Thornton Table of Contents
City Council Policies Document
Title Page
Boards and Commissions
1.1 Appointing City Council Representatives to Outside Boards and
Commissions – CD No. 2026-005
1
1.2 Advertising for City Board, Commission and Agency Vacancies – CD
No. 2024-122
3
1.3 Businesses of Thornton Advisory Commission (“BTAC”) Member
Qualifications
5
1.4 Interviewing Applicants for City Board and Commission Vacancies – CD
No. 2024-122
6
1.5 Board, Commissions and Committees Code of Conduct 7
Communications
2.1 Advertising in the Inside Thornton Magazine 9
2.2 Cable Access to Thornton’s Cable Channels 11
City Events
3.1 Sales or Distribution of Materials at City Events - Repealed 15
3.2 Sponsorships at City Events 16
Council
4.1 Council Pay and Benefits 17
4.2 Council Policy Direction 18
4.3 4.4 Designating the Voting Delegate and Voting on the issues being
considered at the CML and NLC Annual Business Meetings
Ward Reapportionment 20
21
Education/Schools
5.1 Education Foundation Funding CD No. 2021-176 22
5.2 School Site Donation by Developers 23
5.3 Youth Event Funding Program CD No. 2021-029 24
Disposition of City-owned Property
6.1 Disposition of City-owned Real Property 28
6.2 Donation of City-owned Surplus Equipment 30
Human Resources
7.1 Meet and Confer Recognition for City of Thornton Employees 31
7.2 Performance Appraisal of City Manager, City Attorney, Presiding
Municipal Judge – CD No. 2023-096
Off-Duty Police Employment – Stand Alone Ordinance #1872 CD No.
89-135
34
n/a
Financial
8.1 Appointment of Financial Advisor Related to the Issuance of Debt 37
8.2 Setting of Sewer Utility Rates and Charges CD No. 2022-159 38
8.3 Use of Debt 39
Title Page
8.4 Settlement of Litigation Matters 40
8.5 Water Rights Protection 41
8.6 Fund Balances and Cash Reserves 42
8.7 Private Activity Bond Allocation 44
8.8 Business Assistance Guidelines for Retail Businesses 47
8.9 Primary Employer Assistance Guidelines 51
Land Use
9.1 Annexation (zoning/subdivision in compliance with Comp Plan) 56
Property/Facilities
10.1 Community Projects - Criteria for Designating and Locating on City
Property
57
10.2 Capital Improvement Projects Funded by the City 59
10.3 Gifts, Property Donations, and Temporary Loans of Personal Property
to the City
60
10.4 Naming of City Facilities 66
10.5 Public Input and Transparency in Construction of New Public Buildings 69
10.6 Residential Speeding Control Program – Guidelines for Establishing
iWatch Speed Awareness Neighborhood Program
73
Att. A Travel, Training and Subsistence Reimbursement – Stand Alone
Ordinance #3681 CD No. 2024-060
77
Att. B City Council Policy Rules of Order and Procedure
Ord.#3736 CD No. 2025-134
84
Att. C City Council Policy Code of Conduct
Ord.#3733 CD No. 2025-088
92
Updated 1/14/2026
City Council Policy
Appointing City Council Representatives to Outside Boards and Commissions
Policy Number: 1.1
Legislative History: CD 2014-071 and CD 2015-016 appointments for 2014 and 2015. CD 2015-211
appointments for 2016-2017. CD 2016-159 changed the appointment to the School District 27-J
Capital Facilities Foundation. CD 2016-233 changed the appointment to the Denver Regional
Council of Governments and I-25 Coalition. CD 2017-173 changed the appointment to the Colorado
Municipal League Policy Committee, effective October 16, 2017. CD 2017-274 appointments for
2018-2019. CD 2018-015 removed the Rangeview Library District Liaison from the list. CD 2018-169
changed the appointment to the E-470 Highway Authority. CD 2019-021 appointments for 2018-
2019. CD 2019-168 appointments for the remainder of 2019 through 2021. CD 2021-192 changed
the representation for the Denver Regional Council of Governments through 2022, the North Area
Transportation Alliance effective January 1, 2022 through 2023, and other various boards and
commissions through 2023. CD 2022-008 added the State Highway 7 Coalition to the list of Council
representatives. CD 2022-060 changed the representation for the Adams County Regional Economic
Partnership through 2023. CD 2022-174 changed the representation for the E-470 Highway Authority.
CD 2023-239 appointed representatives for 2024 and 2025. CD 2025-008 appointed representatives to
various boards and commissions for 2025 after Kathy Henson’s resignation.
1. Purpose
The purpose of this policy is to identify the City Council members who will represent the City on
various outside Boards and Commissions.
2. Policy
The 2025-2027 Council representatives on external boards and commissions are as follows:
Board/Commission Appointee
Adams County Regional Economic
Partnership (ACREP) – Civic and
Business Alliance
Member – Karen BigelowDrew Morris
AlternateMember – Mayor Kulmann
Alternate – Jessica SandgrenDavid Acunto
Member – Cherish Salazar
Adams County Regional Economic
Partnership (ACREP) – Development
Council
Member – Mayor Kulmann
Alternate – David Acunto
Adams County Regional Economic
Partnership (ACREP) – Business
Advocacy and Public Policy Committee
Adams County Community Transit Policy
Council
Member – Mayor Kulmann
Member – Devin Byrd
Alternate – David Acunto
Airport Coordinating Committee (ACC) Colorado Municipal League Policy
Committee (CML)
Denver Regional Council of Governments
(DRCOG) (Effective February 1, 2024)
E-470 Highway Authority Member – Jessica Romito, Active Adult Program
Manager
Member – Jessica SandgrenJohn Alge (or
designee)
Member – Tony UnreinTBD (or designee)
Member – Roberta AyalaCherish Salazar
Member – Chris Russell
Alternate – Karen BigelowDrew Morris
Member – Justin Martinez
Alternate – Roberta Ayala
Member – Tony UnreinDevin Byrd
Alternate – Jessica SandgrenChris Russell3
City Council Policy
Appointing City Council Representatives to Outside Boards and Commissions
I-25 Coalition (Weld County) Member – Karen BigelowDrew Morris
Alternate – David Acunto
North Area Transportation Alliance
(NATA)
Member – Justin Martinez
Alternate – Tony UnreinJohn Alge
City Council Policy
Appointing City Council Representatives to Outside Boards and Commissions
School District 27-J Capital Facilities
Foundation
Member – David Acunto
State Highway 7 Coalition Member – Chris Russell
Alternate – Tony UnreinDevin Byrd
4
CITY COUNCIL POLICY
BOARDS, COMMISSIONS AND COMMITTEES
CODE OF CONDUCT
City Council Policy
City Boards, Commissions and Authorities Membership and Advertising
for Appointments and Reappointments to Boards, Commissions and
Authorities
Policy Number: 1.2
Legislative History: CD 1992-096; CD 2020-130
1. Purpose
The purpose of this policy is to provide guidance regarding Board, Commission and
Authority membership and advertising for applications and interviewing applicants
for appointment and reappointment to Boards, Commissions and Authorities.
2. Policy
(a) It is the desire of this City Council to have broad representation of the community
reflected in the membership of the City’s Boards, Commissions and Authorities
and to ensure that applicants for quasi-judicial boards and commissions,
because their duties and decisions may impact individual rights, are properly
vetted. Toward that end, each board’s, commission’s and authority’s bylaws will
define the number of members that will represent each ward to provide equal
representation from each ward on such Board, Commission, and Authority. In
addition, background checks will be conducted as a condition of appointment or
reappointment to the Building Code Advisory Board, Local Licensing Authority,
Planning Commission/Board of Adjustment, and Election Commission to ensure
that the applicant has not been convicted of a felony for embezzlement of public
money, bribery, perjury, solicitation of bribery, or subornation of perjury.
(b) The City Council will limit the appointment of any person to just one City Board,
Commission, or Authority to provide a broad representation of the community
and opportunity for community members to serve.
(c) Appointees requesting reappointment must complete a reappointment
application. The City Clerk shall, at least 30 days before the application deadline,
advise members that their terms are expiring and that they may submit a
reappointment application.
(d) The City Clerk shall advertise for new applications for appointment to a Board,
Commission, or Authority at least 30 days before the application deadline.
(e) If, after providing notice to submit a reappointment application and advertising
for new applications for at least 30 days before the application deadline pursuant
5
CITY COUNCIL POLICY
BOARDS, COMMISSIONS AND COMMITTEES
CODE OF CONDUCT
to subsections d. and e. of this section, the City Clerk shall bring forward all
“satisfactory applications” as determined by the City Clerk, and attendance
records of applicants seeking reappointment for City Council direction. For
purposes of this subsection, a “satisfactory application” means it was timely
submitted and complete and shows the applicant may satisfy the applicable Board,
Commission or Authority qualifications and composition requirements. Based on its
review of satisfactory applications and attendance records, the City Council shall
provide direction to do any of the following:
(i) Reappoint those members applying for reappointment identified by Council,
(ii) Interview those applicants for appointment or reappointment identified
by Council pursuant to Council Policy 1.4,
(iii) Readvertise the position for at least another 30 days.
6
City Council Policy
Businesses of Thornton Advisory Commission (“BTAC”) Member Qualifications
Policy Number: 1.3
Legislative History: CD 2008-139; CD 2011-130
1. Purpose
The purpose of this policy is to establish the qualifications for the composition of the members of
the Businesses of Thornton Advisory Commission.
2. Policy
a. There shall be a minimum of nine and a maximum of fifteen members on the Commission.
b. A majority of the commissioners shall be residents of the City.
c. A minimum of five different types of businesses, as defined by the North American Industrial
Classification System (NAICS) at a three digit level, shall be represented on the Commission.
d. A minimum of one commissioner shall represent the businesses in each of the following
geographical areas:
i. South area of Thornton – south of 104th Avenue to the southern City boundary
ii. Central area of Thornton – between 104th Avenue and 124th Avenue
iii. North area of Thornton – between 124th Avenue and the northern City boundary
e. A minimum of one commissioner shall be a representative of a large business consisting of
100 or more employees.
f. A minimum of one commissioner shall be a representative of a small business of 99 or fewer
employees.
g. A minimum of one commissioner shall be a representative of a business with local ownership.
h. A minimum of one commissioner shall be a representative of a business with public/national
ownership.
i. Multiple representatives from the same business shall not be appointed.
j. Council will appoint only business owners or managers.
