HomeMy WebLinkAboutReport of Augusta Legal Services Subcommittee
Au.gusta Richmond GA
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PECa2 '98 11:39AM MCG FRESIDENT'S.OFrIC2
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B'EPORT OF AUGUSTA LEGAl. SER"iCES SUBCOMMlTnx.
September 22, 1998
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Members:
GeFald Woods. Chairman
lws. Terri Harlan .
James L Ke.ndrick
Patrick J. Rice
Dr. Yvonne J. Shaw
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REPORT OF AUGUSTA LE'GAL sntvrczs SUBCOM1W:.ll.i.'E
September 22, 1998
TABLE OF CONI:ENrS
1 BAClCGROtJND. . . . . . '.' . . . . . . . . . . . . . , . . . . . . . . , . . .'. . . . . . . . . . . . . . . . . . . . . . 1
11 S}:OPE OF LEGAL SERViCES RBOutRED .....................,......'.......... 1
m. .gvALUATIV'EFAC1'ORS. . . . . . . . . . . . .'. , . . . . . . . . . . . . . . . . . . ~. . . . : . ,,' . . . . . . . .2
I'\f. OrnONAL Moms ...,. .... , . . . . . . . . . . . , . . . . . . . . . . . . . .. . . . . . . . . . . . . . . . . .4
V. EV.A.LUATION OF' FACTORS ,............,.........,....................... 4
\l1. ~...........................,.....,..... ...,......,......,...,....,5
VII. CONCLtJSION.,. . . : . . . . . , . . . . . . . . . . . , , . . . , . . . . . . . , . , . . , . . . . . . . . . , . . . . . 9
VIII. CA V'=.-AT "iO CONCLUSTON , . . . . . . . . . . .. , . . . . . , . . . . . . . . . . . . . . . . , . . . . . . . . , . . 9
IX. APOSSiBtE AL!ER.1'otATIVE , . . , . , . . . . , , , , . . , . . . , , . , ' . , . . , . . . . . . . . . . . . . . . ..9
X. S~y , , . . . . . . . . . . . . , , , . , . , . . . . , . . . , . . ,.. , . , . . . . . . . . . . . . . , ' , , . . . . 10
~. AC1CNO'N"'I..WG~-rs. . . . , , , , . . . . , . . , . , . . . , . . . . , , . , . , . . . . . . , . . , . . . . . , . 10
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DEe 02 '98 11: 39AM MCG PRESIDENT'S OFrrCE:
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Rn'ORT OF AUGUSTA LEGAl SD.""'IaS SUBcoMMITl"EE
September 22, 1998
1 BACKGROtJND
This is a report of the special Subcommittee appointed by the Augusta Commission to
study the procurement of legal services for the City of Augusta. The Subcommittee"s instruction
was to advise the Commission about the "best method" for prcC'.1ring legal services for the
consolidated government through (I) outside counsel, (2) in-house counsel or (3) some
combination.1 The Subcommittee was not asked to address the question of whether the
~rnmi.saion is required by the consolidation legislation passed to establish. an. office of in-house
coUI15el,and the Subcommittee has not done so. Likewise, no attempt was made to compare the
quality of services delivered in Augusta to those in other communities.
II. SCOPE OF LEGAL SERVICES REOtilRED
The sheer breadth of the services demanded by the City of Augusta is mbstantial. In
addition to serving the Commission, representation is also provided to the offices of the Tax
Assessor, Board ofElections,Po.r'-.s Authority, Personnel Board, Augusta. Aviation Commissio~
Daniel Field and the Human Rcla.tions Comminee, among others. An a.ttempt a.t listing the legal
services required is an.a.c.~ed hereto as Appendix 2. 'Without 'limiting the scope of that listing,
Augusta requires advice ar..d services in the following areas of substantive law:
Municipal Law
Employment Law
Ad Valorem Taxation Law
El acti ons Law
Real Estate Law
Acquis itionslCondemnation Law
Construction Law
Contract Law
Health Insurance Law
Pensions
Americans with Disacilities Act
Family Medical Lsave Act
Labor Law/F air Labor Standards Act
Transit law
Enviranmental/WetlandslFiood Plain
Waste Disposal
Federal Grants
Drafting Legislation
Zoning Matters
Alcohol Licensing
Housing and Neighborhood
Development
Bid Disputes
Bond Law
Prisoner Law
Polica/Fira Depa~ment Matters
Trial Law
Federal and State Regulator! Law
Each of these areas is an area of speci:iliz:ltion within itself. It is impossible for anyone
la'~er to master all af these areas ar to be truiy competent in more than a. few, The consta.ntiy
1 See Appendix 1. These u.'1ree (3) options .ll'e 7eferred to in this ~ort as "Models."
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DEC 02 '98 11:40AM MCG PRESIDENT'S OFFICE'
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expanding body ofkncwledge in each of these areas requires seve:rallawyers whether inside or
cutii.de. The ever expanding body offederal and state regulatory law reqUires constant schooling
and stUdy. Regardlesa, therefore, ofwbich model is chosen, Augusta will conrlm..te to need to
engage ,outside spedalim to handle some of its work.
