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HomeMy WebLinkAboutRESO7299• RESOLUTION NO. 7299 RESOLUTION OF THE COUNCIL OF THE CITY OF PALO ALTO ADOPTING PROCEDURAL RULES GOVERNING THE CONDUCT OF COUNCIL MEETINGS PURSUANT TO PALO ALTO MUNICIPAL CODE SECTION 2.04.110 WHEREAS, Palo Alto Municipal Code section 2.04.120 authorizes the Council to establish procedural rules governing any aspect of the conduct of meetings and hearings for the council and .its standing committees, including but not limited to agenda requirements, the order of business, rules of order, rules of evidence, closed session procedures and rules for public participation in meetings, and WHEREAS, the Council desires to establish procedural rules in order to facilitate public participation in Council proceedings and in order to assure procedural fairness during meetings and hearings, and WHEREAS, the Council desires to further expand and implement the public's rights to participate in open government as set forth in the Ralph M. Brown Act, Government Code section 54950 et sea. NOW, THEREFORE, the Council of the City of Palo Alto does hereby RESOLVE as follows: SECTION 1. The "Council Procedural Rules" set forth in Exhibit "A" to this Resolution are hereby adopted. SECTION 2. The city clerk is hereby directed to make copies of the Council Procedural Rules available to the public and to post the rules at an accessible location in the Council Chambers, and to make copies available to all City libraries other than the Children's Library. SECTION 3. The Council finds that there is no possibility that the provisions of the Council Procedural Rules will cause a significant effect on the environment, and upon that basis finds the project exempt from the provisions of the California Environmental Quality Act. INTRODUCED AND PASSED: March 21, 1994 AYES: ANDERSEN, FAZZINO, HUBER, KNISS, ROSENBAUM, WHEELER NOES: ABSENT: MCCOWN, SCHNEIDER, SIMITIA} ABSTENTIONS: 940413 .pc 0051116 COUNCIL PROCEDURAL RULES Table of Contents 1. Public Participation in Council Keetinas 2. Order of Council Business 3. Motions 4. Quasi -Judicial Proceedings 5. $tanding_Committee Procedural Rules 6. Closed Session Procedures 940413 apc 0051116 • 1. Public Participation in Council Meetings_ (a) Council Policy. It is the policy of the council that members of the public shall have the opportunity to speak to any regular or special meeting agenda item before final action. (b) Presiding Officer's Permission Required. Any person desiring to address the council shall first secure the permission of the presiding officer. No person, other than a council member and the person having the floor, shall be permitted to enter into any discussion without the permission of the presiding officer. (c) Oral Communications. Any person who has notified the city clerk that they wish to address council shall be recognized by the presiding officer during oral communications or during agenda items on any matter concerning the city's business, or any matter over which the council has control; provided, however, that during the oral communications portion of the agenda, only items not on the agenda for that meeting may be addressed. All remarks shall be addressed to the council as a body and not to any member thereof. Council members shall not enter into debate or discussion with speakers under oral communications. It shall be the prerogative of the presiding officer to direct that the city manager will respond at a later date. This period shall be limited to three minutes per speaker and may be limited to a total of thirty minutes for all speakers. (d) Time limits for Individuals. Persons wishing to address the council shall step up to the microphone in the front of the rail, give their name and address in an audible tone of voice for the record and unless further time is granted by the presiding officer, their remarks shall not exceed five minutes. In the case of a hearing required by law, applicants and appellants should be given ten minutes for their opening presentation and three minutes for rebuttal before the hearing is closed. In the event a request is made and the need for additional time is clearly established, the presiding officer shall independently, or may upon advice of the city attorney, grant sufficient additional time to allow an adequate presentation by the applicant or appellant in a hearing required by law. (e) Spokesperson for a group of persons. When any group of persons wishes to address the council on the same subject matter, it shall be proper f.:r the presiding officer to request that a spokesperson be chosen by the group to address the council. (f) Addressing the council after motion made. Following the time for public input and once the matter is returned to the council no person shall address the council without first securing the permission of the council so to do, subject to approval of the council's legal adviser with respect to any hearing required by law. 940413 •pc 0051116 1 2. Order of Council Business (a) At seven p.m. on the day of each regular meeting, the council members, city clerk, city attorney, city manager, and such other city officers and department heads as have been requested to be present, shall take their regular stations in the council chamber, and the business of the council shall be taken up for consideration and disposition in the following order; except, that with a vote of a majority of the council members present, matters may be taken up out of order, and except