7
City Council Policy
Interviewing Applicants for City Boards, Commissions and Authorities
Policy Number: 1.4
Legislative History: CD 2009-060; CD 2020-130
1. Purpose
The purpose of this policy is to establish the circumstances under which City Council
and the appropriate City Boards, Commissions or Authorities will conduct interviews
of applicants desiring to be appointed to fill a vacancy and certain Board,
Commission and Authority members requesting reappointment. For purposes of this
policy, “applicant” means an applicant desiring to be appointed or a member
requesting reappointment to a Board, Commission, or Authority who Council
directed to be interviewed pursuant to Council Policy 1.2.
2. Policy
a. Only applicants that may satisfy the Board, Commission or Authority
qualification and composition requirements will be interviewed and considered
for appointment or reappointment.
b. When the number of applicants is fewer than or the same as the available
positions on a Board, Commission or Authority, the City Manager or designee
shall refer the applicants to the appropriate Board, Commission or Authority to
interview, provided the Board, Commission or Authority can form a quorum.
Based on the interview, the Board, Commission or Authority will prepare a
written recommendation to City Council regarding which applicant(s) should be
appointed or reappointed or if the Board, Commission or Authority finds that no
applicant should be appointed or reappointed.
c. When there are more applicants than available positions on a Board,
Commission or Authority or if the Board, Commission or Authority cannot form a
quorum, the City Manager or designee shall schedule interviews for all the
applicants with City Council, unless City Council directs the City Manager or
designee to refer the applicants to interview with the appropriate Board,
Commission or Authority other than the Building Code Advisory Board, Local
Licensing Authority, Planning Commission/Board of Adjustment or Election
Commission. If City Council so directs, the Board, Commission or Authority shall,
based on the interview, prepare a written recommendation to City Council
regarding which applicant(s) should be appointed or reappointed or if the Board,
Commission or Authority finds that no applicant should be appointed or
reappointed.
8
CITY COUNCIL POLICY
BOARDS, COMMISSIONS AND COMMITTEES
CODE OF CONDUCT
Policy Number: 1.5
Legislative History: CD 2023-155
SCOPE: This Code of Conduct provides a framework to guide members of boards, commissions and committees
in their actions. The Code of Conduct operates as a supplement to existing City Codes, including (but not limited
to) City of Thornton ethics law. Boards, commissions, and committees are referred to generally as “boards” in
this policy; members of boards, commissions, and committees are referred to generally as “board members.”
Boards are important to the City’s decision-making process, act on behalf of the City Council in their volunteer
roles and help share and further community discussions on complex issues and topics. Boards are composed
of individuals with a wide variety of backgrounds, personalities, values, opinions, and goals. Despite this
diversity, all have chosen to serve the public in order to preserve and protect the present and the future of the
community. In all cases, this common goal should be acknowledged even though individuals may "agree to
disagree" on contentious issues.
While disagreement may arise during board meetings as different perspectives are shared, a high level of
professionalism and civility is expected of all board members throughout their tenure. Civil disagreement and
criticism of policy is fine but personal attacks will not be tolerated. It is important that members treat each other
and the public with respect, even through disagreement.
Members of a board, commission, or committee, by nature of their appointment, are representatives of the City
of Thornton. City Council, by adopting this Code of Conduct, establishes certain minimum expectations as to
behavior and decorum in order to maintain productive and professional representation on the boards of the City
that exist at this time or as they may be amended.
THORNTON BOARD MEMBER VALUES: The individual attitudes, words, and actions of board members
should reflect the values of respect, integrity, and service to the community.
RESPECT
To show respect to others, board members are expected to:
• Treat board members, City officials (elected and appointed), members of the public, and City staff with
patience, courtesy, and civility, even when they disagree on what is best for the community.
• Conduct themselves in a courteous and respectful manner at all times.
• Members might not all agree, however members shall practice civility, professionalism and decorum so
that meetings are productive.
• Members shall honor the role of the Chair, and remember it is the role of the Chair to keep the meeting
on track.
• Respect the distinction between the roles of citizens, elected officials, appointed board members, and
staff.
• Promote meaningful public involvement in decision-making processes.
• Members should avoid personal comments that could offend, demean or exclude the opinions of others.
9
CITY COUNCIL POLICY
BOARDS, COMMISSIONS AND COMMITTEES
CODE OF CONDUCT
INTEGRITY
To demonstrate integrity as a public official, board members are expected to:
• Make independent, objective, fair, and impartial judgments and avoid relationships and actions that give
the appearance of compromising objectivity, independence, and honesty.
• Use public resources, such as staff time, equipment, supplies, or facilities, only for City-related business
and only with authorization from the City Manager or applicable Department Director.
• Protect confidential information concerning litigation, personnel, property, or other affairs of the City.
• To the extent a member identifies themselves as an appointee on social media or engages in discourse
on matters related to their appointed position, members shall adhere to any City Council adopted
policy.
• Members shall remember the authority of the board, commission or committee lies with the group, not
individual members and decisions are therefore based on consensus or majority.
SERVICE
To serve the public effectively, board members are expected to:
• Attend meetings regularly in accordance with any requirement of the applicable bylaws and notify the
Recording Secretary at the earliest opportunity in the event they are unable to attend.
• Have a clear understanding of the board’s roles, responsibilities, and limitations.
• Attend meetings prepared and having reviewed the agenda items.
• Attend meetings with an open mind, considering the best outcome for the City.
• Be prepared to make difficult decisions when necessary.
• Make decisions after prudent consideration of their long-term impacts to the community.
• Members will receive communications, including text messages, related to their appointment through
the email and phone number provided in their application materials, or as provided to the Recording
Secretary, and will ensure the Recording Secretary has up-to-date contact information.
• Appointees must be aware that communications, including email and text messages may be subject to
Colorado Open records disclosure and communicate appropriately.
• Should any member need to resign they will notify the Recording Secretary as soon as practical in
writing.
APPLICABILITY: This policy applies to all appointed boards, commissions, and committees of the City of
Thornton. This Code of Conduct is in addition to the Thornton Code of Ethics in Chapter 2, Article V, Division 2
of the Thornton City Code.
ACCOUNTABILITY: To ensure public confidence in the integrity of the City of Thornton, board members are
held to a high standard. For this reason, the City Council believes the Code of Conduct is as important to the
public process as other rules and procedures. It is recognized that there may be times when action is required
to correct and/or prevent behavior that violates the Code of Conduct. Board members who violate the Code of
Conduct or Code of Ethics may be subject to official reprimand by the board or City Council, may be asked to
step-down or may be removed from appointment by City Council.
City Council appoints all members of the boards, commissions and committees, and such persons serve at the
pleasure of Council and may be removed at any time, with or without cause pursuant to Thornton City Charter
4.19.
10
City Council Policy
Advertising in the Inside Thornton Magazine
Policy Number: 2.1
Legislative History: CD 2009-062
1. Purpose
The purpose of this policy is to clarify that Inside Thornton will not be used as a public forum for the
dissemination of political viewpoints or debate and to guide the City staff in decisions regarding the
type of advertising acceptable for publication in the magazine.
2. Policy
a. Definitions:
Commercial Advertising means presentations aimed at promotion of a product or service
provided for sale or any solicitations for the benefit or promotion of an organization that
provides a product or service for sale. Commercial Advertising shall include such activity
associated with non-profit or not-for-profit organizations.
Government includes federal, state, county, or municipal governments, school districts,
special districts, and shall include government support organizations.
b. Inside Thornton is a publication paid for by the City and delivered to each residential address
in the City as well as being available at City buildings. The purpose of Inside Thornton is to
inform City residents and businesses of programs and benefits available to them from the
governments in the Adams County area. Further, Inside Thornton is intended to provide
information regarding local events, activities or opportunities that are going to occur in
Thornton, which are sponsored or co-sponsored by governments, residents, businesses or
organizations that have a presence in Thornton or Adams County and thereby have a direct
interest in serving the needs of the Thornton community. The promotion of these events
through Inside Thornton is intended to inform and entertain the residents and businesses of
Thornton, and build neighborhood pride and a sense of community.
Inside Thornton is one of many other informational based medium produced by the City for
its residents and businesses to complement the existing Thornton Cable Channel, Thornton
webpage, Thornton Business Briefs, and other materials produced by the City.
Inside Thornton is not intended and shall not be used as a public forum for the dissemination
of political viewpoints or debate. Each issue shall have a disclaimer indicating that the City
does not, by mention in the Inside Thornton Magazine, endorse, support or promote any
product, service or organization mentioned in the magazine.
Advertising in Inside Thornton will be restricted to only Commercial Advertising and no
political advertising will be permitted. The City Manager or designee shall have exclusive
editorial control over Inside Thornton.
11
Policy Number: 2.1
Legislative History: CD 2009-062
To further achieve these goals, Commercial Advertising will be restricted to clubs,
organizations, associations, and businesses that serve the residents and businesses of
Thornton or have business affiliations within Thornton.
Advertising is intended to generate funds to assist the City in making the Inside Thornton
Magazine possible and to continue to provide this service to Thornton residents and
businesses.
12
City Council Policy
Cable Access to Thornton’s Cable Channels
Policy Number: 2.2
Legislative History: CD 1998-155
1. Purpose.
The purpose of this policy is to establish guidelines for the use of the Thornton Municipal Cable
channel, channel 8 (hereafter “Thornton Channel”) and decisions regarding authorized use of the
Thornton Channel by the City Manager or designee. This policy shall apply to all uses of the
Thornton Channel and requests for use of the Thornton Channel by persons, groups or
organizations unaffiliated with the City.
2. Policy
2.1 The Thornton Channel is owned and operated by the City of Thornton and is subject to the
Communications Act of 1934, the Cable Communications Policy Act of 1984, the Cable
Consumer Protection and Competition Act of 1992, the telecommunications Act of 1996,
the Reports and orders of the Federal Communications Commission, and the State of
Colorado Fair Campaign Practices Act. In addition, federal law authorizes a franchising
authority to adopt rules and procedures for the use of cable channels designated for
governmental use.
