[Added 10-20-2005 by Order No. 2006-028]
This article describes all Town Council administrative policies established for the purpose of guiding the development and implementation of administrative procedures by the Town Manager within the Town.[2] The administrative policies and, hence, the administrative procedures shall describe all legislative, administrative, and adjudicatory procedures of the Town. It shall establish policies and procedures by which municipal legislation is developed, introduced, and approved before the Town Council and by which rules and regulations are adopted by Town administrative agencies. It specifies the manner in which all the entities of the Town function administratively, through the promulgation of policies and procedures. It delineates the method and manner in which adjudicatory proceedings are to be conducted by the various Town agencies and officials who have the responsibility of deciding individual cases.
[1]
Editor’s Note: Former § 241-53, Generally, was repealed 9-8-2005 by Order No. 2005-126.
[2]
Editor's Note: See Ch. 401, Administrative Procedures.
[Added 10-20-2005 by Order No. 2006-028]
A. 
It is the policy of the Town of Barnstable that effective communication, whether written, oral, or graphic, be exhibited on all occasions in order to convey all relevant goals, policies, procedures, and facts related to all issues.
B. 
Effective management is based on effective communication. The nature of communicating is ever changing as more people are involved and depend on information; information is more complex, subtle, and subliminal; and communication depends far more on high technology. In light of these realities, the Town's communication practices shall be based on the following goals: clarity, succinctness, and timeliness.
[1]
Editor’s Note: Former § 241-54, Communications, was repealed 9-8-2005 by Order No. 2005-126.
A. 
It is the policy of the Town of Barnstable that all public officials and employees demonstrate the highest standard of personal integrity, truthfulness, honesty and fortitude in all of their public activities.
B. 
The proper operation of democratic government requires that public officials and employees be independent, impartial, and responsible to the people they serve; that government decisions and policy be made in the proper channels of the governmental structure; that public office not be used for personal gain or to advance the interests of family, relatives or friends; and that the public have confidence in the integrity of its government.
C. 
Public official and employee conduct and actions shall strive to achieve the following goals:
(1) 
To maintain impartiality;
(2) 
To ensure that public office not be used for personal gain;
(3) 
To ensure that the public have confidence in its local government.
A. 
It is the policy of the Town of Barnstable that financial management be conducted with the objectives of providing municipal service in a predictable manner and alignment with public policy goals as set forth by the Town Council.
B. 
The Town of Barnstable faces continuing operational and capital requirements to meet the increasing needs of its citizens. These requirements have to be met amidst little or no state or federal assistance and within the constraints of Proposition 2 1/2. To help ensure the Town's financial stewardship, an established program of managing the Town's finances becomes essential. To this end, the Town Council seeks policies and procedures that are financially prudent and in the Town's best economic interest. The Town Council promulgates these financial policies consistent with its responsibilities under Part VI, Financial Procedures, Section 6-8, Financial Management Procedures, of the Town Charter.
C. 
In following this policy, the Town shall pursue the following goals:
(1) 
To develop effective financial management within the Town which conform to generally accepted accounting principles;
(2) 
To simplify, clarify, and modernize the financial systems of the Town as the need occurs;
(3) 
To provide increased public confidence in public financial management;
(4) 
To provide increased economy and financial performance and to maximize to the fullest extent practicable the use of public funds of the Town; and
(5) 
To provide safeguards to ensure quality and integrity of the financial systems.
D. 
In order to obtain the above goals, the Town Council adopts the following policies:
(1) 
Accounting, auditing and financial planning.
(a) 
The Town will establish accounting practices which conform to generally accepted accounting principles (GAAP) as set forth by the authoritative standard-setting body for units of local government.
(b) 
An annual audit will be performed by an independent public accounting firm and an official, comprehensive annual financial report (CAFR) shall be issued no later than six months following the end of the fiscal year.