Currently, Mr. Wall devotes most aihis time to the City's work. Ms. Lori D' Alessio, a
younger attorney in his office, also spends all other time on personn.cJ. and related ",att~rs. Mr.
Hatty Revell and Mr. run EIliso~both experienced attorneys, spend about 30-4QO.Io of their. time
on :\l1guata busin.esa. Mr. Wall's time is billed at eighty-five dollars per hour. The time of the
other three (3) attorneys is billeci at sevemy-five dollars per hour. These charges are about one-
half their normal rates of charge.
m. EVALUATIVE FACTORS
The Committee believes there are at least six (6) major factors which must be evaluated in .
. attempting to determine the "best' manner in which Augusta should procure legal services. These'
factors are:
Quality
Independence
."\.ccountability
Accessibility
Manageability
Cost Containment
A brief delineation of these factors is essential to funher,discussion.
1. Oualin. Augusta. is a S307,OOO,OOO.OQ enterprise. It.is, in a sense, one. of the .
area.' s biggest businesses. The need for first quality legal.services is pa.ram.ount.
Augusta. should and muSt have the best legal services available. The "quality"
factor, therefore, should be the driving consideration in this .study.
2. rndeuendenc~. It is essential that the legal1dvice given to the Augusta.
Commission, the :Mayor and to the various City departments be truly independent. .
The City' 3 la'WYers cannot be the "Mayor 5" lawyers or 'the lawyers of any gr9up
crf Commissioners or political faction. They must render opinions and advice.
based on the law and the interest of the community as a whole and not the private
or personal interests of any individual or individuals.:
% The Subcommittee recommends that the City develop guidelines and safeguards
designed to assure the independence of:ts legal counsel and to protect against real and perceived.
con:tliC'...3 of interest. . . .
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3. .A..ccoun!abili'tY. The City must establish a clear chain of command which specifics
to whom the City Attorney is generally and. ultimately accountable. It is assumed
that the wignmep.t of legal work, generally, would be sup~-ised by the City
Administrator or one individual within the City Administrator's office. This ,.
pe~on, in conj1Jl1cUon with and at the direction of the Commission, would as&ign
priorities and scheduling deadlines to au legal assignments. Day-to-day reporting
, should be centraliz-tood. Routine statUs reportS of all pending matters should be
fumi3hed to the City AdIninistrator and the "Commission on a. regular. basis.
Periodic: performance evaluations by the City Administrator and Commi.ssion
would be beneficial to both the City and the Attorney. 3 While maintaining ultimate
authority over the City Attorney, the Commission would not be responsible for
day-to-day supervision.
4, Accessibilitv, Subjec: to recommendations made below, Augusta's legal services
must be readily available and easily accessible to the Commission, the Mayor and
the various City de~arnnems. It is the Subcommittee' 3 suggestion that the
Commission and the City Attorney establish a protocol far Commission me.'t1ben, .
depart.'Ile."lt heads, supervisors, and other employees to ac:ess the CIty A.:rtorney' 3
office.
Under the present ~5tem, except in situations where a. City depanment has
established iu own rules as to who may contaCt the City Anorney, virtually any
City employee may contact the City Attorney for legal advice or services. Wbile
such an open syStem has some positive attributes, the inefficiency and potential. for
misusing the limited time of the City Atf..omey outweighs any advantages.
A st.-ict protocol should gove.--n all contaCt on the City _~"tomey by City
employees. Any such protocol, howeY'er, should provide for a means to allow
contact where the protocol is being misused by gatekeepers, supervisors or others.
S. Mana\!eabilitv; .\:Yl1atever means of proC'.mng legal seIVices is. selected, it must be
a manageable arrangement ,~th clC3I' lines of authority a."ld responsibility. Policies
and guidelines designed to guarantee quality, ac:esslbility, independe.'lce,
ac::ountabillty .a.t}d cost eff~.iveness must be developed.
6. Cost Effectiveness. Though quality is the primary factor, the proc:.lrement of legal
services must include due consideration of the need for cost effectiveness. The
City has finite resources and the taxpayers must ;'lot be ':urdenecf with
unnecessarily e~;:ensive legai costs. .
:1 Tne Succorr.mittee alsc recommends that obiec:ive criteria be adooted to evaluate the
City Attorney} s office and \:0 i'rovide the City .-'UtomeY with guidance. .
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IV. OPTIONAL Mooas
This Subcommittee's charge to advise the Commission on t.ie best method for procuring
legal services contained three (3) possible models:
(1) Utilizing outside counsel only (as in the present arrangement);
(2) Utilizing in-house counsel only; and
(3) Utilizing some combination of outside and uwde coWiSel-- -_..-
The Subcommittee has attempted to evaluate each of these optional. models and has drawn on the
experience o~ and information provided by, the present City AttOrney, the City Administrator, the,
City Attorney in Columbus, Georgia (a consolidated government), the City Attorney in Athens,
Georgia (a consolidated govemment), and the County Attorneys' office in Chatham County,
Georgia (outSide general counsel or County Attorney and in-house assistant). Some of the
information received from each of these offices 'Nill be discussed below.