2.2 Definitions.
“Advertising” means the use of slogans or presentations aimed at promotion of a product or
service provided for sale or any solicitations for the benefit or promotion of an organization
that provides a product or service for sale. Advertising shall include such activity associated
with non-profit or not-for-profit organizations.
“City” or “Thornton” means the City of Thornton.
“City Council” means the City Council for the City of Thornton.
“City Manager” means the Thornton City Manager or designee.
“Communications Director” means the person designated by the City Manager to oversee
the communications functions of the City of Thornton.“Community” as used herein means
Thornton community organizations or organizations formed for the benefit of Thornton
citizens.
“Government Access” means access where governmental institutions or their designees are
the primary users having editorial control over programming and services.
“Governmental Entity (Entities)” means state, county, or federal departments or agencies,
school districts, special districts or authorities, and shall include government support
organizations.
“Person” means an individual or a group, organization, association, partnership, limited
liability corporation or corporation.
“Sponsor” means any group, association, organization or corporation that assists or
cooperates with another group, association or organization or corporation to organize and
present an event, program or activity.
13
2.3 Use Guidelines.
A. Use Guidelines
1. Thornton Channel is a government access channel, to be used for matters directly
related to City services, programs, events, and activities involving Thornton citizens
or directly impacting or benefiting Thornton citizens. The Thornton Channel is not a
public access channel. Uses permitted for the government access channel are listed
in order of priority for meeting, scheduling and limited air time concerns, but are not
limited to the following:
a. Announcements or programs concerning emergencies affecting citizens’
health or safety;
b. Regularly scheduled or special meetings of the City Council, meetings of
Thornton’s Boards or Commissions, the City’s citizen informational
neighborhood meetings and regularly occurring City informational programming;
c. Public service announcements relating to City or community activities,
programs or events occurring in Thornton and which are intended to involve
Thornton citizens;
d. One-time, special or non-regular informational programs concerning activities,
or events occurring in Thornton;
e. Programs presented or produced by persons or other governmental entities
which meet the criteria established by Section (A)(2) herein.
2. Programs may be presented for airing by persons or other governmental entities
meeting the following criteria:
a. Programs suggested by such persons or other governmental entities must relate
to events, programs or activities that have a direct impact on or are intended
to involve or inform Thornton residents or may concern co-sponsored City
events, programs or activities which are intended to directly impact or involve
Thornton residents.
b. Activities or events unrelated to City or other governmental entity programs,
events or services may be aired so long as there is a community impact, the
other requirements of this paragraph (A)(2) are met, and so long as there are
available times for airing such activities or events.
c. Priority will be given to events, activities or programs which take place in the City
and or use Thornton facilities or services, including amenities available for use
by Thornton residents or made available through co- sponsorship by the City.
d. No programs will be aired that promote discrimination against any person on
the basis of race, color, religion, sex, national origin, age, marital status, sexual
orientation, or disability.
3. The Communications Director shall have:
a. Exclusive editorial control over the content, length and mode of presentation for
any program aired.
14
b. The right to exercise editorial discretion and refuse to air any program at any
time for any reason.
c. The authority to accept preprogrammed material for airing as long as all the criteria
under this paragraph (A)(2) are met. Repeat airings are at the sole discretion of
the City Manager or designee.
d. The authority to air announcements of events or activities sponsored by private
agencies or business if the event or activity is to occur in Thornton and may
involve Thornton residents. The announcements will identify the time, place,
duration, participants and/or sponsor(s) of the event.
4. All property submitted for programs such as props, videos or preprogrammed media
shall become the property of Thornton.
5. Programming submitted for airing must meet minimum technical and broadcast
aesthetic standards to be accepted. Such standards will be determined by the
Communications Director. No defamatory, slanderous, or obscene material or
language will be allowed on the Thornton Channel.
6. No program shall concern any matter or contain any material, the use of which is
subject to copyright, unless compliance with all applicable laws is established to the
City’s satisfaction.
B. Community Bulletin Board
1. Any person wishing to have a message aired on the community bulletin board
shown on the Thornton Channel, Community Bulletin Board (“CBB”) shall submit
the proposed announcement or message in writing or electronically to the
Communications Director a minimum of 10 business days prior to the proposed
date of airing, except in cases of emergencies affecting the public health and
safety.
2. The Communications Director has sole discretion on decisions to:
a. Air CBB messages based upon evaluation of the proposed message applying
the use guidelines contained in subsection (A);
b. Edit any CBB message submitted so long as the editing, in the opinion of the City
Manager or designee does not alter the overall import of the materials; and
c. Determine air time, including but not limited to, length and preemption.
3. Messages on the CBB will be aired without charge to the person submitting the
message.
C. Political and Ballot Issue Oriented Programming
1. The Thornton Channel may air election information identifying persons running for
public office and the outcome of elections. The Thornton Channel may also air
programs concerning ballot questions relevant to the Thornton electorate. The
Thornton channel will not be used to endorse either directly or indirectly, a person
running for public office or to promote or oppose any ballot question.
2. All programming produced for the Thornton Channel containing information related
to identifying persons running for public office, the outcome of elections, or
addressing ballot issues, will be considered news programming, the main thrust
of which will be to provide residents of Thornton with news concerning such elections15
and/or ballot questions.
D. Appeal of Communications Director Decision.
1. Any decision of the Communications Director with regard to use of the Thornton
Channel, including use of the Community Bulletin Board, may be appealed to the
City Manager.
2. Appeals must be in writing (electronic or hard copy) stating the basis of the
appeal, name and contact information of the person or entity appealing and must
be mailed to the following within fifteen calendar days of receipt of the decision being
appealed:
City Manager c/o City of Thornton
9500 Civic Center Drive Thornton, CO 80229
citymanager@cityofthornton.net
Failure to send the notice of appeal to the above address within said fifteen days
constitutes a waiver of such right to appeal.
a. The appeal will be considered within ten business days of receipt and a
decision will be sent to the person appealing at the end of the ten business day
period.
b. A decision by the City Manager constitutes a final decision and an exhaustion of
administrative remedies.
E. Public Forum
Nothing contained in this Policy is intended, nor shall be construed to create a public
forum, limited or designated public forum for purposes of the first amendment rights under
the Federal Constitution, or Section 10, Article 2, of the Colorado Constitution.
16
City Council Policy
Sale or Distribution of Materials at City Events
Policy Number: 3.1
Legislative History: CD 2009-061; 2006-086; 2012-116; 2019-090
REPEALED
17
City Council Policy
Sponsorships at City Events
Policy Number: 3.2
Legislative History: CD 2010-144
1. Purpose
The purpose of this policy is to establish guidelines regarding the types of sponsorships that will not
be considered by the City at any City event or program where the City offers sponsorships.
2. Policy
a. Definitions.
• City Event – any City event or program where the City offers sponsorships.
• Sponsor – an entity that pays for the right to promote itself and its products or services in
association with City Events.
• Sponsorship – the relationship between a sponsor and an event, in which the sponsor
pays a cash or in-kind fee, in return for access to the commercial potential associated
with the Event.
b. Any sponsorship associated with a City Event shall not:
• Be inappropriate for the primary audience (i.e. alcohol sponsorship of activity or area
primarily for children)
• Be offensive, obscene or pornographic as defined by prevailing community standards,
• Relate to the use of illegal drugs, tobacco or firearms,
• Relate to any candidate for election, or current elected official,
• Relate to any political organization,
• Relate to any political issue or cause,
• Promote hostility, disorder or violence,
• Discriminate, demean, harass or ridicule any person or group of persons on the basis of
race, color, creed, religion, sex, national origin, ancestry, alienage, disability, marital
status, political affiliation, sexual orientation or age,
• Be libelous or untruthful.
c. Thornton Preference. The City will annually send out an invitation (electronically or by mail)
to all Thornton businesses listed in City’s Economic Development maintained list offering
them an opportunity to sponsor the various City Events. Sponsorship staff will then follow-
up with any response generated by such invitation.
d. Event Sponsorship procedures shall be adopted by each City department that holds
sponsored Events.
18
City Council Policy
Council Pay and Benefits
Policy Number: 4.1
Legislative History: CD 1999-166, 2008-206
1. Purpose
The purpose of this policy is to identify the medical and other benefits the City Council members are
eligible to participate in and to establish the process for review of City Council salaries.
2. Policy
a. Pursuant to Section 2-27 of the City Code, City Council members are eligible to participate
in the group medical benefits provided to the City employees, and the City shall fund such
benefits on the same basis as for the City employees. The Councilmembers shall have the
same requirements for participation in any medical benefit or program that is required of the
employee.
The medical benefits that City Council members may elect to participate in are:
• Group medical benefits, which includes health, dental, vision, life insurance, and
Employee Assistance Program;
• Flexible Spending Account; and
• Wellness Program.
The other benefits that City Council members may elect to participate in include:
• Deferred compensation plan;
• Voluntary life insurance; or
• Voluntary accidental death and dismemberment insurance.
b. The salaries for the Mayor and Councilmembers shall be reviewed annually in conjunction
with the annual wage and salary survey for City of Thornton employees. Any recommended
changes shall be discussed and presented to City Council during the budget process.
19
City Council Policy
Council Policy Direction
Policy Number: 4.2
Legislative History: CD 2005-206
1. Purpose
The purpose of this policy is to establish a process for determining the course of direction relating
to issues, concerns, ideas and concepts that are discussed by City Council at Planning Session and
Council Updates.
This policy has been developed in order to provide as much clarity as possible as to whether these
discussions constitute direction by Council to the City Manager to take actions such as: a)
conducting further research and bringing back further information and/or alternatives; b)
developing/amending a resolution or ordinance pursuant to Council direction; or c) establishing a
Council policy.
2. Policy
a. Process for Determining Council Policy Direction or Request:
• After discussion of an issue or item at the Planning Session or Council Update, the City
Manager will state the policy direction of Council.
• The City Manager will ask for the Council to confirm or revise the stated Policy direction.
• The City Manager will ask Council whether they do or do not support this policy direction or
request; if a majority of Council verbally indicates support, the item will move forward and
come back to Council through the Planning Sessions or Council Updates, as noted below.
Council will determine whether the item is incorporated into the Council approved Work Plan.
Staff will prepare a schedule of the steps required to complete the task/request, including
milestones.