as provided in subsection (b): (1) Roll call; (2) Special orders of the day; (3) Oral communications upon items not appearing elsewhere on the council's agenda. (4) Approval of minutes of previous meeting(s); (5) Consent calendar. Items may be placed upon the consent calendar by any council -appointed officer whenever, in such officer's judgment, such items are expected to be routinely approved without discussion or debate. The consent calendar shall be voted upon as one item, and the vote shall not affect the validity of the action taken upon any such individual item. Any council member may request that an individual item be removed from the consent calendar in which case the item shall be considered at the end of the agenda item in which it would have otherwise appeared. No discussion or debate shall be permitted upon items upon the consent calendar; however, any council member may request that such member's vote be recorded as other than aye on any individual item without removing the same from the consent calendar. The consent calendar shall be in two parts, as follows: (A) Items recommended for referral to any city agency, body, committ3e, board, commission or officer, (B) All other items; (6) Agenda changes, additions, and deletions; (7) Closed Sessions; (8) Unfinished business; (9) Public hearings; (10) Reports of committees/commissions, (11) Resolutions; (12) Ordinances; 940413 .pc 0051116 2 • (13) Reports of officials; (14) Council matters; (15) Council member Questions, Comments and Announcements The purpose of this agenda item is to allow Council to question staff briefly on matters upon which Council has taken action or given direction, make general comments as a reference to staff on factual matters of community concern, or make brief announcements in a manner consistent with Government Code section 54952.2. New assignments will not be given nor will major policy issues will be discussed or considered. To the extent possible, Council will confer with staff before raising matters under this agenda item. This agenda item will generally be limited to 15 minutes in length and the public may not speak to matters discussed. (15) Adjournment. (b) Items to be considered after eleven p.m. Before ten p.m. the council will determine whether it will commence any new items after eleven p.m. and shall determine which specific items will be taken up. (c) Scheduling of closed session. Special closed sessions shall be scheduled to the extent possible and appropriate prior to regular or special council meetings. Any closed session may be scheduled during or after a regular or special council meeting. (d) Meeting adjourned sine die. When a regular meeting is adjourned sine die (without a day) , all unfinished items will be listed under unfinished business on the next regular council meeting agenda; except, that where deemed necessary, the city clerk, with the city manager's concurrence, may place those business items in a different order on the agenda. (e) Meeting adjourned to date certain. When a regular meeting is adjourned to another regular meeting night, all unfinished items will be listed in their original order after roll call on the agenda of such designated regular meeting. (f) Continued items. When an item on the agenda is continued to a subsequent meeting, such item will be listed under unfinished business on such agenda unless the council by majority vote chooses to place such item in a different location on such agenda or unless the city clerk, with the city manager's concurrence, deems it necessary to place such item at a different location on such agenda. (g) No matters other than those on the agenda shall be finally acted upon by the council; provided, however, that emergency ordinances and matters deemed to be emergencies or of .an urgent nature by any council member, the city manager or the city attorney, with an explanation of the emergency or urgency stated in 940413 ape 0051116 3 • 1 open council meeting and deemed adequate under state law by the city attorney may, with the consent of two-thirds, or all members present if less than two-thirds are present, be considered and acted upon by the council. Provided further that this section shall not apply to matters taken from the table. 3. Motions (a) Precedence of motions. When a motion is before the council, no motion shall be entertained except: (1) Fix the time to which to adjourn; (2) Adjourn; (3) Take a recess; (4) Raise a question of privilege; (5) Call for the orders of the day; (6) Lay on the table; (7) Previous question (close debate); (8) Limit or extend limits of debate; (9) Motion to continue to a certain time; (10) Refer to committee; (11) Amend or substitute; (12) Take from the table. These motions shall have precedence in the order indicated above, except that a motion to reconsider shall have precedence over all motions. (b) Motions Defined. (1) Fix the time to which to adjourn. A motion to fix the time to which to adjourn requires a second, is amendable and is debatable only as to the time to which the meeting is adjourned. The purpose is to set a time for continuation of the meeting. (2) Motion to adjourn requires a second and is not debatable except to set the time to which the meeting is adjourned. A motion to adjourn shall be in order at any time, except as follows: (a) when repeated without intervening business or discussion; (b) when made as an interruption of a member while speaking; (c) when the previous question has been ordered; and (d) while a vote is being taken. 