V. EV ALlJATION OF FACTORS
a) The Experience of Other Commur.ities
The Subcommittee has considered each of the fac:ors enumerated above in attempting to
furnish the Commission with a recommendation as to the "best" manner in which to procure legal
services within the frarnew-ork of one of the optional modeLs. This consideration has led the
.Subcommittee to conclude that there is no necessarily "best" model for a community the size of
Au~.Jsta. .
Of necessity, larger communities, such as Atlanta. and possibLy FultOn and Deka1b
Co\,\nties, may be forced into an in-house model because of manageability and accessibility
requirements. Augusta, however, does not appear to have reached the point where an in-house
mode! is viitua.Ily mandated.
. An objective appraisafof Augusta's and Richmond County' 3 histOrical outside counsel
arrangements suggests this model hag served the City/County well. Similarly, however, the in-
house model ha:! served CoLumbus well for several years and appears to be serving Athens well.
Tne Committee believes different models: have worked in these communities principally because
of the individu:ar a.ttorneys invcived. Columbus' anomey has a. very long te:U1re in office and
signilicant exper-ise in a ",,-ide variety of areas based, in some substantial part, OD length of service.
Sizr.i]ariy, Au gl.l S!a.' 3 presenroutside attorney has bene5tted from the long service aihis
former law par..."1er, Robert C. Daniel, Jr., as Richmond COUnty Attorney and his 0VII1 experience
in worki."1g alongside MI. Daniel. .
The City Attorney in Athens has been in his position for approximately four (4) years and
had eleven (11) years experience.prior to that as a. part-time: A.)sistantCity Attorney.
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b) Nrj Model Can Satisfy Certain Evaluative FactOrs
'While Other FsC'..ors Appear More Achievable Based on Specific Models
In the Subcommittee'! opinion. severa! of the ~aluative factor3 can ret::1ve equal
emphasis regardless of which model is chosen. Asanming the e:xisten~ of adequate policies,
procedurea a.a.d guidelines, my of the three models could be strUc:ured to provide acceptable
leveLs of acc:saibillty, acco~ility, and manageability. It is the Committee's judgment, .
however, that greater independence or at least the perception of greater independence could be
achieved through the ouuide caunsel model. All of the models, including the outside counsel
model, will need constant vigilance in this area. .
Similarly, the Committee is int:lined to believe that, for a. city the size of Augu~ a higher
aualitv of service may be a.cbieved through utili~tion of the outside counsel. model or II
combination of an outside City Attorney and inside staff attorney(s) model. Employing an inside
City Anorney with the breadth of knowledge, ability and experience of the current City Attorney
and his immediate predecessor at a wary less than S125)000 to S150,OOO is not likely. No doubt
there are many attorneys who wo.uld seek such a position for a. lesser salary but those with real
experience and ability in. the areas necessary are few and far between. It: however, the City is
willing to pay, the quality factor 15 achievable in-house. Whether someone with the desired
experience could be :mployed, in-house, immediately is a. matter which the Subcommittee has not
investigated.
This leaves the cost contairunent factor as the final. but not necessarily the decisive
consideration.
VI. COST
a) AUg'..lSta . Present
Despite the coope.ration of the Augusta City Attorney mdthe Ci.ty Administrator, the
Subcommittee is still not certain that the figures as to the total cost of lesal. services delivered ~e
specificallyacC'.ll"atc. The Subcommittee has no reason to believe that ~~ere has not been fiill
disclosure, but the figures reported by the City Attorney and the expendimres reported by the City
Administrator are slightly inconsistent. The City Attorney reported. 5372,857 as billed to the
consolidated government for 1997 .andestimated that an additional S45,OOO worth of
administrative support was provided by the City. Mr. Wall repons that of the menies expended
for legal services in 1997, 544,336.99 were fer SPLOST (Special Purpose Local Option Sale .
Tax) projectS and S28,592.11fer Risk Management which inciudes claims against the Shcr..ff and
other liability claims. This totals 572,929.12.
The Clty A..dII".inistratcr initially reponed expenditures of 5442,53 S for legal services. A
later analysis by the City AdminiStrator produced a seGond total of S480,503 (See Table 1 for
details). 'Nbile various reaso::S fur the ~ences were considered, the Subcommittee was unable
to detennine which figures were the mest ac;urate. The:::ore, the Subcommittee arbitrarily
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selected the second set of figures, provided by the City Administrator fer COmtJar1son purposes
and for the purpose oftata! objectivity; In addition, it was assumed that the City Admimstrator
possibly would. have cost information not available to the City Attorney.
Table 1 below sets forth the cost data upon which Augusta's 1997 ~mparison figures are
founded.