• The policy direction or request will be noted in the summary minutes of the Planning Session
or Council Update, as appropriate.
b. Planning Sessions and Council Updates:
• Planning Session agenda items will be issues that are on, or related to, the current Work
Plan or the Council Issues Forum.
• Council Update agenda items will be related or provide background information on, the items
on the formal Council Meeting agenda.
• Summary written minutes of the meetings will be kept with specific notation of any policy
directions/requests that have been approved by Council.
• The City Manager’s Office maintains a list of follow-up items that come from the Planning
Session and Council Updates as well as how/when the items are to be addressed (or have
been addressed).
20
c. Approved Work Plan:
• The Work Plan will be developed based on the approved priorities of Council and includes
specific tasks and targets that plan out the work effort and priorities for the year(s).
• The Work Plan is intended to be a “living” document and as such, the tasks and targets may
be revised by Council to reflect changes in priorities or interests. Proposed changes to the
Work Plan may be brought up and discussed at any Council meeting. Council will indicate if
there is majority support for staff to conduct research on the proposed new Work Plan item.
Information provided by staff on the proposed change will include what strategies, tactics,
and/or steps staff is proposing to address the desired outcome as expressed by Council. In
addition, the information will include how success will be measured and the plusses/minuses
(i.e. trade-offs) associated with achieving the desired outcome. An estimate of the time it will
take to develop this information will be provided to Council no later than the following meeting.
• A status report on the Work Plan will be provided to Council on a regular basis (at least
quarterly) to indicate how the work is progressing to achieve the targets and goals set forth.
d. Issues Forum:
• The City Manager will schedule time at a planning session for City Council to bring up and
discuss ideas/concerns/hopes and desires they might have for the community. This is
intended to be an open, unstructured process.
• After Council has had a chance to discuss their interests, which includes the staff sharing
any readily available background information to assist the Council discussion, then if a
majority of Council agrees, this idea/concern/hope moves forward to become an item of the
City Council to consider formally.
• The issues will be written down and the document will be brought back to the City Council,
along with further available information or background, and
Council will determine whether to integrate any of the items into the Work Plan (see above
process).
• Generally speaking, the Council will utilize a two-step process in which the first step is letting
Councilmembers know what they would like to discuss in more depth at the next Issues
Forum meeting. The intent of this approach is to provide time for the other members of
Council to think about the issue/concept and contact the Councilmember introducing the
idea/concept for further discussion, if they so desire, before an in-depth discussion at the
second step. However, the Council may also choose to consider and provide direction in
one-step due to the immediacy of the issue/concept.
21
City Council Policy
Designating the Voting Delegate and Voting on the issues
being considered at the CML and NLC Annual Business Meetings
Policy Number: 4.3
Legislative History: CD 2014-115
1. Purpose
The purpose of this policy is to clarify the process for identifying who will sign in and vote on behalf
of the City and the issues being considered by the Colorado Municipal League and the National
League of Cities at their annual business meetings.
2. Policy
The City Council will designate the individual and alternate, as appropriate, authorized to cast votes
on behalf of the City at the CML and NLC Annual Business Meetings no later than the City Council
meeting prior to the Annual Business Meeting.
22
City Council Policy
Ward Reapportionment
Policy Number: 4.4
Legislative History: CD 2006-113
3. Purpose: Section 4.2 of the City Charter requires that the City Council ensure a balance in the
population between wards and that ward boundaries be changed at least every 10 years to reflect
population shifts and that changes to boundaries be completed no later than 180 days prior to any
regular municipal election.
This policy establishes the process and timeline for the citizen members of the Election Commission
to make recommendations relating to ward boundary changes.
4. Policy
4.1 The ward boundaries shall be changed within 12 months after receiving the certified data
from the United States Census Bureau of any new decennial census for Colorado if the
variance between the least and most populated wards exceeds 10 percent. No later than
July 31st of each even-numbered year following a new decennial census for Colorado, the
City Manager shall determine if the ward boundaries will be redrawn. The standard for
redistricting shall be if the variance between the least and most populated wards exceeds 10
percent. If the City Attorney’s Office determines that governing Federal or State Law requires
a smaller population variance, then such smaller variance shall be used to determine if ward
redistricting is required.
4.2 In the event the ward boundaries need to be changed, then the process will be:
• The citizen members of the Election Commission shall use predetermined, objective
criteria to redraw ward boundaries and shall propose ward redistricting recommendations
for City Council. Wards shall be geographically compact, contiguous and, as far as
practical, the population in each ward shall be equal to all other wards.
• The City Manager or designee shall provide population figures and the City Clerk shall
act as staff liaison to ensure that pertinent information is provided to the Election
Commission. The City Manager or designee may consult with a professional
demographer to review the methodology for estimating population.
• Prior to commencing work on ward redistricting recommendations, City Council shall
advise the Election Commission of any additional, objective considerations to use as
factors in developing alternatives.
• Recommendations from the Election Commission shall be presented to City Council for
consideration no later than December 31 of the year prior to which a regular municipal
election is held.
23
City Council Policy
Education Foundation Funding
Policy Number: 5.1
Legislative History: CD 1997-166
1. Purpose
foundations.
The purpose of this policy is to establish guidelines related to fundraising requests from education
2. Policy
2.1 The Education Foundation Funding Program is an annual City Council program intended to
provide funds for fundraising activities and programs to each educational foundation
supporting Thornton’s four school districts. Funding for this program is established through
the annual budget process. The amount each foundation receives is based on the following
formula:
• A school district’s foundation receives $5,000 for 10,000 or more enrolled Thornton
students.
• A school district’s foundation receives $2,500 for 2,000 to 5,000 enrolled Thornton
students
• A school district’s foundation receives $750 for less than 1,000 enrolled Thornton
students
2.2 The funds in the adopted budget for education foundation fundraising events will be divided
among the four school district foundations based upon this formula. City staff will contact the
four school districts that serve the Thornton area for an accurate count of Thornton students
in each district. Checks in the amounts determined for each school district foundation based
on Section 2.1will be mailed to the education foundation in the first quarter of the year along
with a letter noting how the contribution is to be used (i.e. sponsorship of specific fundraising
events and other programs). This program is subject to City Council approval on an annual
basis.
2.3 The contribution amounts and formula may be adjusted as part of the annual budget approval
process.
24
City Council Policy
School Site Donation by Developers
Policy Number: 5.2
Legislative History: CD 2005-095
1. Purpose
The purpose of this policy is to establish a process as to how future school sites will be provided for
in the development process.
2. Policy
a. If an owner of land proposes to dedicate a site for a future school through annexation, zoning,
conceptual site plan and/or platting, the subdivision plat shall show that the site is being
dedicated to the school district and the approving documents shall include a condition that
the site be maintained by the school district.
b. The developer donated school site will be not included in satisfying the public land dedication
requirement to the City, except as authorized by City Council. In addition, the approving
documents shall include a requirement that the developer shall pay a cash-in-lieu payment
to the City for future school zone warning signs. The amount of the cash-in-lieu payment
shall be determined through the subdivision plat approval process and the payment made
prior to the recordation of the subdivision plat.
25
City Council Policy
Youth Event Funding Program
Policy Number: 5.3
Legislative History: CD 1997-076; CD 2016-073
1. Purpose
The purpose of this policy is to establish the guidelines and process for requesting a contribution to
offset the cost for youth to participate/compete in special events that bring value and recognition to
the youth and the Thornton community.
2. Policy
a. The Youth Event Program is a program established by City Council intended to assist youth
(individuals and a group of youth) in the K-12 age range requesting a contribution to offset
the cost of participating/competing in a youth event. Examples of events include:
achievement events, competitions, or tournaments in the fields of academics, arts, sports,
leadership, and the performance arts. Funding for this program is established through the
annual budget process and is limited to $300.00 per individual request or $600.00 for a group.
The special event(s) must meet all of the following criteria to be considered for funding.
b. Criteria:
1. The request must be submitted in writing on the attached application along with a
completed Internal Revenue Service W9 form provided by the City. The application and
W9 form must be submitted at least 30 days prior to the event in order to allow sufficient
time for City Council to consider the request, and if approved, submitted for disbursement.
Any request submitted less than 30 days prior to the event may not be able to be
scheduled in time to meet the timeline of the special event.
2. The event is a) educational in nature and associated with a school program provided by
a school located in the City; or b) a program sponsored by the City; or c) a program that
promotes the City of Thornton on a regional or national level that will bring value to
applicant(s) and the Thornton community as a whole.
3. The applicant indicates how funding for this event benefits the Thornton community.
4. The individual, or a majority of the group or organization making the request, must attend
a school located in the City (public, private, or homeschooled); or participate in a program
sponsored by the City; or be a City resident. A preference will be given to requests from
applicants who reside in Thornton.
5. The applicant shows what other resources have been applied for and what resources the
applicant is personally providing.
26
6. The individual or group making the request will provide written feedback of the event to
the City Manager’s Office/ Thornton City Council.
7. The event is not an ongoing program that is the financial responsibility of another
government or jurisdiction.
c. This program is administered by the City Manager’s Office (CMO). The applications will be
provided to Council for its consideration. A majority approval by Council is required to award
funding.
d. Requests from Thornton area high schools for “After-Prom” events will be processed
administratively by the CMO, up to $300 per event, and reported to Council. Requests may
be submitted directly to the City of Thornton, City Manager’s Office, 9500 Civic Center Drive,
Thornton, CO 80229 or citymanager@ThorntonCO.gov.
27
Policy Number: 5.3
Legislative History: CD 1997-076; CD 2016-073
NEW
APPLICATION
CITY OF THORNTON
YOUTH EVENT FUNDING REQUEST FORM
1. Name
2. Address
3. Daytime Phone Number
4. Email address:
5. The name of the event, date, where and when it is being held.
6. Please indicate if you are a resident; attend a school or are homeschooled in Thornton.
7. Please describe the estimated cost to attend this event, what fundraising you or the group have
completed to date to raise the funds necessary to attend, and how you propose to use the
requested funding.
8. Amount Requested: $
9. Please state how the event will bring value to you and the Thornton community as a whole.
28
10. Have you received funding from the City of Thornton for this event in the past?
Yes No
If yes, when?
11. Please indicate how you heard about this
program.