940413 apc 0051116 4 (3) Motion to take a recess. A motion to take a recess requires a second, is amendable, but is not debatable. Purpose is to interrupt the meeting. (4) Motion to raise a question of personal privilege. The right of a council member to address the council on a question of personal privilege shall be limited to cases in which the council member's integrity, character or motives are questioned, or to where the welfare of the council is concerned; the maker of the motion may interrupt another speaker if the presiding officer recognizes the "privilege." The motion does not require a second, is not amendable and is not debatable. (5) Motion to call for the orders of the day. A motion to call for the orders of the day does not require a second, is not amendable, and is not debatable. Purpose is to require adherence to the agenda. (6) Motion to lay on the table. Purpose is to interrupt business for more urgent business. A motion to lay on the table requires a second, is not amendable and is not debatable. It shall preclude all amendments or debate of the subject under consideration. If the motion prevails, and the subject is tabled, the matter may be taken from the table at any time prior to the end of the next regular meeting in accordance with subdivision (12) of this subsection. The foregoing shall not preclude any council member agendizing the subject for a late_ city council meeting. (7) Motion for previous question. A motion for previous question requires a second, is not debatable and is not amendable. It applies to all previous motions on the subject unless otherwise specified by the maker of the motion. If motion for previous question fails, debate is reopened; if motion for previous question passes, then vote on the pending motion. A motion for previous question requires a two-thirds' vote of those council members present and voting. The Purpose is to close debate on pending motion. (8) Motion to limit or extend debate. A motion to limit or extend debate requires a second, is amendable 'nd is not debatable. The motion requires a two-thirds vote of those council members present and voting. Purpose is to limit or extend debate. (9) Motion to continue to a certain time. A motion to continue to a certain time is amendable and is debatable as to propriety of postponement and time set. Purpose is to continue the matter to another, specified time. (10) Motion to refer to a city agency, body, committee, board, c. mrmission or officer. A motion to refer requires a second, is amendable, and is debatable only as to the propriety of referring. The substance of the subject being referred shall not be a scussEd at the time the motion to refer is made. Purpose of the motion is to send subject to another city agency, body, committee, board, commission or officer for further study and report back to council, at which time subject is fully debated. 940413 apc 0051116 5 (11) Motion to amend or substitute. A motion to amend or substitute requires a second, is amendable, and is debatable only when the motion to which it applies is debatable. A motion to amend an amendment is in order, but one to amend an amendment to an amendment is not. An amendment modifying a motion is in order but an amendment raising an independent question or one that is not germane to the main motion shall not be in order. Amendments take precedence over the main motion and the motion to postpone indefinitely. Amendments to amendments are voted first, then the amendment, then the main motion as amended. (12) Motion to take from the table. Subject to any applicable notice or agenda posting requirements, a motion to take from the table may be made at any time prior to the end of the next regular meeting following the meeting at which the item was tabled. It should be made at a time when there is no business before the council. Purpose is to consider business previously laid aside in favor of more urgent business. A motion to take from the table requires a second, is not debatable, and is not amendable. (c) Debate and Voting. (1) Presiding officer to state motion. The presiding officer shall assure that all motions are clearly stated before allowing debate to begin. The presiding officer may restate the motion or may direct the city clerk to restate the motion before allowing debate to begin. The presiding officer shall restate the motion or direct the city clerk to restate the motion prior to voting. (2) Presiding officer may debate and vote. The presiding officer may move, second and debate from the chair, subject only to such limitations of debate as are by these rules imposed on all council members,. The presiding officer shall not be deprived of any of the rights and privileges of a council member. (3) Division of question. If the question contains two or more divisible propositions, each of which is capable of standing as a complete proposition if the others are removed, the presiding officer may, and upon request of a member shall, divide the same. The presiding officer's determination shall be appealable by any council member. (4) Withdrawal of motion. A motion may not be withdrawn by the maker without the consent of the council member seconding it. (5) Change of vote. Council members may change their votes before the next item on the agenda is called. (6) Voting. On the passage of every motion, the vote shall be taken by voice or roll call or electronic voting device and entered in full upon the record. (7) Silence constitutes