Table 1
Augusta's A'tt01726yS' FIltl:l-1991
DeScription
Burnside, Wall, Daniel, Ellison &: kvell
Ca.pers, Dunbar, Sander3 &: Bruckner
Harry James, ill (CDBG)
Dye, Tucker, Everitt, Wneaie &: Long
Altman, Kritzer & Levick (pension)
FltZ'patrick. Cella. & Harper (Environmental.)
:Misc. AIty.,Reporting & Legal Services
Administrative Com
Personnel Services & Supplies
Ope..~ting Costs
. Amount
5393,252.07
11,764.57
11,142.00
4,867.50
5,068.00
2,482.35
15,517.54
521,764.85'
14,644.22
Grand Total
S480,S03.10
b) Companhies
The Subcomrni~..ee 3elected wee Georgia ccmmuni:ti.es from which to obtain C".lI'rent cost
data to compare to Augusta' s e:xperienc~. The 1997 fiscal year was ch.ose:J. as the base year since
that was the.year for wmch the most rec~nt actUal cost data was available. !he communities
chosen were Columbus, Athens and Chatham County. (In addition to colleC"'Jng data from these
communities, the Subcommittee talked to r~resentatives of these governments about their legal
seMces).
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. The Subcommittee did its best to obtain reliable information upon ..wich to base its
comparative cost analyses. rust as it hu beert difficult to be completely ce..."tain of the total cost of
legal servic= uicurred by the CIty of Augusta, verifying me completeness and comparability of
these com in other communities has been extremely difficult. Attached as Appendix 3 is the
budget of Athens' City Attorney's office. Attached as Appendix 4 is the budget of the Columbus
City Attorney's office. ,Attached as Appendix S is the budget for the County Attorney in Chatham
County,. The difference in the line items in each budget is striking. Notably, none of these
budgets rdlect a charge for rem. Only AtheM' budget reflects a charge for e1ec:rlc.ity, water or
sewer Service. Equipmem and supply charges are either absent or somewhat suspect.
These budgetS cause the Subcommittee. to suspect that the true costS of operating an in-
house City Attorney' 5 office, after an appropriate allocation of all overh.esd and expense items, is
considerably more than shown by any of the budgetS considered.
It is interesting to note that 3tudies similar to that of this Subcommittee have been
undertaken by Other communities. In 1997, Chat.lum County attempted to make an analysis of
the cost of leg a! servic:s in counties having a population of 150,000 or more. A copy ofiliat .
study is ~.a.ched as Appendix 7, Importantly, tbis analysis contained the following state..nent:
"The rea.!. issue on providing legal services hinges on the quality of
that service."
Also of interest was the finding of the Chatham County study that Richmond County' 3 1997 costs
were 51.02 per capita based on a. budget of $200,000. These figures were incorrec:. As noted in
the study, the information reflected by the study wdependedentirely upon the county employee
who answered the question and provided the response.
T'ne Subcommittee decided the most meaningfui method of comparing cost figures is to
compute them on a per capita basis... Table 2 presents such a comparison. '
Table 2.
1991 Legal Population Per Capita Legal Services
E:xpense! 1990
Augusta 5480,503 189,i'19 I $2.53 Outside
Chatham .County .. I .. S3 94, A60 I 216,935 $1.82 I Outside
AIhens I 5323,400 I 87,594 I 53.69 I In-House
Columbus \ 5363,191 I 179,178 $:4.03 In-Hause
4 The Augusta. City .~omey's general budget ror 1998 is attached as Appendix 6. This is
attached to compare line items in the various Oudgeu available to me Subcomrnicee.
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. Not a. consolidaTed govermncnt. Cost usociated with City
Attorney's office would need to be added in to give a tIUe pictUre
oflega! costS in Sa.vannah/Chatham CoWlt)'o
As shown by Table 2. the cost of the Athens in-house counsel operation is SJ.69 per
capita. Athens' in-house City Attorney met with the Committee and stated definitely that,
. although he believed. in the- in-house model, it would n.Q! be the least expensive model for Augusta.
to adopt. -
The Columbus in-hcuse Clty Attorney operatiol'1r however, is approxi1:tlllltP'iy 50 een13pu
capita ch.ez.per than Augusta' 3 outSide counsel modeL One of the reasons fer this is the long
tc:mre of, and relatively modeSt salary paid to; the Columbus Attorney. When he retires, we
be1ievethe Columbus coStS willliramatically increase because of the need for additional attorneys.
. There. also, are some differences in the scope of services rendered by the Columbus attorney and
Augusta's attorney.
Chatham County':; (an outside/inside model) Cost must be used with caution because it
does not include the cost of the City Attorney's operation.
AugUsta, therefore. presently finds itselfberween Columbus and Athens inpe:r capita.
costs for legalservtces. No doubt Augusta also would be less than the combined per capita cost
of Sa.vannah. and Chatham County.
c) Bond Fees
Traditionally, City and COW1ty Attorneys have received additional fees associated with
bond issues. :Many attorneys .believe these additional fees are the only wa.y City anq County
attorneys can continue to charge hourly rates in the 575 - $85 range which. is substantially below
market. ..