12. If you receive funding from the City, you agree to provide written feedback of the event to the
City Manager’s Office/Thornton City Council
Signature
Date
29
City Council Policy
Disposition of City-owned Real Property
Policy Number: 6.1
Legislative History: 1985-104
1. Purpose.
To establish a process for the disposition of real property owned in fee by the City regardless of
where it is located in a manner that is in the best interest of the City.
2. Policy
Declaration of Property as Surplus Property and Authorization for Disposition. City Council may
designate a property as surplus and authorize its disposition by resolution. The resolution shall
identify the authorized methods for the disposal of the property including, but not limited to, by bids
or offers solicited by the City, sale, exchange, transfer, trade or other grant, in exchange for
consideration such as cash, credit, other property or any other benefit to the City. The resolution
shall authorize the City Manager to complete the transaction consistent with this policy and the
resolution. Nothing herein shall prohibit the City Manager, or their designee, from exploring
disposition opportunities and/or methods for a particular property prior to its being designated as
surplus, but that the City Manager, or their designee, shall notify City Council of exploratory efforts
prior to City Council designating the property as surplus.
3. Disposition methods
3.1 Sale by Bids or Offers Solicited by the City. Prior to offering a property for sale by bid or offers
solicited by the City, the City Manager or designee shall prepare an analysis of the estimated market
value of the property. If the estimated value of the property is less than $250,000, then the estimated
value of the property shall be used in considering bids or offers. If the estimated value of the
property is equal to or greater than $250,000, then a Colorado licensed appraiser shall conduct an
appraisal on the property which shall be used in considering bids or offers.
3.1.1. Evaluation of Bids or Offers. A committee designated by the City Manager shall evaluate
the bids or offers and make recommendations to the City Manager. If the City Manager finds it
is in the best interest of the City to accept one of the bids or offers received, the City Manager
may act pursuant to the resolution and authorize the sale for the recommended bid or offer or
forward the recommendation to the City Council for action. The City Manager may reject all
offers and discontinue the process or solicit additional bids or offers. The City may solicit bids
or offers for the sale of eligible property by any of the following methods:
Policy Number: 6.1
Legislative History: 1985-104
3.1.1.1 By competitive bid. Such bid solicitation shall be advertised through publication of
notices in newspapers and other media, and in a manner and form, deemed appropriate by the
City Manager, or designee. All bids will be received and opened at a designated time by the
City Manager, or designee, who shall tabulate the bids. The City Manager, or designee, is
authorized to further clarify the terms of the sale of the property and has the right to reject any
and all bids.
30
3.1.1.2 By listing the property with a licensed real estate professional selected in accordance
with the City’s purchasing policies and procedures.
3.2 Any Disposition Other than by Sale by Bids or Offers Solicited by the City
Any transaction for the disposition of property other than by Sale by Bids or Offers Solicited by the
City will be completed in accordance with the resolution by the City Manager with the assistance of
the City Attorney’s Office.
31
City Council Policy
Donation of City-owned Surplus Equipment
Policy Number: 6.2
Legislative History: Motion November 23, 2010
1. Purpose
The purpose of this policy is to establish the authority of the City Manager to donate surplus City-
owned equipment to non-profit charitable organizations and to provide notice to City Council of such
events.
2. Policy
The City Manager is authorized to donate or permanently transfer to non-profit charitable
organizations that provide assistance to Thornton residents, City-owned equipment or supplies
determined to be surplus. The City Manager shall notify the City Council at the time of any such
donation.
32
City Council Policy
Meet and Confer Recognition for City of Thornton Employees
Policy Number: 7.1
Legislative History: CD 2010-108
1. Purpose. The purpose of this policy is to establish procedures by which the City shall Meet and
Confer regarding wages, hours, and other terms and conditions of employment with representatives
duly selected by employees.
2. Policy.
2.1 The City agrees to recognize and Meet and Confer in good faith over the wages, hours, and
terms and conditions of employment with an exclusive representative chosen by employees in
accordance with the following procedures and consistent with the City Charter. Any
requirements to Meet and Confer that may arise under this Policy would begin in 2011 for the
2012 Pay Plan.
2.2 Definitions.
•
“Employee" covered by this Resolution means any person employed in a Regular, Fair
Labor Standards Act Non-exempt position by the City other than “confidential employees,”
“managerial employees,” “supervisory employees,” elected officials, employees of the
City Council, and firefighters.
•
“Employer” means the City Manager, Mayor, and the Council of the City or their
representatives.
•
“Exclusive representative” means an employee organization chosen by employees
pursuant to this Resolution.
•
“Confidential employee” means any employee who acts in a confidential advisory or
support capacity with respect to an individual who directly participates in the formulation
of management policies in the field of labor-management relations, including all
employees in the City Manager’s office, Human Resources Division, the City Attorney’s
office, Information Technology positions that, in order to fulfill their job duties, have access
to the root or administrator password of any system or server to perform application,
system, network, or database administration, and one Administrative Office Support
position in each department and one person for each board or commission that provides
administrative support to the department, board or commission.
• “Supervisory employee” or “managerial employee” means any employee or official of the
employer, other than police sergeant, who supervises another employee, including Fair
Labor Standards Act Exempt employees
and having authority to hire, transfer, suspend, lay off, recall, promote, or discharge
employees, or responsibility to direct them, or to adjust their grievances, or effectively to
recommend such action if, in connection with the foregoing, exercise of the authority is
not of a mere routine or clerical nature but requires the use of independent judgment.
•
“Meet and Confer” means to perform the mutual obligation of the employer, by its
representatives, and the exclusive representative of employees to meet and have
discussions in good faith at reasonable times and places with respect to wages, hours,
and other terms and conditions of employment.
33
•
“Terms and conditions of employment” means wages, hours, allowances, fringe benefits,
and other matters as described in Section 18.3 (a) and (b) of the Charter. Matters
specifically provided for by the City Charter shall not be considered as “terms and
conditions of employment” subject to Meet and Confer.
2.3 Rights and Obligations.
2.3.1 Employees have the right to communicate with one another and with employee
organization representatives and to receive and distribute literature regarding employee
organization issues as long as it is not disruptive to City operations or productivity; and
employees shall not be discriminated against for conduct which is consistent with this
paragraph.
2.3.2 Employee organization representatives shall have access to meet with employees in all
break rooms that are generally accessible to the public during employees’ lunch or break
periods. In City facilities where public access or break rooms are limited, reasonable
alternative space will be made available, on request, to permit employees to communicate
with employee organization representatives during employees’ lunch or break periods.
2.3.3 The employer agrees that the decision as to whether to be represented by an employee
organization is one for employees to make, and managerial staff shall remain neutral
about such decision, unless City Council provides other direction to the City Manager.
Employees shall not be discriminated against for discussing or expressing their views
regarding employee representation or workplace issues.
2.3.4 All communication by employee organization representatives shall be done in a civil,
professional manner and may not be harassing or disruptive of the employee and/or the
work environment.
2.4 Recognition of the Exclusive Representative
2.4.1 Recognition Through a Representation Election. A petition of an employee organization
for a representation election shall be accompanied by written evidence that thirty (30)
percent of employees are members of the employee organization or wish to be
exclusively represented by the employee organization to Meet and Confer on their behalf.
The City Clerk shall investigate the petition filed by an employee or employee organization
and, upon verification of at least thirty (30) percent of employees, or at least fifty (50)
percent of employees in the case of a petition for decertification, a secret ballot election
shall be held by the American Arbitration Association, to determine whether employees
wish to be represented by an exclusive representative. The ballot shall contain the names
of the petitioning employee organization, any employee organization submitting within ten
(10) days of the initial petition a petition containing thirty (30) percent of employees, and
any incumbent labor organization. The ballot shall also contain a choice of no
representation. An employee organization shall only be recognized for Meet and Confer
in Unit A or Unit B if it receives at least fifty (50) percent plus one of the votes of all
employees eligible to vote. The cost of such election shall be shared equally by the
employee organizations involved.
2.4.2 Once an employee organization is recognized as the exclusive representative, a claim
by a rival organization for recognition, or a request by employees for rescinding
recognition, shall be considered only during a period beginning January 1st and ending34
March 1st of each year. Upon verification by the City Clerk that the rival organization
enjoys majority support, or that a majority of employees have requested that recognition
of the exclusive representative be rescinded, an election shall be held under the auspices
of the American Arbitration Association. The ballot shall also contain a choice of no
representation. An employee organization shall only be recognized for Meet and Confer
in Unit A or Unit B if it receives at least fifty (50) percent plus one of the votes of all
employees eligible to vote. The cost of such election shall be borne by the initiator of
the election.
2.4.3 An employee organization which is the majority choice of employees voting in an election
or identified through a showing of majority support shall be recognized as the exclusive
representative to Meet and Confer on their behalf.
2.4.4 Upon recognition of an employee organization the employer shall deduct employee
organization dues from payroll for employee organization members who have signed
cards authorizing dues to be deducted provided that such organization reimburses the
City monthly to cover the City’s costs for collection and transfer of any/all membership
dues and servicing fees from the City’s bank account to the bank account specified by
the employee organization.
2.4.5 The procedures of this Section shall be separately applied for two units of employees.
Unit A shall consist of sworn police officers. Unit B shall consist of all other employees
as defined in this Resolution.
2.5 Obligation to Meet and Confer in Good Faith.
2.5.1 It shall be the mutual obligation of the employer, by its representatives designated by the
City Manager, and an exclusive representative, by its representatives, to Meet and Confer
in good faith at reasonable times and places with respect to wages, hours and other terms
and conditions of employment not directly established in the City Charter or applicable
Federal or State law.
2.5.2 The employee organization shall provide written notice to the City Manager of its desire
to Meet and Confer not later than March 1st of each year. The City Manager or the City
Manager’s designee shall Meet and Confer with an exclusive representative over all
matters involved with development of the annual Pay Plan including but not limited to the
conduct and selection of pay surveys, pay survey methodology, and the final
recommendation of the City Manager to the City Council. The City Manager shall
recommend a Pay Plan to City Council and the Council shall approve a Pay Plan as
provided by Chapter 7.1 (c) and (d) of the City Charter.
2.5.3 In the event the employee organization does not agree with the City Manager’s
recommended Pay Plan, the employee organization may appear and testify to the City
Council at the annual Pay Plan Public Hearing as provided by Chapter 7.1 (d) of the City
Charter.