(c) 
A management letter, a by-product of an annual audit, shall be provided by the independent public accounting firm no later than February 1. Additional findings and recommendations may be communicated in a separate letter to be provided no later than March 1.
(d) 
A five-year financial forecast shall be prepared annually by the Town Manager, in accordance with the Charter, Section 6-6, projecting revenues and expenditures for all operating funds. This forecast shall be used as a planning tool in developing the following year's operating budget and capital improvements plan. The forecast shall be submitted no later than October 1.
[Amended 6-20-2019 by Order No. 2019-208]
(2) 
General topics.
(a) 
A Self Insurance Reserve Fund will be established and maintained to cover workers' compensation as authorized by Chapter 40, § 13A, of the Massachusetts General Laws and property losses as authorized by Chapter 40, § 13, of the Massachusetts General Laws.
(b) 
In order to cover losses arising out this fund, amount will be appropriated to cover the stop-loss premium and a sum to establish the fund for future losses.
(c) 
It is the intention of this fund to cover all losses arising out of employment injury, fire, vandalism, burglary, theft and repairs. A stop-loss insurance through an insurance carrier will be provided for catastrophic losses.
(3) 
Debt refinancing. An advance refunding of outstanding debt shall only be considered when present value savings of at least 3.00% of the principal amount of the refunded bonds are produced, unless: (a) a debt restructuring is necessary or (b) bond covenant revisions are necessary in order to facilitate the ability to provide services or to issue additional debt. An analysis shall be conducted when necessary to determine whether debt financing, cash purchase, or leasing is the most effective method of financing for the Town.
[Amended 1-6-2011 by Order No. 2011-036]
(4) 
General fund.
(a) 
Current revenues will be sufficient to support current expenditures.
(b) 
Debt will not be used to fund current operating expenditures.
[1] 
General Fund Undesignated Fund balance of at least 4% of total annual expenditures shall be budgeted. The Undesignated Fund balance shall be used to provide for temporary financing for unanticipated or unforeseen extraordinary needs of an emergency nature, for example, costs related to a natural disaster or calamity, or an unexpected liability created by federal or state legislation, new service needs that have been identified after the budget process, new public safety or health needs, revenue shortfalls, service enhancements, or opportunities to achieve costs savings.
[Amended 5-18-1995 by Order No. 95-147]
[2] 
Funds shall be allocated from the Undesignated Fund balance only after an analysis has been prepared by the Town Manager and presented to Town Council. The analysis shall provide sufficient evidence to establish that the remaining balance is adequate to offset potential downturns in revenue sources and provide a sufficient cash balance for daily financial needs. The analysis shall address the nature of the proposed expenditure and the revenue requirement in subsequent budget years.
[3] 
Prior to allocating funds from the Undesignated Fund balance the Town Council shall find that an emergency or extraordinary need exists to justify the use of these funds. Funds shall be allocated each year in the budget process to replace any use of Undesignated Fund balance funds during the preceding fiscal year to maintain the balance of the Undesignated Fund balance at 4% of budgeted expenditures.
[Amended 5-18-1995 by Order No. 95-147]
(c) 
The year-to-year increase of actual revenue from the levy of the ad valorem (property) tax shall generally not exceed 2.5% (Proposition 2 1/2):
[1] 
Excluding taxable value gained through consolidation;
[2] 
Excluding the value gained through new construction; and
[3] 
Excluding expenditure increases funded outside the tax limit cap; and
[4] 
Not excluding the valuation gained or lost through revaluation or equalization programs.
(d) 
Property values shall be appraised at a minimum every three years.
(e) 
The Town shall encourage the Town Treasurer/Collector to follow an aggressive policy of collecting property tax revenues. An average collection rate of at least 95% of current levy shall be maintained.
[Amended 6-20-2019 by Order No. 2019-208]
(f) 
Charges for service and other revenues shall be examined annually and adjusted as deemed necessary to respond to changes in cost of service.