Bond fees, however, have be:n decr~ng in recent years. and exactly what savings, if any,
the City would realize on a. bond issue if an in-house City .~"'tOmey received no fee is a matter
concerning which the Subcommittee has no information. These fees are generally negotiated and
it is not kno-wn if bond counsel's ove.''al.1 charge would change or not if an in-house City Attorney
were in place.
. d) Augusta In-House Model Costs
The Subcommittee has fowid it extremely difficult to estimate the coSt of an in-house legal
3ervlce model. It has'oeen furnished a. memora.'1dum prepared by Bren.da-Byrd-Peiae:z, Director
of Augusta's Office ofEqual-Oppommity dated December 11, 1997, entitled ''Provision of1.egal
Services." Tnis memorandum contains an estimate of ~he cost of a completely in-house City
Attorney' 3omcc. This esti.mate is attached as Appendix 3 and :furnishes a. range of annual costs
between $37'2.756 to 5532,000. TIlls estimate assumes the principal City A.rtomey could be
employed for a $3.l.ary ofbr:t"Nee.'l 580,000 to S90,000. The Subcommittee believes this estimate
is law if Augusta. is going to have the quality attorney necessary. Additionally, the estitnate .
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c:cntains no provision fer the cost of outside, specialized legal help which will definitely be
required, nor for secretarial services: The Subcommittee has not attempted. to. verifY other costs
wociated with an in-house operation.
One matter to consider in estimating future costS is thatthe hourly.rate charged by Mr.
Wall' 3 office has not changed in a number of years. TmlS, there has not been a cost of living
increue which. might be inevitabLe in an in-house model.
vn. CONCLUSION
. An analylia of all available information does not create a convincing argument for
change in the present system. While tbis Subcommittee made no attempt to evaluate the
qualIty afJepl services presently rendered to the City, we rueived no credible criticism of
that quality. Likewise, we received no Criticism ofpnsent counsel's independence. The
coat information available to the Subcommittee contains no suggestion that the City is not
receiving real v:uue for the services it ret:eives. Additionally, there is DO convincing
evidence available which would. suggest tbat the adoption of an in-house model would be as
economical as the present outside counsel model. .
VTII. CA;n:'-A T TO CONCLUSION
The Subccmmittee's findings and recommendations were not UI1R.nimnusly agreed upon.
Some members or the Subcommittee believe strongly that an in-house City Attorney' 3 office will
be a more economical method of providing legal sernces. These members also believe all of the
factors listr:d in SeCtion m above can all be obtained by adopting an in-house model
IX. A POSSIBLE ALTERNATIV''E:
As stated in Section yea) above, there is reason to conclude that as the City grows the
need for in-house counsel may increase. This seems to be the conclusion reached by tile larger
cities/counties such as the Clty or A1lanta, Fulton County, Dekalb County, Cobb County and
Gwinnett COWlty. Should. the Augusta Conunission desire to test the advisability of an in-hou~
counsel arrangeme.'1't, initially, the Subcommittee suggests that the CUI1'e%1t arrangement be
modified by employing one full. time assistant attorney to work within the confines of the
Municipal Building. This individual could render suc..'1 services as the City Attorney and the
Commission would be best suited to define. On the surface, it would appear that routine
contracts, matters involving purchases and bidding, resolutions, ordinance drafting and routine
persoMel matters might be handled by such a person. The quaHiicatior.s and, therefore, the pay
of such anindivieual would be less that :hose of the City Attorney. Such a person could report to
the Chy Attorney, as is the situation in Cha!..~am County, or repon dire~.ly to the City
. AdministT:uor 'N"ith coordination of the City Attorney. Each relationship would present special
, issues which should be spelled out in the wrinen policies. .
Secretarial. services, copying facilities and the COst of supplies might be shared 'N"ith others
in the Administrator' 3 . office. If this modeL is tried. the Commission should be careful to make a
compLete allocation of all COStS associated with the in-house a.ttorney ane this would include all
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DE:G ~. '98 l1:.:19AM MCG FRE:::;~DENT'S OF::-~l:;;'
P.13
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shared. expenseS. This information might provide some basis for calC1]l~~"g the cost of
implementing a completely in-house operation.
X. SUMMARY
The Subcommittee summarizes its conclusions and ret:ommendatior.s as follows:
1. There is no convincins argument for a change in the present system of procuring
legal services fer the City of Augusta.. .
'2. Regardless of the model chosen for the provision oflega! services; the City should
develop guidelines and safeguards designed to assure the independence oflega!
counsel and to prOtect against real and perceived conflicts of intereSt.
3. Policies~ also, should be adopted as to day-to-day supervision, assignmenu,
schedules, status repons and performance evaluations.
