Structure and Process Structure and Process of County Governmentof County Government

Roles and ResponsibilitiesRoles and Responsibilities

Alan ProbstAlan ProbstLocal Government SpecialistLocal Government SpecialistLocal Government CenterLocal Government CenterUW-ExtensionUW-Extension

County GovernmentCounty Government

Wisconsin counties are governed Wisconsin counties are governed by elected county board of by elected county board of supervisorssupervisors

Some have nearly 40 members Some have nearly 40 members representing different areas and representing different areas and municipalities (i.e. supervisory municipalities (i.e. supervisory districts) within the countydistricts) within the county

Wisconsin counties are governed Wisconsin counties are governed by elected county board of by elected county board of supervisorssupervisors

Some have nearly 40 members Some have nearly 40 members representing different areas and representing different areas and municipalities (i.e. supervisory municipalities (i.e. supervisory districts) within the countydistricts) within the county

County GovernmentCounty Government 59.01 59.01 Body corporate; status.  Each county Body corporate; status.  Each county

in this state is a body corporate, authorized in this state is a body corporate, authorized to sue and be sued, to acquire and hold, to sue and be sued, to acquire and hold, lease or rent real and personal estate for lease or rent real and personal estate for public uses or purposes, including lands public uses or purposes, including lands acquired under acquired under ch. 75ch. 75, to sell, lease and , to sell, lease and convey the same, including the authority to convey the same, including the authority to enter into leases or contracts with the state enter into leases or contracts with the state for a period of years for the uses and for a period of years for the uses and purposes specified in purposes specified in s. 23.09 (2) (d)s. 23.09 (2) (d), to make , to make such contracts and to do such other acts as such contracts and to do such other acts as are necessary and proper to the exercise of are necessary and proper to the exercise of the powers and privileges granted and the the powers and privileges granted and the performance of the legal duties charged performance of the legal duties charged upon it.upon it.

County GovernmentCounty Government

Administrative home rule.  Every Administrative home rule.  Every county may exercise any county may exercise any organizational or administrative organizational or administrative power, subject only to the constitution power, subject only to the constitution and to any enactment of the and to any enactment of the legislature which is of statewide legislature which is of statewide concern and which uniformly affects concern and which uniformly affects every county.every county.  

Forms of County GovernmentForms of County Government

Three types:Three types: County ExecutiveCounty Executive County AdministratorCounty Administrator County Administrative County Administrative

CoordinatorCoordinator

County ExecutiveCounty Executive

County Executive is the chief County Executive is the chief executive officer, by ch. 59, executive officer, by ch. 59, Wisconsin StatutesWisconsin Statutes

““Coordinates and directs all Coordinates and directs all administrative and management administrative and management functions”functions”

CountyCounty ExecutiveExecutive

59.17(1)(a) states “each county with a 59.17(1)(a) states “each county with a population of 500,000 or more, a county population of 500,000 or more, a county executive executive shallshall be elected for a 4-year be elected for a 4-year termterm

59.17(1)(b)59.17(1)(b) providesprovides thatthat “Counties with a “Counties with a population of less than 500,000 may by population of less than 500,000 may by resolution of the board or by petition and resolution of the board or by petition and referendum create the office of county referendum create the office of county executive or abolish it by petition and executive or abolish it by petition and referendum.” referendum.” 

County ExecutiveCounty Executive

Appoints and supervises department heads subject Appoints and supervises department heads subject to county board confirmation, unless confirmation to county board confirmation, unless confirmation waived or civil servicewaived or civil service

Appoints members to boards and commissions, Appoints members to boards and commissions, where statutes give this authority to county board or where statutes give this authority to county board or its chairperson, subject to board confirmationits chairperson, subject to board confirmation

Submits the annual budgetSubmits the annual budget Has veto authorityHas veto authority

• May veto ordinances and resolutionsMay veto ordinances and resolutions• May veto appropriation in whole or partMay veto appropriation in whole or part• County board can override with 2/3 vote County board can override with 2/3 vote

County AdministratorCounty Administrator

59.18(1) states “Counties having 59.18(1) states “Counties having a population of less than a population of less than 500,000 may by resolution of 500,000 may by resolution of the board or by petition and the board or by petition and referendum create the office of referendum create the office of county administrator” and “The county administrator” and “The county administrator shall be county administrator shall be appointed by majority vote of appointed by majority vote of the board.” the board.”