2.6 Severability.
If any clause, paragraph or part of this Policy or the application thereof to any person or
circumstance shall for any reason be adjudged by a court of competent jurisdiction to be
invalid, such judgment shall not affect, impair or invalidate the remainder of this Resolution or
its application.
35
City Council Policy
Performance Appraisal of City Manager, City Attorney, Presiding Municipal Judge
Policy Number: 7.2
Legislative History: CD 2007-113; Amended CD 2023-096
1. Purpose
The purpose of this policy is to establish a process by which the City Council conducts the annual
performance appraisal of the City Manager, City Attorney, and the Presiding Judge (Appointees),
that is collaborative, professional and respectful, and facilitates a better understanding of
performance expectations among the parties for the following review period.
2. Policy
2.1 The City Council will meet to conduct, and complete, the annual performance review with the
Appointees in October. The review period for 2023 will be from January 1 through September
30. Thereafter, the review period will be from October 1 to September 30. A semi-annual
“check-in” may be scheduled at Council direction.
2.2 The City Manager, in consultation with the City Council, Presiding Judge, and City Attorney,
will establish the performance review schedule which will enable the annual performance
review to be completed in October. Such schedule shall be structured to give City Council
one week to complete.
2.3 Human Resources will conduct an annual pay and benefits survey for each Appointee which
shall be provided to City Council and the Appointees.
2.4 The Appointees will prepare a Self-Evaluation Memo to the City Council commenting on their
performance with respect to achieving the strategic goals and priorities identified by the City
Council and the Appointees in the prior evaluation period. The Appointees may provide any
additional information they feel pertinent to the performance review discussion or as
requested by City Council. The Self-Evaluation Memo will be sent electronically to the Human
Resources Director to be included in the packet of information provided to City Council.
2.5 The City Council will complete a Performance Evaluation Form.
2.6 The Human Resources Director will send out the information packet which includes the prior
year’s evaluation, the Self-Evaluation Memo, and the completed Performance Evaluation
Form to City Council, the Appointees, and Facilitator (if engaged, the facilitator is brought
into the process at this point).
2.7 The City Council may engage an outside Facilitator.
36
3. Process
3.1 The City Manager, in consultation with the City Council, City Attorney, and Presiding Judge,
will develop a proposed performance review schedule which will enable the annual
performance review to be conducted no later than the last week of October. The schedule
will include specific dates for the following:
(a) the date when the Self-Evaluation Report, and any other material deemed by the
Appointee to be pertinent to the review, is due to be included in the information packet
that will be submitted to the City Council;
(b) the date when the prior year’s evaluation, the Self-Evaluation Report, and the
Performance Evaluation Form will be sent electronically to City Council by the Human
Resources Director and when the completed Performance Evaluation is due back to the
Human Resources Director;
(c) the date for the Executive Session between the City Council and the Facilitator (if one is
engaged by City Council), at which the intent is to arrive at an over-all rating and review
the results of the salary and benefits survey conducted by Human Resources
(“Consensus” Executive Session);
(d) the date for the Executive Sessions between City Council and each Appointee to discuss
the performance review (“Performance Review” Executive Sessions).
3.2 Three weeks in advance of the “Consensus” Executive Session, the Human Resources
Director will electronically send a copy of the Appointees previous year’s evaluation, Self-
Evaluation Memo, and the Performance Evaluation Form to each Councilmember. A
Performance Evaluation Form is to be completed for each Appointee and returned to the
Human Resources Director within one week of receiving it.
3.3 Two weeks in advance of the “Consensus” Executive Session between City Council and
Facilitator, the Human Resources Director will send electronic copies of all the completed
Performance Evaluation Forms to the City Council, the Appointees, and the Facilitator, if
engaged by City Council. The Facilitator will also receive a packet that includes the Self-
Evaluation Memo and the prior year’s evaluation.
3.4 At the “Consensus” Executive Session, the City Council will discuss the results of the
Performance Evaluation Form and develop a consensus as to the Appointee’s performance
for the evaluation period with the assistance of a Facilitator. The overall rating shall consist
of “Meets Expectations” or “Does Not Meet Expectations”.
The Human Resources Director will provide the results of the Pay and Benefits Survey for
each Appointee to City Council and Appointees electronically one week in advance of the
“Consensus” Executive Session and will be available to review the information with City
Council, if requested.
Any additional comments will be captured by the Facilitator and provided to the respective
Appointee.
37
The results of the consensus rating and any other comments determined by City Council will
be provided to each Appointee in advance of the “Performance Review” Executive Session.
3.5 The City Council will meet with each Appointee in the “Performance Review” Executive
Session to discuss the performance review, changes in compensation, changes to the
employment contract, and the goals/strategic objectives for the next review period. The City
Council may also discuss and develop a document to provide to the Appointees as to “what
has gone well”, “what the Council would like to see moving forward”, and “opportunities for
improvement” for the following review period.
3.6 The Mayor will transmit any information to Human Resources pertaining to any pay and
benefits and agreement revisions. Amendments to an Appointee’s employment agreement
will be scheduled for Council action.
38
City Council Policy
Appointment of Financial Advisor Related to the Issuance of Debt
Policy Number: 8.1
Legislative History: CD 1990-229
1. Purpose
The purpose of this policy is to provide direction with respect to obtaining financial advice related to
the manner, structure and terms of debt and other financing instruments issued by the City to finance
projects.
2. Policy
a. The City shall retain the services of an experienced financial advisor (Financial Advisor) to aide
City Council in making determinations with respect to issuing debt. Such services may include
assisting the City in developing financing plans for projects; developing a structure, including
sizing and repayment schedules, for bonds, leases, loans or other financing instruments;
advising on market conditions; participate in and advise the City regarding the negotiations
with underwriters, bond counsel and other services related to a financing and the coordination
of such financings; and advise on the uses of, and coordination of the City’s application for
ratings and/or insurance on a financing.
b. The Financial Advisor shall advise the City Council on the appropriateness of various methods
of sale for financings, including competitive sale, negotiated sale, or private placement.
Generally speaking, debt financings should be brought to market in a competitive bid process
and only if the City Council so determines that a negotiated sale is in the best interest of the
City, will such be used.
c. The Financial Advisor shall assist the City in arranging and/or negotiating the various
processes, terms and conditions related to a competitive sale, negotiated sale, or private
placement.
39
City Council Policy
Setting of Sewer Utility Rates and Charges
Policy Number: 8.2
Legislative History: CD 2005-149
1. Purpose
The purpose of this policy is to provide direction with respect to setting sewer utility rates and
charges to cover the cost of maintenance, repair, replacement and construction of sewer lines
owned and maintained by the City and to cover the cost of services provided by Metro Water
Recovery.
2. Policy
a. Metro Water Recovery (District) establishes its fees and charges for wastewater treatment
services and capital facility fees on an annual basis. Any increase approved by the District
that is passed on to the City to cover the cost of treatment services provided by the District and
related connection fees shall be automatically included in the City’s annual ordinance
pertaining to the Utility Rates and Charges.
40
City Council Policy
Use of Debt
Policy Number: 8.3
Legislative History: CD 2003-165
1. Purpose
The purpose of this policy is to provide guidance regarding the issuance of debt. The City Council
recognizes that accumulating all of the funds to construct projects or commence programs over a
number of years, using a “pay-as-you-go” approach, may not adequately address the current and
future needs of the community. The City Council also recognizes that the prudent use of debt for a
capital project or new program is an appropriate means to achieve a fair allocation of costs between
current and future citizens who will benefit from such capital project or program.
2. Policy
a. The City Council and City staff will evaluate the alternatives and associated impacts that are
available to the City to finance its capital needs including the use of current revenues from
taxes, fees, rates and other sources, grants and contributions from other governments, as well
as the issuance of debt, through the development and approval of the annual budget.
b. The City will issue debt for the refunding of outstanding debt to lower interest costs or for the
acquisition, replacement or expansion of physical assets (including land) which have a useful
life of at least five years, and that the final maturity of debt issued for such physical assets will
not exceed the useful life or average useful lives of the project or projects to be financed.
c. The City may also use debt for the start-up costs for new programs.
d. The City will not use debt to fund operations or restructure existing debt for longer periods of
time, except when the City Council deems it is in the best interest of the City to pursue such
options or in cases of fiscal emergency.
e. The City Manager is directed to continue to take appropriate actions that minimize the City’s
debt service and issuance costs, allow the City to maintain the highest practical credit rating,
comply with applicable tax and regulatory requirements, and comply with all financial
disclosure and reporting requirements.
41
City Council Policy
Settlement of Litigation Matters
The purpose of this policy is to formalize the process with respect to the settlement of litigation
Policy Number: 8.4
Legislative History: CD 2001-174
1. Purpose
matters.
2. Policy
a. At the time the City Attorney presents an evaluation of newly filed litigation to the City Council
in an executive session, the City Council may grant the City Manager, without further Council
approval, the authority to enter into an agreement to settle the litigation within the settlement
guidelines as directed by City Council.
b. The City Attorney shall review the nature of the claim(s), the amount of the claim(s), the nature
of the City’s defenses, and any other pertinent information. The City Attorney (and the City’s
insurance carrier, where appropriate) shall approve any such settlement agreement.
c. The City Council may withdraw the grant of authority provided herein on a case-by-case basis
as it may deem appropriate provided that such withdrawal occurs prior to the City Manager
approving a specific settlement.
d. The granting of authority to the City Manager to settle a litigation matter shall be noted on the
City Attorney’s confidential litigation report. The City Council shall be advised of all settlements
approved pursuant to this policy.
42
City Council Policy
Water Rights Protection
Policy Number: 8.5
Legislative History: CD 1994-238
1. Purpose
The purpose of this policy is to delegate City Council’s authority to the City Manager/Utilities Director
with regard to certain water rights protection actions and to provide policy direction with regard to
water rights acquisitions and transfers.