4. Guidelines should be developed as to which City employees may contact the City
Attorney while guaranteeing necessary ac::~ssibility.
s.
Should Augusta desire to experiment with an in-house model for legal services, it
might start with the employment of one full-time assistant attorney who would be
responsible for clearly defined areas. Lines of authority and reporting
responsibility also would need to be clearly deiined..
XI. AcrNO~"Lq)G'EME~rrS
The Subcommittee expresses its appreciation to NIt. Oliver, the City Attorney, the City
Attorneys in Columbus and Athens and the Chatham County Anorney' 3 Office.
RespecrtUlly submit""~ . I . / . .
_~~ je/V-/ ~ ~ .1$
C Gerald W oads, ChaiIman .
JJ "J~A' O.J) aJLJh'-
Ms. Tern P...arlan
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DEC 02 'S8 11:46AM MCG PRESIDENT'S OFFICE
P.14
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. LumY E. SCONYERS
MAYOa.
April 7 I 1 998
Mr. Patrick J. Rice, Attorney
P.O. Box 1564.
Augusta, Georgia 30903
Dear Pat:
The Augusta Commission In meeting held April 6, 1998 appointed you as a
subcommittee to study the best procurement of legal services for the consolidated
government through (1) outside counsel; (2) in-house counsel; or (3) some
combination.
Mayor Pro-Tern. Lee Beard and I would like to meet with the subcommittee on
Wednesday, April 15, at 3:00 here in the Mayor's Office to discussion the scope of
. services of the subcommittee and to answer any questions you may have.
Tnank you for agreeing to serve and we look forward to seeing you on April1Sth.
Cc: TMe Honorable Lee. Beard, Mayor Pro Tem
Cc: Members of the Augusta Commission
Cc: Mr. Cnarles "Randy" Oliver, Administrator
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DE;C 02 ' 98 11: .:17~M Mer; PR::;SID8'lT-' S OFF'ICE:
P.1S
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SCOPE OF WORK OF BICHMOlm COtlNI'Y Arr~
1. Personnel:
a)
b)
c)
d)
e)
f)
g)
'h)
i)
Policies
Eea1t.h Inwran~
Pension Issues
Discipline/ A.ppeal.s
SubstanCe. Abuse
EEOC Responses
FLSA
ADA
Family Medical Leave
2. PublicWorks:
a) Drain.a.ge
b) R.ea1 EsutefTitlelEasemel1ts1Closings
c) Liability Issues -drainage
d) Construction ContractslEngineering ContractS
e) rnffic Engineering
~ Cond~on
g) Consnucno.n Disputes
h) Street Dedication
i) Road .-\bandonment
j) Private Road Isaues (flagpoles)
3. Reereation:
a) Personnel
b) Construction.
4. Facilities: (under publicwork3)
a) Constr'l.lction"
b) Comrac:s
c) Leases
d) Contamination/Clean-up
s.
Tr:U1Sit:
a) P~sonnel/Substance abuse
b) ConrractS . Advertising/Shelter/Schools
c) Rural Transit
d) F ederai Grants
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DEC 02 '98
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11: .;17~M MCG ?~E3:DEJ'tT-' S OFFIC=::
P.16
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6. Infortn2tion Technolon~
a) Radio comra.cts
b) T ower ContraCtS
c) Software ContraCtS
d) Software DisputeS
e) Cable Agreements
t) Franchise A~ems
..7. Trees & Parla:
Trees
8. Utilities~
a) lUtes
b) ConstrUction - Bond Projects
c) Constructed WetlandsIBirdslCo%Uent Order
d) privatization of Sludge Hauling
e) Water & Sewer Rates
f) Right-of-Way Questior.s
g) Antenna Agreements on Water! owers
h) Lead-based Paint
i) Personnel - on-call
9. Animsl Control:
a) Ordinances
10. B..C.Q:
a) ContraCts
b) Medical
c) Inmate Complaints !Liability
11. P'annin~ & Zonin~:
, a) . Rezoning ISSUe:!
b) S etl:::acks
c) Development ptans
d) Ordinar.ces
e) Riverfront review
f) Signs
g) Varia-nees
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DEC 02 '98 11:48AM MCG PRESIDENT'S OFr I CE'
P.l?
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11) Appeals Board ..
i) VeSted Right/Grandfather
D Flag Poles
12. License &: Insnection:
a) Alcohol Lic~5e$
b) BusinesaLicense - Tran,sierrt, etc.
c) Vacant LotsiOvcrgrovm LotslCondPm\1ation ofProperti.es
hearings . IprosecutiOl1 in magistrate's court
.ci) Animals
e) Zoning Violations
f) Demolition (title searches/procedures)
13. Housini & Nei2:hborhood Develooment:
a) u"DAG Loans
b) HUn Regulations
c) Facade Grant/Construction Disputes
d) . CDBG Agreements
e) CEOTA's (Community Housing)
f) Loan Programs/Closings
14. ~:
a) Personne.lJFLSA
b). T esring Findings
c) Leasesl! owers
.d) Underground Storage Tank
15. ~urc:ha5i~:
a) Bid Disputes
. b) policies
c) ComraC"'..s
16.