(g) 
An adequate level of maintenance and replacement will be funded each year to insure that all capital facilities and equipment are properly maintained as needed and tied to proper repair and maintenance procedures.
(5) 
General obligation debt.
(a) 
All debt shall be financed outside the limitations of Proposition 2 1/2 with the exception of debt related to Enterprise Funds, gifts, and betterments. The requirements for such financing shall be an expenditure of at least $250,000 and a useful life in excess of five years.
[Amended 5-18-1995 by Order No. 95-147]
(b) 
The term of long-term debt generally shall not exceed the expected useful life of the capital asset being financed and, in no case, shall it exceed 20 years.
(c) 
The ratio of net debt (total outstanding Town of Barnstable general obligation debt less reimbursements) to total assessed valuation shall not exceed 1.5%. This excludes debt of overlapping jurisdictions.
(d) 
The ratio of debt service to total expenditures (operating expenditures and debt service combined) shall not exceed 15%.
(e) 
The Town shall target a Standard and Poor's (S and P) ratio of 8%. S and P ratio is calculated by dividing overall net debt per capita by effective buying income per capita.
(f) 
Current revenue should be committed annually to provide sufficient "pay-as-you-go" financing so that, at the end of five years, annual contributions from current revenues amount to 10% of new debt to be issued.
(g) 
Excess appropriated bond issues shall be placed into a bond repayment fund account at the end of a project completion. The only purpose of the bond repayment fund account shall be:
[1] 
To make bulk principal paydowns against general bond debt; or
[2] 
To be used to pay down the principal on any bond issue at the time of refinancing as provided for in Subsection D(3) of this § 241-56.
(6) 
Offset receipts and Enterprise Funds in general.
(a) 
The Town shall establish and maintain offset receipts and Enterprise Funds pursuant to MGL Chapter 40, § 39, and Chapter 44, § 53, respectively, wherever possible in order to ensure annual operation and maintenance needs are met and such services are financed in an equitable manner.
(b) 
The term of debt for offset receipts and Enterprise Funds generally shall not exceed the useful life of the asset, and in no case shall the term exceed 30 years.
(c) 
Principal repayment delays shall not exceed five years.
(d) 
An offset receipts and Enterprise Fund shall maintain a fully funded debt service reserve for its existing bond issues and future issues.
(e) 
Debt service coverage of at least 1.25 times shall be the target.
(f) 
Short-term debt, including tax-exempt commercial paper, shall be used when authorized for interim financing of capital projects. The term of short-term debt shall not exceed five years. Total short-term debt shall generally not exceed 10% of outstanding long-term debt.
(g) 
Ongoing routine, preventive maintenance should be funded on a pay-as-you-go basis.
(h) 
Capital enterprise projects should be financed through a combination of cash financing and debt. A ratio of at least 10% equity contributions is desirable.
(i) 
All offset receipts and Enterprise Funds shall maintain a working capital reserve, defined as cash and investment pool equity in current assets, which is equivalent to 30 days of budgeted operations and maintenance expense.
(j) 
Rates for offset receipts and Enterprise Funds shall be designed to generate sufficient revenues to support the full cost (direct and indirect) of operations and debt and provide debt service coverage, if applicable, and to ensure adequate and appropriate levels of working capital. Rates for the Department of Community Services Enterprise Fund shall be designed to generate revenue amounts less than required to support the full cost (direct and indirect) of operations and debt and working capital.
[Amended 5-18-1995 by Order No. 95-147]
(7) 
Gifts and grants.
(a) 
All grants shall be managed to comply with the laws, regulations and guidance of the grantor; and all gifts and donations shall be managed and expended according to the wishes and instructions of the donor.
(b) 
All gifts and grants shall be evaluated for suitability and consistency to Town policies. They shall also be formally accepted by both the Town Manager and the Town Council.