2. Policy
a. The City Council authorizes and delegates to the City Manager/Utilities Director, or designee,
its authority to file statements of opposition and intervene in the applications of others in water
court cases which have the potential to detrimentally affect the water rights of the City of
Thornton subject to the following conditions:
• The costs necessary to file statements of opposition and incur legal, engineering and other
associated costs are included in a budget adopted by City Council; and
• The City Council shall be advised of the status of opposition cases whose total cost
exceeds $50,000 and shall provide direction to staff whether to proceed further.
b. The City Council authorizes and delegates to the City Manager/Utilities Director, or designee,
its authority to negotiate and approve settlement agreements of opposition cases which the
City Manager/Utilities Director has determined are in the City’s best interest to settle based
upon, but not limited to, such considerations as protection of the City’s water rights, the cost to
settle versus further litigation, and establishment of precedents.
c. Applications for transfer and/or change of use of water rights the City of Thornton owns and
applications for findings of reasonable diligence and/or to make absolute a conditional water
right (“diligence applications”) shall require the consent of the City Council.
d. Applications filed by the City for new water rights, including the authority to settle out-of-court,
file necessary appeals and subsequent applications, shall be authorized by City Council
resolution.
e. The City Council authorizes the City Attorney/Utilities Attorney, or designee, to represent the
City of Thornton in the Colorado Water Courts as directed by the City Manager/Utilities
Director, or designee, pursuant to Section 2.1 above.
43
City Council Policy
Fund Balance and Cash Reserves
Policy Number: 8.6
Legislative History: CD 2011-029 CD 2016 073 CD 2016 073
3. Purpose
The purpose of this policy is to establish guidelines to provide direction as to the levels of fund
balance and cash reserves; clarify how such reserves may be utilized to respond to events; and
how to address the replenishment of the reserves should it become necessary to utilize such
reserves. The guidelines will take into considerations the volatility of sales tax revenue; the
concentration of large sales tax producers in the City; the potential for emergency expenditures and
other unanticipated needs; the recommendations of professional government finance organizations;
and the related accounting standards issued by the Governmental Accounting Standards Board.
4. Policy
a. The committed fund balance reserve in the General Fund will be maintained in an amount equal
to 17% of the current year General Fund Budget.
b. Utilization of any of the fund balance reserve listed under item a. above requires a two-thirds
affirmative vote of the City Council.
c. In addition to the committed fund balance reserve listed under item a. above, a restricted fund
balance reserve will be maintained in the General Fund for the TABOR emergency reserve as
required by the Colorado Constitution.
d. The City Manager shall have discretion to determine if other means are appropriate to address
a revenue shortfall due to economic events or the departure of a key sales tax vendor or a
catastrophic event before requesting use of the committed fund balance reserve.
e. The assigned fund balance in the Governmental Capital Fund will be maintained at an amount
equal to the combined reserve requirement, if any, resulting from legal covenants made by the
City in association with loans, leases, debt, or other financial obligations supported by the
Governmental Capital Fund, excluding any reserves which are required to be held by other
parties to these transactions.
Policy Number: 8.6
Legislative History: CD 2016 073
f. Cash reserves in the Risk Management Fund will be evaluated annually and maintained at a
level determined sufficient based on a review of past claims history and an estimate of future
claims. If the annual evaluation results in a reserve determination lower than the amount
recommended by the City’s actuarial studies, City staff will present such analysis to City Council
for final approval and adoption of the reserve. .44
g. A cash reserve in the Water Fund will be maintained at a level equal to 180 days of the Water
Fund’s operations and maintenance budget for the current year.
h. A cash reserve in the Sewer Fund will be maintained at a level equal to 90 days of the Sewer
Fund’s operations and maintenance budget for the current year.
i. A cash reserve in the Sanitation Fund will be maintained at a level equal to 90 days of the
Sanitation Fund’s operations and maintenance budget for the current year.
j. In the event any fund balance or cash reserve level exceeds the amount set forth in this policy,
the City Manager shall, as part of the proposed annual budget, recommend uses for such monies
that exceed the requirements for the benefit of the community.
k. In the event any fund balance or cash reserve is utilized or the level falls below the amount set
forth in this policy, the City Council shall approve a plan within two years of such event to restore
such fund balance or cash reserve levels to the amount required by this policy. Such plan should
provide for the restoration of the fund balance or cash reserve to the levels provided herein as
quickly as is reasonable given the current and projected future revenues and expenditures of
the City. The plan may be adopted as part of the annual budget or as a separate plan. Any
modification shall be approved by City Council.
45
City Council Policy
Private Activity Bond Allocation
Policy Number: 8.7
Legislative History: CD 1999-024
1. Purpose
The purpose of this policy is to establish an orderly process for the assignment and/or use of the
City’s Private Activity Bond (PAB) allocation to issue tax-exempt PABs in compliance with the
Internal Revenue Code of 1986 (the “Code”) and the Colorado Private Activity Bond Ceiling
Allocation Act (24-32-1701 et seq., C.R.S.). The City desires to encourage the use of the allocation
to sustain affordable housing conditions and opportunities as well as private investment in the City.
2. Policy
a. Any proposal related to the assignment or allocation of the City’s PAB authority shall
demonstrate a public benefit to the City which involves one or more of the following:
• Increasing the percentage of owner-occupied housing units in the City and facilitating
opportunities for first-time, eligible veteran, or non-first time home buyers;
• Increasing or preserving the supply of affordable housing as defined by the Code;
• Renovating existing rental housing facilities and/or construct new rental housing facilities;
• Diversifying and/or expanding the City’s employment base; and
• Expanding or maintaining the City’s tax base.
b. Assignment of the City’s PAB allocation to State and Local Authorities. The City Council may
consider requests to assign the City’s PAB allocation to one or more state and local authorities
authorized to utilize the PAB allocation. The City Council may also consider requests to
combine the City’s PAB allocation with other allocations to finance a specific project within the
City or to participate in a program which operates in several jurisdictions, including the City.
The City shall establish a process providing notice of the availability of PAB funding and inviting
qualified entities to submit proposals for the use of the City’s PAB allocation. The proposals
shall be presented to City Council in a timely manner for their consideration. Applicants for
PAB assignment must clearly demonstrate the benefit to the City as well as the financial
capability to amortize any debt issued pursuant to the PAB assignment.
c. The City Council may endorse the use of Private Activity Bond allocations from other
jurisdictions within the City if the City Council finds that a substantial municipal interest would
be served by such an endorsement.
d. Financial Responsibility of Applicants Requesting to Issue PAB Bonds.
Thornton’s Financial Obligation. The City will assume no financial obligation for the
payment of legal fees, bond issuance costs, interest or construction costs associated
with the PAB project. The City shall in no way be financially obligated for the repayment
of the PAB.
46
Financial Criteria. The City shall review all financial criteria it deems relevant to the
proposed PAB project in order to evaluate the financial capacity of the applicant.
Applicants must clearly demonstrate financial responsibility sufficient to amortize the
proposed bond issue.
Minimum Bond Issue Size. The City generally will not consider a PAB issue of less than
its entire annual allocation except when the City is participating in a PAB issue with
other PAB allocations.
e. Application Procedures Related to the Issuance of PAB Bonds.
• Application Materials. Any request for PAB allocation to issue bonds shall be made
through a formal application to the City. The City shall maintain and update an
application for the PAB allocation. At a minimum, the following shall be included in the
application:
1. Written, preliminary opinion of bond counsel, addressed to the City, that the bonds
proposed to receive the PAB allocation constitute Private Activity Bonds as defined
in Section 142 of the Internal Revenue Code and C.R.S.;
2. Draft inducement resolution to be reviewed by the City Attorney;
3. Signed statement of intent or other indication of proposed credit enhancement;
4. Narrative that clearly demonstrates the public purposes of the proposed bond issue.
This should include references to applicable portions of the Comprehensive Plan,
Economic Development Strategy, master plans or other City policies which the
proposed development addresses;
5. Non-refundable application fee as provided for in the fees and charges resolution
adopted by City Council. Out of the bond proceeds, the City shall also receive a fee
equal to .50% of the actual bond amount. City Council may waive this fee for bonds
used for affordable housing projects to include home ownership programs;
6. Market analysis, business plan, and financial statements to include the previous
three years of audited financial statements;
7. Site plan and architectural elevations (if available);
8. Ten-year pro forma for multifamily housing projects;
9. Description of any outstanding litigation affecting applicant or project area in court of
record;
10. Proposed allocation of bond proceeds and development budget which includes
sources and uses of funds for the proposed project; and
11. Articles of incorporation, bylaws, partnership agreement or other relevant
organizational information of applicant.
• Application Review Process.
1. The City Manager shall assign the appropriate departmental staff to act as liaison
for all PAB allocations. Staff will assure that the required application is complete
47
and shall prepare a staff report to City Council. The staff report and inducement
resolution shall then be presented to City Council.
2. City Council shall review the staff report and inducement resolution and conduct a
public hearing in accordance with Section 147(f) of the Internal Revenue Code. The
purpose of the public hearing is for interested persons to express support or
opposition to the proposed use of the PAB application.
3. After the conclusion of the public hearing, the City Council may desire to continue
discussion of the matter or may act to approve, approve with modifications, or
disapprove the inducement resolution.
• Application Review Priorities. In reviewing the application, the City staff and City
Council may consider the following items:
1. Demonstrated impact of the PAB-financed development on Thornton’s need for:
affordable housing; increasing the percentage of owner-occupied housing units in
the City; facilitating opportunities for first-time home buyers; increasing employment
opportunities; and redevelopment of blighted areas;
2. Consistency of the project with the Comprehensive Plan, Economic Development
Strategy, appropriate master plan or other applicable City policy;
3. Impact of the project on the City’s tax base;
4. Degree to which the proposed project demonstrates long-term viability as evidenced
by financing, marketing, management, physical design, construction, and other
criteria as appropriate;
5. Ability of the project to proceed without the City’s PAB allocation; and
6. Other information deemed necessary and appropriate by the City Council, City
Manager or staff.
• Unrated Bonds and Selection of Bond Counsel. The City will not permit the public
offering of bonds which are either unrated by a national rating agency or are rated below
investment grade by a national rating agency. An unrated private placement with
sophisticated investors with acceptable credit enhancement will be considered on a
case-by-case basis. The City reserves the right to approve the selection of bond
counsel, underwriters, and financial consultants retained by the applicant. The
applicant shall pay for the City’s bond counsel.