Risk Mana1!~ment:
a) Bends
b) . Insurance
c) Claims
St:eets.
transit
auto
sheriff
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DEC e2 '98 11:4SAM MCG PRESIDENT'S. OFFICE ,
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17. Finsnc:~:
a) Tax Issues
b) SPLOST agreements
c) PenSion
d) BondIFinancing Issues
e) Funding IssueslUse of Funds
18. Libnu....:
a) Property
. b) Contracts
19. Gener.d:
Administrato r
a) GrantslComractsIPersonne1/Citizen Complaints (business lice.'1Ses, etc.)
b) Business Development
c) Ordinances
d) Personnel.
e) DOC".Iment Approval
20. Commission:
a) Committe: Meetings
b) Commission Meetings
c) Agenda Ite..-n
21.
Sheriff:
. a) Jail
. b) Medical
c) 911
22.
Tax Commission:
Exc::ss Levies
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DE: 82 ' 98 11: S2.C:;M MCG ?RESIDEj~T' S OFFIC~'
EXPENDiTURE OETAlL
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.~ COUNTY AT'T'OANEV .
. .me l!AUAIESANOWAGS JO-ss-t-. CO. ~1Q~1'" ~1S.:so ~'l1.1= S1'S..wc
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. ~~. . D,:C 02 '98
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CATE:
TO:
FROM:
SUBJECT:
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--~-------- ----.
11 : 55AM MCG ?RE3 IDEi~T' S OFi='" ICE.
P.2S
I N T ERa F I, ICE
,1/ l~
#(..<J ~~~~
March 26. 1997 'I" tt! ~~ ~r 'f..o+- !\ .
RoE. Abolt, County Manas'" ~ ~ t r;;-'. ?-
.~~
. ~I
Patrick C. Monahan. A.=ist:lnt CQtJnty Manager '{-1
C.::unty At"..=mey Servl~s
Bl1s!das the lnformation provided to the.Eoare airea~y, t would. like ta offer
an an~liy:si3 on hew the urban eotJnt1es in Georgia (defined as those counties
with pc:pulatiQn af 15Q,000 or more) provide legal servic:es. This analysis
~rcvides a t:nic:tue vantage point because it uses ccmparative ciata from the same
=~nties from 1990 to 1S$7 (YOIJ might remember, a stmilar issue arose befcre
the Board in 1990).
R
N
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M
Please note that t.":esa f'esuits do net inc:cata anything about the ~t:anty
of legal s.ervicss. The responses de~ended entirely upen t.,e county employee
who answe.red the ~uestiQns and ~rov\ded the rest=lot".se.
A 1. SURVC"( RESUL TS/COMPARtSQ./'!;:-!-. How the results o~ the 1997 .
suNey e~m~ares to the resul"::$ cf the 1950 survey can be seen OM Attachment
1. A few observations:
D
1.1 In 1990, oni)' three c~ur.ties used in-nouse legal service$. 5':( 1$51,
this numeer inc:-eased tc fIV'! counties {OeKaib ~nd Cobb
transfonned}. Tcciay, all four counties larger than Chatham County
use ti,.e services of in-hous~ c:~unsei and ~=mpanyins in-house
legal s:aff. in addlticn. MtJ:s==gee County (cQnsoti~tac! government)
also uses in-house counsel. This indicates the move tg...wrd. in..
ho~e legal SQrvlcss-at least in Ia.r;er c::lunties..
1.2. The real Issue on providing ~egal servicas hinges en :be .~uattt'i of
. thai seNic:=. The tZurvey dees nQt address this issue..
1 ~ On t.."':e tssue Qf e~ the surveys ?ro~de c:om;=arative sna~shots af
each count'(s tctalbudget fer legal services. WhUe useful, a
problem rem3ins with this bread..based approach. Unless budget
ciet:ils =an be. prov;dQd. thedifficu!tv comes In knowing the scope
of legal services each county handlQs. For e:::am?le. 5cmelJ.rl::an
counties race si'eeial1zsd areas In SQme environmental issues
(landfills and water a"~ scwe:-) than other- =Quni:i~ do not.
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DEC a2 '98 1l:56AM MCG ?R:::::IDE:--IT'S OFrIC:::'
?26
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1.4 SInce it wou1d not be fair to compare the onLy budget doitars Qf
more pc:?u1a:ed urban c:Juntics in the mct::"o Atlanta area, I attempted
. to pr=vida 3 ~ommcn c,mit Qr me:S;Ur9. For this. I calculated pel'
capft: c:::st (~opufatrc" divided by county attorney': budget-the
1990 repcrt Frovided the sama unit of measura).
a. The per capita cost r:ang~ from DeKalb CC\,Utty at S2.S4 to
Riehmond County at S1.02 in 1997.
b. The aVQr'aga of aJi nine countfes amounted to $2.08 par capita
in 1997 (=mparcd ~Q 51.55 in 1990). .