County AdministratorCounty Administrator

Chief administrative officer of the countyChief administrative officer of the county ““Appointed solely on merit”; no weight given to Appointed solely on merit”; no weight given to

residence, political affiliation, etc. residence, political affiliation, etc. Responsible for coordinating all administrative and Responsible for coordinating all administrative and

management functions of the county governmentmanagement functions of the county government Appoints and supervises department heads subject Appoints and supervises department heads subject

to county board confirmation, unless confirmation to county board confirmation, unless confirmation waived or civil servicewaived or civil service

Appoints members to boards and commissions, Appoints members to boards and commissions, where statutes give this authority to county board or where statutes give this authority to county board or its chairperson, subject to board confirmationits chairperson, subject to board confirmation

Submits annual budget Submits annual budget Answers to the county board of supervisorsAnswers to the county board of supervisors

Administrative CoordinatorAdministrative Coordinator

Similar to county administrator but Similar to county administrator but does not have appointment does not have appointment authority and “coordinates” rather authority and “coordinates” rather than “supervises.” than “supervises.”

Duties are close to those of a city Duties are close to those of a city or village administrator who works or village administrator who works under a mayor or village president.under a mayor or village president.

Administrative CoordinatorAdministrative Coordinator

59.1959.19 Administrative coordinator .  In any county Administrative coordinator .  In any county which has not created the office of county which has not created the office of county executive or county administrator, the board executive or county administrator, the board shall designate, no later than January 1, 1987, shall designate, no later than January 1, 1987, an elected or appointed official to serve as an elected or appointed official to serve as administrative coordinator of the county .  The administrative coordinator of the county .  The administrative coordinator shall be responsible administrative coordinator shall be responsible for coordinating all administrative and for coordinating all administrative and management functions of the county management functions of the county government not otherwise vested by law in government not otherwise vested by law in boards or commissions, or in other elected boards or commissions, or in other elected officers.officers.

Administrative CoordinatorAdministrative Coordinator

Some smaller counties meet Some smaller counties meet the requirement for an the requirement for an administrative coordinator administrative coordinator by appointing an existing by appointing an existing staffer or the county board staffer or the county board chair as administrative chair as administrative coordinatorcoordinator

County Board ChairCounty Board Chair

Presides over meetings of the Presides over meetings of the county board of supervisorscounty board of supervisors

Commonly acts as spokesperson Commonly acts as spokesperson for the county boardfor the county board

If so appointed, has the powers of If so appointed, has the powers of administrative coordinatoradministrative coordinator

SupervisorsSupervisors

Supervisors serve primarily a Supervisors serve primarily a legislative function (in contrast to the legislative function (in contrast to the commission form of county commission form of county government, as in Illinois)government, as in Illinois)

The legislative function is largely The legislative function is largely limited to policy making, law making, limited to policy making, law making, budgetary approval, and cooperative budgetary approval, and cooperative decision-makingdecision-making

No operational control resides with No operational control resides with individual supervisorsindividual supervisors

SupervisorsSupervisors

Supervisor’s authority is Supervisor’s authority is collective versus individualcollective versus individual

While individual operational While individual operational authority is possible under authority is possible under commission forms of commission forms of government, none currently government, none currently exist in Wisconsinexist in Wisconsin

SupervisorsSupervisors

When appointed to a committee When appointed to a committee or commission chair position, or commission chair position, have the authority to set the have the authority to set the agenda, preside at meetings and agenda, preside at meetings and make reports and make reports and recommendations on its behalfrecommendations on its behalf

Basic County Board FunctionsBasic County Board Functions

Involve, represent and be Involve, represent and be accountable to the publicaccountable to the public

Set policies Set policies Provide services Provide services Make budget and levy taxesMake budget and levy taxes Oversee county operationsOversee county operations RegulateRegulate Cooperate with other governmentsCooperate with other governments

How the Board Sets PolicyHow the Board Sets Policy

Plans Plans

(comprehensive plan, capital (comprehensive plan, capital improvement plan, parks plan, improvement plan, parks plan,

etc.) etc.)