affirmative vote. Council members who are silent during a voice vote shall have their vote 940413 apc 0051116 6 1 i recorded as an affirmative vote, except when individual council members have stated in advance that they will not be voting. (8) Failure to vote. It is the responsibility of every council member to vote unless disqualified for cause accepted by the council or by opinion of the city attorney. No council member can be compelled to vote. (9) Abstaining from vote. The abstainer chooses not to vote and, in effect, "consents" that a majority of the quorum of the council members present may act for him or her. (10) Not participating. A council member who disqualifies him or herself pursuant to the political Reform Act of 1974 because of any financial interest shall disclose the nature of the conflict and may not participate in the discussion or the vote. A council member may otherwise disqualify him or herself due to personal bias or the appearance of impropriety. (11) Tie votes. Tie votes may be reconsidered during the time permitted by subsection (c)(12) of this section on motion by any member of the council voting aye or nay during the original vote. Before a motion is made on the next item on the agenda, any member of the council may make a motion to continue the matter to another date. Any continuance hereunder shall suspend the running c:f any time in which action of the city council is required by law. Nothing herein shall be construed to prevent any council member from agendizing a matter which resulted in a tie vote for a subsequent meeting. (12) Motion to reconsider. A motion to reconsider any action taken by the council may be made only during the meeting or adjourned meeting thereof when the action was taken. A motion to reconsider requires a second, is debatable and is not amendable. Such motion must be made by one of the prevailing side, but may be seconded by any council member. A motion to reconsider may be made at any time and shall have precedence over all other motions, or while a council member has the floor, providing that no vested rights ale impaired. The purpose of reconsideration is to bring back the matter for review. If a motion to reconsider fails, it may not itself be reconsidered. Reconsideration may not be moved more than once on the same motion. Nothing herein shall be construed to prevent any council member from making a motion to rescind such action at a subsequent meeting of the council. (13) Appeal from the decision of presiding officer. When the rules are silent, the presiding officer shall decide all questions of order, subject to appeal by a council member. When in doubt, the presiding officer may submit the question to the council, in which case a majority vote shall prevail. Any decision or ruling of the presiding officer may be appealed by request of any member. The presiding officer shall call for a roll call or electronic voting device vote to determine if the presiding officer's ruling shall be upheld. If said vote passes or results in a tie vote, the presiding officer's ruling shall stand. If said 940413 apc 0051116 7 vote fails, the decision or ruling of the presiding officer is reversed. (14) Getting the floor; improper references to be avoided. Every council member desiring to speak shall address the chair and, upon recognition by the presiding officer, every council member shall be confined to the question under debate, avoiding all indecorous language and personal attacks. (15) Interruptions. Except for being called to order, a council member once recognized, shall not be interrupted when speaking, except as otherwise provided for in these rules. A council member called to order while speaking shall cease speaking until the question or order is determined, and, if in order, said council member shall be permitted to proceed. 4. Quasi -Judicial Proceedings (a) Quasi -Judicial Proceedings Defined Quasi-judicial proceedings subject to these procedural rules include hearings involving the following matters: 1. Conditional Use Permits 2. Variances 3. Home Improvement Exceptions 4. Design Enhancement Exceptions 5. Subdivisions, other than final map approvals 6. Architectural Review 7. Assessment protest hearings 8. Other matters as determined by the city attorney 9. Appeals related to any of the above 10. Environmental Review relating to any of the above (b) Council Communications Outside of Quasi -Judicial Hearings It is the policy of the council to discourage the gathering and submission of information outside or any required hearing when such information will impair the council's impartiality on a quasi-judicial decision. The following procedural guidelines are intended to implement this policy, but shall not be construed to create any remedy or right of action. 1. Identification of Quasi -Judicial Matters. The city attorney, in conjunction with the city clerk and city manager, will identify agenda items involving quasi-judicial decisions on both the tentative and regular council agendas. This identification is intended to inform the council, interested parties, and the public that this policy will apply to the item. 2. Council to Track Contacts. Council members will use their best efforts to track contacts pertaining to such identified quasi-judicial decision items. Contacts include conversations, meetings, site visits, mailings, or presentations during which 940413 apc 0051116 8 substantial factual information about the item is gathered by or submitted to the council member. 