Co Chatham County r:ml<3 as the third lowest e=st per capita in
19S7 at $1.71.
d. With this data. it would be unfair to dr.nv any correlation
betwGen t:czts assoc;a'tad with in-house regal counsel in
c:=m;:arison to corrtra~ s~Nices. Hcwever. it can bG pclnted
Qut-that irl-hcuse legal seNicas atMusccgae-Cotumow: (which
rep~Qn~ ~Q organi~tion=) tcrt::1ls S1.49 pGr =Fita~ whieh is
lass than Chat1,am CountyJs S1.71 pGr ca;:ita. However, thE!
legal services provided in-hcuse in the four other targe
countfas Q%:aec:s the per :apita rate of Chatham County.s
$1.71 at S2.54, Fulton c.ounty; S2.S2 DaKar!: County~ 52..S2;
Coco CQt:nty. i:a.C2; and Gw;nne'tt County, $1.S1. Itshoutd ca
nctad that all four of these counties also re?l"esent
populations In tc,e half-mHIion I:ao~le range ana mere. In
ad Cltlo l'l1 tt,e scope of tietr Je;atservic2S may also inc!ude
services net provided iM Chat.'1am County (i.a.s;:aei:iHzeci for
water and Q~wQrjenvirenmQnta.lJare..).
1.5 The situation of CaKalb an: C~bc ~~tlnties may be rel~vant ~o
. Chat.~:m CQl.Ln'ty's rnview of ttlfs lsstJe. In "tSSO~ beth ~ed =ntract.:5
fa:' legal servic:ss but by 1997, beth movr:d tc'N'ara in-house lesal
saNies. WhiI~a basa for Cobb County C3n net be used (in 19$0,'
CQb.b County u:ed five different law firms 3nd dId net prc:vide any
estimate En the sUT'\!ey), OeKalb County ~rovidesan example.
a. CeiUJb Counrts l:luaget fer lesal ser"licss vfa c:;ntra~
In=:aasad fromSa~CIOOO in 1990 to $1,700,000 in 1957 via in-
nQuse s'taffing. DeKaib County's ;=er capita e::::j:lense inc.-aasec
fr:lm SL4.6 to S2.92. It'Nould be unfair to draw a ccnciusicn
sines other fac~rs than the transfer from contract to in-house
legal servicz= I:culd l;aU~e a SQ% lncraa.:a during this pcariocL
2. USE OF OUTSiCe A TiORNEYS. Besices the County At:=mey1s legal
fees~ Chatham County also ccntrac:ed with eight Qt.~el" attorneys [n 1956 (as
many as 16 ether fu"ms during the ~ast few years} for s;:ee:auzed servfces.
Almcst all of these invQtve tw'c .:l,.,;:.as: 1} OeTgnciing ~~ath::;m Caunty in lawsuits
brought by jail Inmates; 2) Representing Chatham County In ~ appea1s.
. 2..1 Attachment 2 shews the usa of c:Jn'tra.c:t legal ser-I;cas, hours ana
tct:aI amcur:=:: ~3IcL
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DEe 02 '98 ll:S7AM MCG PRESIDENT'S OFF'Ia::
P.27
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2.2. Outside [egal services totalled some $43,S65. 'ihLs repnr.sen= some
584 flours. an average at $75.28 per hour (the C4unty AUcmey's r2te
is S8Q per .hcur1. This n:!t:2rasams about one-third of a full-time
position (based en 584 ncur: divided .by %OQO man-hours).
3. STATUS OF tN-HOUSe ATTORNt::V mu- Tnt! lecal ac:t th:t win
amend the 5tr.lbiIng Act tc authome an in-house attomey should be passed by
the Genara1 As:iembly within the next few days. This amencbnent clarifies that
the Board can LlSQ its. cfi$c:ation in setting up the Ccunty Attorney's Offica v;a
cantr3ct or as in-hQ~ c:cw=el.
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DEe 02 '98 11 : seAM MCG PRESIDENT'S OFF"ICE
P.29
Compensation
Genera! Counsel
Senior Attcmey
Junior Attorney
1 Paralegal
1 Secretary
Fringe Benefits
Initial Start-up Capit:1l
Legal Fees
(outside counsel)
Office Space
U tiIi ti es
Telephone
Office SupplIe", Copier, Fax
Books
Training :tnd Conference!
Tr.1vel
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Estimated Budget:1ry Cost
Augu.rt:z's Legnl Depdrtment
FY98
$188,000 - 225,000
S 80,000. 95,000
S 45,000 - 55,000
S 35,000 - .45,000
S 28,000. 30,000
(budgeted)
S 55,400 - 66,000
S 40,000 - 50,000
S 50,000 -1501000
S 10,356
S 3,600
S 6,000
.. -
S 0,000
S 5,000
S 10,000
S 10,000
53;2.;56 - ~32_000