BudgetsBudgets

Ordinances & resolutionsOrdinances & resolutions

PlansPlans

A plan involves setting desired future A plan involves setting desired future conditions and steps to get there. conditions and steps to get there.

State law in effect “requires” State law in effect “requires” adoption of a comprehensive plan by adoption of a comprehensive plan by 2010.2010.

Other common plans are strategic Other common plans are strategic plans, capital improvement plans plans, capital improvement plans (how money will be spent on (how money will be spent on infrastructure), a parks plan, a infrastructure), a parks plan, a transportation plan, etctransportation plan, etc. .

BudgetsBudgets

The budget is the document through The budget is the document through which the board determines what which the board determines what services will be provided, how they services will be provided, how they will be funded, and to what level they will be funded, and to what level they will be funded. will be funded.

The budget is the single most The budget is the single most important document in the board’s important document in the board’s duty to provide servicesduty to provide services

The budget is the document through The budget is the document through which the board determines what which the board determines what services will be provided, how they services will be provided, how they will be funded, and to what level they will be funded, and to what level they will be funded. will be funded.

The budget is the single most The budget is the single most important document in the board’s important document in the board’s duty to provide servicesduty to provide services

OrdinancesOrdinances

An ordinance is a local law prescribing rules An ordinance is a local law prescribing rules of conduct related to the corporate powers of conduct related to the corporate powers of the governmental body. It is a law that of the governmental body. It is a law that can be enforced by the officials of the can be enforced by the officials of the governmental body. It is intended to be a governmental body. It is intended to be a permanent part of the governmental code. permanent part of the governmental code. (Ordinances can also be organizational and (Ordinances can also be organizational and can grant powers, such as a licensing can grant powers, such as a licensing ordinance). ordinance).

ResolutionsResolutions

Resolutions are usually less Resolutions are usually less permanent and deal with matters permanent and deal with matters which are less permanent or which are less permanent or temporary in character. They are temporary in character. They are more often used to grant special more often used to grant special privileges, express opinions, or to privileges, express opinions, or to communicate with other communicate with other governmental bodies. A resolution governmental bodies. A resolution may be used to adopt a budget. may be used to adopt a budget.

Resolutions are usually less Resolutions are usually less permanent and deal with matters permanent and deal with matters which are less permanent or which are less permanent or temporary in character. They are temporary in character. They are more often used to grant special more often used to grant special privileges, express opinions, or to privileges, express opinions, or to communicate with other communicate with other governmental bodies. A resolution governmental bodies. A resolution may be used to adopt a budget. may be used to adopt a budget.

County Offices/DepartmentCounty Offices/Department

ClerkClerk TreasurerTreasurer SheriffSheriff CoronerCoroner

Clerk of Circuit Clerk of Circuit CourtCourt

Register of Register of DeedsDeeds

Surveyor Surveyor District AttorneyDistrict Attorney

Other County DepartmentsOther County Departments Human/Social Human/Social

ServicesServices University University

ExtensionExtension AgingAging HighwayHighway Planning & ZoningPlanning & Zoning FinanceFinance PersonnelPersonnel

Land Land ConservationConservation

Veterans AffairsVeterans Affairs Corporation Corporation

CounselCounsel Parks/RecreationParks/Recreation Waste Waste

ManagementManagement OthersOthers

County Board Role re County Board Role re Offices/Depts.Offices/Depts.

While the county board has While the county board has overall budget authority, its overall budget authority, its relation to the county offices and relation to the county offices and departments must be consistent departments must be consistent with the statutes and with the statutes and constitutionconstitution

In general, the county board has In general, the county board has less authority over elected and less authority over elected and constitutional offices/departmentconstitutional offices/department

GovernanceGovernance

Effective board operations are Effective board operations are based on mutual based on mutual understanding and respect understanding and respect for each other’s position and for each other’s position and viewpointviewpoint

Governance RolesGovernance Roles Leadership responsibility can easily become Leadership responsibility can easily become

confused and controversialconfused and controversial The county executive has the overall The county executive has the overall

leadership role in those counties having leadership role in those counties having one.one.

