Minnesota. I n Hennepin, a s w e l l as i n a l l o t h e r l a r g e r
c o u n t i e s i n Minnesota, j u v e n i l e d e l i n q u e n t s a r e handled by a s p e c i a l j u v e n i l e c o u r t
under t h e d i r e c t i o n of a D i s t r i c t Court judge. Although n o t t e c h n i c a l l y r e q u i r e d t o
be s o by law, Hennepin County p r o b a t e judges have f o r f o r t y y e a r s been lawyers.
10. Court Commissioner (Chapter 489, Laws of Minnesota, 1961): The c o u r t comm i s s i o n e r p r e s i d e s a t a l l h e a r i n g s f o r t h e m e n t a l l y ill, mentally d e f i c i e n t , s e n i l e ,
e p i l e p t i c s and i n e b r i a t e s . Such c a s e s a r e r e f e r r e d t o him by t h e p r o b a t e c o u r t judge.
H e i s a u t h o r i z e d t o i s s u e w r i t s of habeas corpus, t o t a k e acknowledgements of deeds
and o t h e r i n s t r u m e n t s , perform marriage ceremonies, t a k e d e p o s i t i o n s and c e r t i f y t o
t h e same, and a v a r i e t y of o t h e r a c t s . H e is a j u d i c i a l o f f i c e r and has t h e same
powers as a d i s t r i c t c o u r t judge i n chambers. H e i s e l e c t e d f o r a four-year term
and must be l e a r n e d i n t h e l a w . The c o u r t commissioner is paid $12,150 p e r year.
The D i s t r i c t Court, n o t t h e County Board, f i l l s vacancies which occur i n t h i s e l e c tive office.
11. S h e r i f f (Chapter 387, Laws of Wnnesota, 1961): The county s h e r i f f i s t h e
c h i e f law-enforcing o f f i c e r of t h e county. It i s t h e s h e r i f f ' s duty t o p r e s e r v e t h e
peace, e n f o r c e the-laws and a r r e s t and c b m i t t o j a i l t h o s e who b r e a k t h e l a w s . The
county i n Minnesota i s t h e p r i n c i p a l d i v i s i o n of government t o enforce t h e laws of
t h e s t a t e and county, and t h e r e f o r e t h e s h e r i f f is a c t u a l l y an o f f i c e r of t h e s t a t e .
The s h e r i f f ' s o f f i c e is r e s p o n s i b l e f o r c o l l e c t i o n of delinquent t a x e s and conducts
t a x sales; s e r v e s summonses, subpoenas and o t h e r l e g a l o r d e r s , as w e l l as maintaini n g t h e county j a i l and boarding t h e p r i s o n e r s i n it. The s h e r i f f upon t h e r e q u e s t
of judges of both c o u r t s a s s i g n s b a i l i f f s t o t h e c o u r t s whose duty i t is t o maintain
o r d e r i n t h e c o u r t . H e must provide t h e d e p u t i e s and t r a n s p o r t a t i o n when p r i s o n e r s ,
mental p a t i e n t s , e t c . a r e t r a n s p o r t e d t o t h e v a r i o u s i n s t i t u t i o n s . The s h e r i f f ' s
o f f i c e a l s o o p e r a t e s a r a d i o s t a t i o n which s e r v e s n o t only t h e Mennepin County sheri f f ' s p a t r o l b u t a l s o t h e p a t r o l s of s e v e r a l suburban communities, including some i n
Wright and Anoka c o u n t i e s , plus t h e f i r e departments of c e r t a i n suburban communities.
With t h e advent of t h e county municipal c o u r t t h e s h e r i f f now s e r v e s a l l c r i m i n a l
and t r a f f i c w a r r a n t s of t h e c o u r t r e q u i r i n g s e r v i c e throughout t h e county. This
s e r v i c e p r e v i o u s l y was l a r g e l y performed by l o c a l p o l i c e . The s h e r i f f i s paid
$12,150 p e r year.
12. County Attorney (Chapter 388, Laws of Minnesota, 1961): 'The county a t t o r ney is t h e chief l e g a l o f f i c e r of t h e county r e p r e s e n t i n g t h e S t a t e of Minnesota.
Me prosecutes o f f e n d e r s of s t a t e laws a s w e l l a s a d v i s i n g a l l minor c i v i l d i v i s i o n s
and a l l county o f f i c e r s on l e g a l m a t t e r s . He r e p r e s e n t s Hennepin County i n c o u r t .
He d e a l s only i n county crimes i n which t h e p e n a l t y exceeds a 90-day j a i l sentence,
o r a $100 f i n e , o r both. The county a t t o r n e y by law i s p r o h i b i t e d from g i v i n g l e g a l
advice i n c i v i l matters t o any c i t i z e n . The county a t t o r n e y is paid $17,000 p e r year.