(8) 
Capital Trust Fund. A Capital Trust Fund is hereby established for the purpose of financing debt service for recommended capital improvement program projects, as contained within the Town's five-year capital improvement plan.
[Added 5-18-1995 by Order No. 95-147; amended 5-21-1998 by Order. No. 98-119]
(a) 
The Capital Trust fund will be funded through a general operations set-aside at a minimum of $1,900,000 annually.
(b) 
The Capital Trust Fund shall not be utilized for any purpose other than that stated herein.
(c) 
The criteria for reviewing capital project eligibility for Capital Trust Fund borrowing include the following:
[1] 
The capital project shall have a financing term of 20 years or less;
[2] 
The capital project shall have a minimum project cost of $250,000;
[3] 
The capital project is approved by the Town Council for funding through an appropriation and loan order submitted by the Town Manager.
(d) 
The Capital Trust Fund will have a debt service restriction on the fund, such that debt service estimates from authorized loan orders shall not exceed, at any one time, more than 80% of the amount in the fund as of the close of the fiscal year prior to the next debt service authorization, unless recommended by the Town Manager
(e) 
The Capital Trust Fund shall otherwise function in accordance with related financial policies of the Town.
A. 
It is the policy of the Town of Barnstable to authorize the acquisition and utilization of vehicles for use by officials of the Town, in the conduct of their employment responsibilities. Municipal employee are obligated to comply with the provisions of this procedure when their employment responsibilities require use of a municipal vehicle.
B. 
This policy is based on the following guidelines:
(1) 
Legal compliance with all federal and state laws, rules, and regulations;
(2) 
Appropriate financial security;
(3) 
Proper maintenance of all Town vehicles; and
(4) 
Superior ethical conduct by Town employees when using vehicles.
It is the policy of the Town of Barnstable that, giving due regard to the financial limitations of the Town, prudent managerial oversight should limit risks and exposures. Local governments are subject to four basic types of risks: real and personal property loss; loss of income or increased costs associated with property loss; personnel loss; and liability. In response to these potential losses, the Town of Barnstable shall always consider and pursue the best action or combination of actions to control risk: risk avoidance; risk prevention; risk assumption; and risk transfer. The purpose of this policy is to provide a functional tool for insurance management. In pursuing this policy, the Town shall abide by the following goals:
A. 
The Town should not insure itself against minor recurrent losses;
B. 
Self insurance should be used where risks are recurrent and financially manageable; and
C. 
Insurance be sought for potential major losses.
It is the policy of the Town of Barnstable that, giving due regard to the safety and risk of investment, all available funds shall be invested in conformance with legal and administrative guidelines and maximize yields with the minimal risk and utilization of collateralization when requested. Effective cash management is recognized as essential to good fiscal management. An aggressive cash management and investment policy will be pursued to take advantage of investment interest as a viable revenue source. The Town's portfolio shall be designed and managed in a manner responsive to the public trust and consistent with state and local law. Investments shall be made with the primary objectives of:
A. 
Preservation of capital;
B. 
Maintenance of sufficient liquidity to meet operating needs;
C. 
Security of Town funds and investments;
D. 
Diversification of investments to avoid unreasonable or avoidable risks; and
E. 
Maximization of return on the portfolio.
A. 
The purpose of this policy is to establish guidelines for the selection and utilization of computers in the Town of Barnstable. This policy is also intended to set up support procedures and personnel for assisting users in acquiring and utilizing computers.
B. 
Computers are currently being acquired and used in most Town departments. This occurrence is streamlining work and changing the way many employees view information and its effect on their jobs. The decreasing costs and increasing power have put computers in the reach of all departments. The Town recognizes the need to define the appropriate role for the computer.
C. 
While acknowledging the power of the computer to increase productivity, there is a need to set standards for ensuring compatibility. There is also a need to review uses for appropriate minicomputer applications and ensure that information systems needs could not be handled better in some other manner. These computer policies are specifically intended to attain the following objectives:
(1) 
Encourage the use of technology of all types to improve and enhance the efficiency of the Town's procedures and practices whenever and wherever possible.