3. Disclosure. When the item is presented to the council for hearing, council members will disclose any contacts which have significantly influenced their preliminary views or opinions about the item. The disclosure may be oral or written, and should explain the substance of the contact so that other council members, interested parties, and the public will have an opportunity to become apprised of the factors influencing the council's decision and to attempt to controvert or rebut any such factor during the hearing. Disclosure alone will not be deemed sufficient basis for a request to continue the item. A contact or the disclosure of a contact shall not be deemed grounds for disqualification of a council member from participation in a quasi-judicial decision unless the council member determines that the nature of the contact is such that it is not poesible for the council member to reach an impartial decision on the item. 4. No Contacts after Hearings. Following closure of the hearing, and prior to a final decision, council members will refrain from any contacts pertaining to the item, other than clarifying questions directed to City staff. (c) Findings. On any matter for which state law or City ordinance requires the preparation of written findings, the staff report and other materials submitted on the matter will contain findings proposed for adcption.by the council. Any motion directly or impliedly rejecting the proposed findings must include a statement of alternative or modified findings or a direction that the matter under consideration be continued for a reasonable period of time in order for staff to prepare a new set of proposed findings consistent with the evidence which has been presented and the decision which is anticipated. (d) Rules of Evidence. Council hearings need not be conducted according to formal rules of evidence. Any relevant evidence may be considered if it is the sort of evidence upon which responsible persons rely in the conduct of serious affairs. The presiding officer may exclude irrelevant or redundant testimony and may make such other rulings as may be necessary for the orderly conduct of the proceedings while ensuring basic fairness and full consideration of the issues involved. Evidentiary objections shall be deemed waived unless made in a timely fashion before the council. (e) Burden of Proof. The applicant and appellant shall bear the burden of proof on all aspects of the action or relief they seek. The person 940413 apc 0051116 9 with the burden of proof must offer evidence to the Council to support his or her position. (f) Council Members Who are Absent During Part of a Hearing. A council member who is absent from any portion of a hearing conducted by the council may vote on the matter provided that he or she has watched or listened to a video or radio broadcast, or video or audio recording, of the entire portion of the hearing from which he or she was absent and if she or he has examined all of the exhibits presented during the portion of the hearing from which he or she was absent and states for the record before voting that the council memberdeemshimself or herself to be as familiar with the record and with the evidence presented at the hearing as he or she would have been had he or she personally attended the entire hearing. (g) Appeals. Appeals to the council shall be conducted dg novo, meaning that new evidence and arguments may be presented and considered. All matters in the record before any other city board, commission or official shall be part of the record before the council. 5. Standing Committee Procedural Rules Council standing committees shall be subject to the following procedural rules. (a) Quorum. A majority of the committee membership shall constitute a quorum. (h) Referrals. Referrals to the standing con.L ttees shall be made by the council. Items may be withdrawn from the committee and taken up for consideration by the council at any council meeting with the consent of a majority of the council, and subject to any applicable noticing or agenda posting requirements. Council members who submit matters to the council which are referred to a standing committee may appear before the standing committee to which the referral has been made in order to speak as proponents of the matter. Standing committee meetings during which such referrals may be considered shall be noticed as council meetings for the purpose of enabling the standing committee to discuss and consider the matter with a quorum of the council present. (c) Function of committees. The purpose and intent of committee meetings is to provide for more thorough and detailed discussion and study of prospective or current council agenda items with a full and complete airing of all sentiments and expressions of opinion on city problems by both the council and the public, to the end that council action will be expedited. Actions of the committee shall be advisory and recommendatory only. 940413 ape 0051116 10 • • (d) Minutes. The city clerk shall be responsible for the preparation and distribution to the council of the minutes of standing committee meetings. The minutes need not be verbatim but shall reflect the sense of the discussion and any recommendation made with respect to each subject considered in committee. The minutes shall be delivered to all council members before the council meeting at which the committee's recommendations are to be discussed. (e) Report of committee. The minutes of each committee meeting shall serve as the report to the council. Any member may write a separate report. (f) Agenda. The chairperson of each standing committee shall prepare the agenda for committee meetings, the sequence of study being, within reasonable limits of practicality, the same as the sequence of referral. (g) Conduct of standing committee meetings. The chairperson of each committee may conduct meetings with as much informality as is consistent with council procedural rules, which shall also be in effect during committee meetings. The views of interested private citizens may be heard in committee meetings, but in no case shall a committee meeting be used as a substitute for public hearings required by law. (h) Oral Communications. Opportunities for oral communications shall be provided in a manner consistent with council procedural rules. 