In a county administrator county, the In a county administrator county, the administrator takes the operational and administrator takes the operational and administrative leadership role; the board administrative leadership role; the board chairperson takes the political and chairperson takes the political and legislative leadership role.legislative leadership role.

RolesRoles Chair of each commission and Chair of each commission and

committee takes the leadership committee takes the leadership role in matters under role in matters under commission or committee’s commission or committee’s jurisdictionjurisdiction..

Commission and committee Commission and committee leadership includes setting the leadership includes setting the tone, agenda, goals, and tone, agenda, goals, and presiding at the meetingspresiding at the meetings

StaffStaff

County board supervisors and County board supervisors and department heads/staff have department heads/staff have vastly different responsibilitiesvastly different responsibilities

Board supervisors serve in a Board supervisors serve in a primarily legislative roleprimarily legislative role

Department heads and staff Department heads and staff serve in an operational and serve in an operational and advisory roleadvisory role

Policy vs OperationsPolicy vs Operations

PolicyPolicy(Board or Elected Head)(Board or Elected Head)

Related to overall mission Related to overall mission and purposeand purpose

Requires visionRequires vision Longer termLonger term Addresses key issuesAddresses key issues Strategy developmentStrategy development

OperationsOperations(Departments & Staff)(Departments & Staff)

Implementation of policies and Implementation of policies and strategiesstrategies

Shorter termShorter term Day to day operationsDay to day operations Related to smaller functionsRelated to smaller functions Addresses department or individual Addresses department or individual

issuesissues Requires attention to detailRequires attention to detail

Leadership RolesLeadership Roles (Non-elected) department heads (Non-elected) department heads

have the leadership role in their have the leadership role in their departments within the guidelines of departments within the guidelines of the policies and procedures set by the policies and procedures set by the county executive, administrator, the county executive, administrator, and/or the board of supervisorsand/or the board of supervisors

Individual supervisors have no Individual supervisors have no management or leadership role management or leadership role outside of committees and outside of committees and commissions; their authority is commissions; their authority is collective as a member of the boardcollective as a member of the board

Staff Roles and ResponsibilitiesStaff Roles and Responsibilities

Staff (non-elected departments heads Staff (non-elected departments heads and other key staff) has an obligation and other key staff) has an obligation to carry out their duties in a manner to carry out their duties in a manner consistent with the policy direction of consistent with the policy direction of the board and executive/administratorthe board and executive/administrator

Staff makes recommendations and Staff makes recommendations and give professional advice. They give professional advice. They generally do NOT make policy other generally do NOT make policy other than internal department policies as than internal department policies as authorizedauthorized

Staff Roles and Responsibilities Staff Roles and Responsibilities

Staff’s primary duty during Staff’s primary duty during meetings is to be prepared to meetings is to be prepared to answer professional questions answer professional questions and present professional reports and present professional reports to enable elected officials to to enable elected officials to make informed decisionsmake informed decisions

Staff should be prepared to offer Staff should be prepared to offer alternatives and alternatives and recommendations as neededrecommendations as needed

Staff Roles and Responsibilities Staff Roles and Responsibilities (cont.)(cont.)

A key to staff success is to A key to staff success is to remain “politically savvy while remain “politically savvy while

politically neutral”politically neutral”

Staff Roles and Responsibilities Staff Roles and Responsibilities (cont.)(cont.)

Staff has an obligation to remain Staff has an obligation to remain “politically neutral”; they should “politically neutral”; they should never take a position based on never take a position based on politicspolitics

Supervisors should not assume staff Supervisors should not assume staff are “taking a side” if the answer are “taking a side” if the answer they receive on a professional they receive on a professional question is not what they hoped forquestion is not what they hoped for

Questions & CommentsQuestions & Comments