(2) 
Maintain and promulgate standards for computer technology and general electronic information management. Provide policy guidance to the management on the review and purchase of computer technology (hardware, software, and communications) so as to insure compliance with published standards.
(3) 
Maintain procedures and policies to insure that the Town's electronic resources are properly managed. Emphasis shall be placed on insuring that electronic information is easily accessible by those departments requiring access.
(4) 
No deviation from published hardware, software, communications, or information management policies/standards without a written waiver signed by the Town Manager and/or his/her designee.
(5) 
Centralize functions which can be automated and/or centralize so as to maximize the utilization of the Town's personnel and/or other financial resources.
A. 
It is the policy of the Town of Barnstable to establish and maintain an equitable personnel system. This system should also promote the efficiency and economy of government, to promote the morale and well-being of Town employees, and to promote equal employment opportunity for all employees and candidates for employment.
B. 
The dynamics of personnel management must mediate between organizational change and the need for technical stability through affirmative action, human resource planning and cutback management, productivity, and labor relations. Effective personnel management must also balance the four values of social equity, responsiveness, efficiency, and individual rights. The personnel policies are based on the following principles in order to balance these values:
(1) 
Recruiting, selecting, and developing employees on the basis of their abilities, knowledge, and skills.
(2) 
Providing equitable compensation.
(3) 
Training employees as needed to assure high quality performance in delivering quality services to the public.
(4) 
Retaining employees on the basis of the adequacy of their performance, correcting inadequate performance, and separating employees whose performance does not adequately improve.
(5) 
Assuring fair treatment of applicants and employees in all aspects of personnel administration without regard to political affiliation, race, color, national origin, age, sex, creed, handicap, or any other nonmerit factor, except where such factor is a bona fide occupational requirement, and with proper regard for their privacy and constitutional rights as citizens; prohibiting discrimination against any person on the basis of such nonmerit factors.
(6) 
Assuring that employees are protected against coercion for partisan political purposes and are prohibited from using their official authority for any purpose other than those duties and responsibilities directly associated with their positions in Town government.
It is the policy of the Town of Barnstable to procure goods and services that help the organization deliver quality, competitively priced services in a manner as environmentally benign as practicable to the citizens and visitors of Barnstable. The Town's procurement policies are intended to minimize risks and realize efficiencies by way of superior management consistent with the Commonwealth of Massachusetts Chapter 30B of the General Laws: Uniform Procurement Act; Chapter 30, § 39M; and Chapter 149, §§ 44A through M. The Town of Barnstable's management of procurement will be conducted with the primary objectives of purchasing competitively priced, quality goods and/or services in quantities necessary to accomplish service delivery objectives. The Town of Barnstable recognizes that the use of taxpayer funds deserves the greatest care in procuring goods and services which are as environmentally benign as practicable and which enable the Town to attain its objectives in a cost-effective manner.
A. 
It is the policy of the Town of Barnstable to manage its public land and waters, buildings and structures in order to protect the public's investment.
B. 
Effective property management is based on the following basic principles:
(1) 
Protect against liability.
(2) 
Preserve and enhance financial and natural assets.
(3) 
Provide for appropriate access.
(4) 
Maintain visual and cultural character.
(5) 
Use of public lands and facilities shall be consistent with applicable open space, recreation, historic, building, and land management plans.
C. 
These principles are best served by the pursuit of the following goals:
(1) 
Protect against liability:
(a) 
Ensure that insurance policies provide for asset replacement where practical.
(b) 
Provide appropriate security for all properties.
(c) 
Provide for appropriate maintenance and improvement of buildings, structures and lands.
(d) 
Seek the removal of attractive nuisances.
(e) 
Educate users as to safe and appropriate activities.
(2) 
Preserve and enhance financial and natural assets.