6. Closed Session Procedures (a) Authorized Closed Sessions 1. Subject to the advice of the city attorney and the requirements of the Ralph M. Brown Act, closed sessions may generally be held to discuss the following subjects: a. Personnel matters, i.e., (1) the appointment or dismissal of a public employee, and (2) the bringing of complaints or charges against a public employee unless the employee requests a public hearing. For purposes of this subsection, the term "employee" shall not include any person appointed to an office by the council, excepting the city manager, city attorney, city clerk, city auditor, or other person acting in a similar administrative position. The term shall not include persons acting as independent consultants, architects, and the like. b. Security matters, i.e., matters posing a threat to the public's right of access to public services or public facilities. c. Employer -employee relations, i.e., sessions with designated representatives and/or state appointed mediators or conciliators prior to and during negotiations with representatives of employee organizations regarding the salaries and working 940413 *pc 0051116 11 conditions of employees. The purpose of such sessions is to enable the City to review its position and to enable the Council to instruct its designated representatives. d. Pending litigation and administrative proceedings prosecuted by or against the City, including but not limited settlement proceedings. e. Other Closed Sessions Authorized by State Law. (b) Calling Closed Sessions 1. Subject to the advice of the city attorney, a closed session may be called by the Mayor, the Vice Mayor in the Mayor's absence, or by a majority of the City Council; at a committee meeting a majority of the committee may call a closed session. 2. Closed sessions shall be noticed on the agenda. To the greatest extent possible, the city attorney and city clerk shall use standardized agenda descriptions that are consistent with Government Code section 54954.5. 3. The council shall convene in open session and provide an opportunity for public comment as to the closed session items before any closed session. The city clerk shall be present in the open session to record council attendance and any statements made during oral communications or by the council. The mayor shall announce the item or items to be considered in closed session by reference to the appropriate agenda number or letter, or in an alternate form which shall be provided by the city attorney. (c) Attendance at Closed Sessions The city manager and city attorney, or their designees, shall attend closed sessions unless it is necessary to excuse them. Only such additional staff shall attend as are necessary and then only if the legal privileges of confidentiality obtained in an executive session are not waived. (d) Reports from Closed Session 1. It is the policy of the council to inform the public of action taken in closed session to the greatest extent possible. It is recognized, however, that the need for confidentiality is inherent in closed sessions and that certain matters if revealed may be a detriment to the results desired. The council shall publicly report: (a) any decisionto appoint, employ, or dismiss a public employee and the roll call vote thereon at its next public sheeting, (b) actions related to litigation and the roll ca'1 vote or such actions, unless the report would, in the written opinion of the city attorney for specifically stated reasons, clearly jeopardize the city's ability to effectuate service of process on one or more unserved parties or impair the city's ability to resolve the matter through negotiation, mediation or other form of settlement. Notwithstanding the city attorney's written opinion, 940413 ape 0051116 12 • the council may under any circumstance, by majority vote, determine that it is in the City's best interests to disclose actions taken in closed session related to litigation. The public report shall be given as soon as possible, but no later than the next regular meeting, and shall include the vote or abstention of every member present. The city attorney's written opinion shall be made public, along with any action taken and any vote thereon, as soon as any litigation is concluded. The city attorney shall record any ac'tic,a and vote upon such forms as the city attorney may deem desireable. 2. Reports from closed sessions shall be made by the Mayor, the Vice Mayor in the Mayor's absence, or such other City representative as designated by the Council or its committees. Such designated person is the only individual authorized to make public statements concerning the closed session. 940413 ape 0051116 13