(a) 
Implement long-range capital improvement plan
(b) 
Develop management plans for all lands and facilities.
(c) 
Establish guidelines for asset acquisition and disposition.
(d) 
Provide for appropriate maintenance and improvement of buildings, structures and lands [Subsection C(1)(c)].
(e) 
Enforce rules and regulations regarding public use and access.
(3) 
Provide for appropriate access.
(a) 
Enforce rules and regulations regarding public use and access [Subsection C(2)(e)].
(b) 
Educate users as to safe and appropriate activities [Subsection C(1)(e)].
(c) 
Provide for appropriate maintenance and improvement of buildings, structures and lands [Subsection C(1)(c)].
(d) 
Implement American for Disabilities Act Plans for access.
(e) 
Develop management plans for all lands and facilities [Subsection C(2)(b)].
(4) 
Maintain visual and cultural character.
(a) 
Provide for appropriate maintenance and improvement of buildings, structures and lands [Subsection C(1)(c)].
(b) 
Enhance and preserve the physical appearances and vistas.
(c) 
Ensure conformity to existing zoning, historic district guidelines, and local comprehensive plan architectural design guidelines.
(5) 
Use of public lands and facilities shall be consistent with applicable management plans for open space, recreation, historic, building, and land.
(a) 
Develop management plans for all lands and facilities, and update every 10 years, or more often as is required, except as noted below.
(b) 
Ensure conformity to existing zoning, historic district guidelines, and local comprehensive plan architectural design guidelines [Subsection C(4)(c)].
(c) 
Provide appropriate security for all properties [Subsection C(1)(b)].
(d) 
Provide for appropriate maintenance and improvement of buildings, structures and lands [Subsection C(1)(c)].
(e) 
Ensure that all maintenance and improvements to existing buildings and structures or the development of new ones are energy efficient.
(f) 
Seek the removal of attractive nuisances [Subsection C(1)(d)].
(g) 
Educate users as to safe and appropriate activities [Subsection C(1)(e)].
(h) 
Develop and implement the Town's Open Space and Recreation Plan, and update every five years, or more often as is required.
(i) 
Follow appropriate federal and state grant guidelines to ensure eligibility for funding property management objectives.
(j) 
Establish effective coordination with the state and federal government, other municipalities, Barnstable County, Fire Districts, not-for-profit organizations, and others where necessary.
D. 
In order to effectuate this policy, the Town should ensure consistency in the application of all other administrative policies which have a direct interrelationship to the property management policy of the Town.
A. 
It is the policy of the Town of Barnstable that trust fund management be consistent with the legal requirements, including Town ordinances, and spirit of each respective trust document and, to the maximum extent possible, realize the purposes the trusts were intended to achieve.
B. 
Trust fund management will be conducted with the primary objectives of:
(1) 
Conformance to each trust document's specified purpose, legal requirements, and administrative guidelines;
(2) 
Adherence to the Town of Barnstable general ordinance providing for the administration of Town trusts;[1]
[1]
Editor's Note: See Ch. 86, Funds.
(3) 
Preservation of capital;
(4) 
Maintenance of security of trust funds and investments;
(5) 
Maximization of total return for each trust fund;
(6) 
Efficient disbursement of funds on an equitable basis; and
(7) 
Effective collection of all due monies.
The Town of Barnstable recognizes that volunteers are an integral part of the Town's government. Their participation in the process of government contributes to the uniqueness of the Town's quality of life. Volunteers choose to act in recognition of social responsibility and without concern for monetary gain, going beyond what is necessary to one's physical well-being. A citizen may choose to be a policy-making volunteer or a service volunteer. The Town of Barnstable is committed to providing adequate support, training, leadership, and recognition for all its volunteers. It expects commitment and excellence from the volunteers. The Town has the right to determine duties, authorities and appropriateness of volunteers. Following established volunteer management protocol, the Town has the right to both select and remove volunteers.