48
City Council Policy
Business Assistance Guidelines for Retail Businesses
Policy Number: 8.8
Legislative History: CD 2007-083
1. Purpose
The purpose of this policy is to provide guidance to the City staff in evaluating and developing business
assistance packages/agreements on behalf of the City. This policy also provides guidance to
businesses by setting forth the City's expectations and priorities for considering business assistance
packages.
2. Policy
3.7 A written agreement is required and no agreement is final without City Council approval. All
written agreements shall include a provision in which the business agrees to meet or exceed the
City of Thornton’s current development standards. Business assistance agreements are entirely
discretionary and will be considered on a case-by-case basis by the City Council. Previously
approved agreements do not establish a precedent for subsequent agreements.
3.8 Priorities. Priorities for business assistance packages shall be based on the outcomes the City
Council has set to achieve as reflected in their goals and policies, the City of Thornton
Comprehensive Plan, various Master Plans and other related policy statements in addition to
the following: (a) existing businesses that are expanding existing facilities and increasing the
number of jobs and/or sales and use taxes; (b) new businesses that create new jobs in
Thornton as well as generate substantial new sales and use taxes; (c) specific industries and
services that the City determines are needed to provide a balance of businesses and services
within the City; (d) redevelopment of existing properties with special existing conditions that
may need to be remediated in order to enable the properties to be redeveloped; and (e) to
assist businesses in commencing their operations in an expedited manner.
2.3 Scope. This policy shall be used to evaluate any and all business assistance packages. For
purposes of this policy, a business assistance package may be considered on an individual
business basis and/or project basis. A list of the various business assistance tools available to
the City are identified in Exhibit A attached hereto.
2.4 Term of Agreements. Business assistance agreements shall generally be limited to a five-year
period, although a period of more than five years may be considered on a case-by-case basis.
The agreement and all provisions will be terminated if the business leaves Thornton. Business
assistance agreements will not be assignable without the express written permission of the City
Council.
2.5 Impact Consideration. The business assistance package analysis shall consider the impact of
competition on other existing businesses.
2.6 Performance Based. While there are a number of business assistance tools available to the City,
generally speaking, a performance based agreement is preferred. Performance based means
that before any monies may be disbursed, the business and/or developer must meet or exceed
the specific performance measures identified in the Business Assistance Agreement. Specific
performance measures include: (a) requiring new revenues generated by the business to equal
49
or exceed the total dollar amount of the business assistance provided during the period of the
business assistance agreement by rebate or refund; (b) requiring any rebate or refund to come
from the revenues actually generated by that business; or (c) requiring the completion of
significant development review process milestones such as successful completion and issuance
of a development permit, building permit or certificate of occupancy prior to disbursing any
monies.
2.7 Job Creation. In evaluating a business assistance package, consideration will be given to the
creation of jobs in Thornton including the number as well as the salary range for such jobs. The
business assistance agreement should include a provision encouraging businesses receiving
incentives to use a good faith effort to hire Thornton residents and to advertise the location of the
business in Thornton.
2.8 Fees and Taxes. The following business assistance factors may be considered to reduce
development costs associated with the new business or business expansion:
• rebate of development fees
• rebate or waiver of public land dedication fee
• rebate of a portion of the new sales taxes generated by the business
• rebate of a portion of new use taxes generated by the business
• rebate of use taxes paid on construction of a new facility or expansion of an existing facility
• rebate of the City's real property taxes paid on a new facility
• rebate of the City's personal property taxes paid on a new facility.
Rebate of property taxes within an enterprise zone shall be limited as provided by State Statute.
The manner and timing of rebates shall be specified in the and shall generally be tied to the
issuance of the Certificate of Occupancy for the new or expanded business.
Rebate of sales and use taxes will only be considered for new taxes generated by the business.
Unless special circumstances dictate, such rebate will be limited to 50% of the new sales and use
taxes generated. The City will not rebate existing sales and use taxes generated by a business.
2.9 Thornton Development Authority. The Thornton Development Authority has developed an
Economic Development Incentive Program to provide direct financial assistance to upgrade
buildings and grounds of existing businesses located within the Thornton Urban Renewal
boundary.
2.10 Consideration for Other Assistance. In determining its business assistance package, the City will
give consideration to other assistance which may be granted by other entities such as the State
of Colorado, the Adams County Economic Development Corporation (ACED), United Power,
other private sources.
3.0 Enterprise Zones. The City has one enterprise zone within the corporate boundaries: the 1990
Enterprise Zone, amended in 1996 and as may be further amended by the State of Colorado,
located between 88th Avenue and 84th Avenue, including the North Valley Mall property, the
Northland Shopping Center and the Thornton Shopping Center. A map of the enterprise zone is
attached. Enterprise zones provide a number of State tax credit programs to qualified businesses
located within the zone.
50
Policy Number: 8.8
Legislative History: CD 2007-083
Exhibit A
Business Assistance Tools
Type Example
Rebate of fees and taxes • Sales Tax Rebate
• Use Tax Rebate
• Property Tax Rebate
• Permit Fees Rebate
Direct Subsidy City may provide a direct subsidy.
Public Improvements City may install selected public improvements
to assist in development
Land Value Special Districts City may “buy-down” the cost of the land to
adjust to current market value
City may authorize the creation of taxing
districts such as: Metropolitan District,
General Improvement District, Special
Improvement District
Securing of other revenues sources City may assist in securing revenues from:
Adams County incentives, Enterprise Zone
Funding, Federal Tax Credits, Tax Increment
District, etc.
Analysis, data and reports City may hire third party consultants to gather
data, provide analysis and produce reports
Expedited Development Review
Process
City may approve Administrative Review for
Projects of Economic Significance
51
Policy Number: 8.8
Legislative History: CD 2007-083
Enterprise Zone Map
52
City Council Policy
Primary Employer Assistance Guidelines
Policy Number: 8.9
Legislative History: CD 2014-105
1. Purpose
The purpose of this policy is to provide guidance to businesses by setting forth the City's priorities
and expectations for considering incentive packages for primary employers. This policy also
provides guidance to City staff in evaluating and developing business assistance
packages/agreements for primary employers on behalf of the City.
2. Policy
2.1 A written agreement is required and no agreement is final without formal action by City Council.
All written agreements shall include a provision in which the business agrees to meet or exceed
the City of Thornton's current development standards. Incentive agreements are entirely
discretionary and will be considered on a case-by-case basis by the City Council. Previously
approved agreements do not establish a precedent for subsequent agreements.
2.2 Priorities. Priorities for primary employer incentive packages shall be based on the
outcomes the City Council has set to achieve as reflected in their goals and policies, the
City of Thornton Comprehensive Plan, various Master Plans and other related policy
statements to grow the local economy and provide quality job opportunities for Thornton
residents, by: (a) assisting existing primary employers that are expanding existing facilities
and increasing the number of jobs, or increasing wage levels; (b) attracting new
businesses that create new, higher paying jobs in Thornton; (c) attracting specific
industries that the City determines are needed to provide industrial diversity; (d)
encouraging redevelopment of existing properties; and (e) assisting eligible companies in
commencing their operations in an expedited manner.
2.3 Eligibility Threshold. To be eligible for a primary employer incentive package, companies
shall sell the majority of their goods and services outside the north metro region (including all
of Adams County and parts of Jefferson, Boulder, Broomfield and Denver Counties). In
addition, they must add at least 10 full time jobs whose average wage is at least 5% above
the average County wage. The company will be required to provide documentation on the
number of jobs and the average wage levels of the Thornton operation before initial incentive
payment is made.
2.4 Scope. This policy shall be used to evaluate any and all primary employer incentive packages.
For purposes of this policy, a primary employer incentive
package may be considered on an individual business basis and/or larger project basis.
2.5 Policy.
2.5.1 Term of Incentive Agreements. Incentive agreements shall generally be limited to a five-
year period, although a period of more than five years may be considered on a case-by-
case basis. The agreement and all provisions will be terminated if the business ceases
operations, moves out of Thornton or is not in compliance with terms of the incentive
53
agreement or City ordinances. Incentive agreements shall only be assigned with the
written consent of the City Council.
2.5.2 Performance Based. All incentive agreements shall be performance based. Performance
based means that before any monies are disbursed; the business shall meet or exceed
the specific performance measures identified in the Incentive Agreement. Specific
performance measures may include: (a) meeting the requirements of the eligibility
threshold for jobs and wages; (b) requiring new revenues generated by the business to
equal or exceed the total dollar amount of the incentive provided during the period of the
incentive agreement by rebate or refund; (c) requiring any rebate or refund to come from
the revenues actually generated by that business; or (d) requiring the completion of
significant development review process milestones such as successful completion and
issuance of a development permit, building permit or certificate of occupancy.
2.5.3 Local Hiring. The incentive agreement will include a provision encouraging businesses
receiving incentives to use a good faith effort to hire Thornton residents and to advertise
the location of the business in Thornton.
2.5.4 Incentive Tools. The following incentive tools may be considered to reduce development
costs associated with the new or expanding business:
• rebate of permit fees
• rebate of a portion of new use taxes generated by the business
• rebate of any use taxes owed on existing equipment moved into the City
• rebate of use taxes paid on a new, expanded or refurbished facility
• rebate of the City’s real property taxes paid on a new or expanded facility
• rebate of the City’s business personal property taxes paid on new equipment
• direct subsidy to a new or expanding primary employer, given it creates at least 75
new jobs and pays 125% of the Adams County average wage
• direct subsidy for public infrastructure costs if the City determines the improvements
are required in the City’s Comprehensive Plan or a Master Plan for infrastructure
development and if the project meets the criteria of adding at least 100 jobs at 150%
of the Adams County average wage
• creation of special taxing districts including a Metropolitan District, General or Special
Improvement District
Rebate of property taxes within an enterprise zone shall be limited as provided by State
Statute. The manner and timing of rebates shall be specified in the agreement and shall
be tied to the issuance of the Certificate of Occupancy for the new or expanded business,
unless otherwise specified.
Rebate of sales and use taxes will only be considered for new taxes generated by the
business. Unless special circumstances dictate, such rebate will be limited to 50% of the
new sales and use taxes generated. The City will not rebate existing sales and use taxes
generated by a business.
2.6 Thornton Development Authority. The Thornton Development Authority has developed an
Economic Development Incentive Program to provide direct financial assistance to upgrade
buildings and grounds of existing businesses located within the Thornton Urban Renewal
boundary.
54
2.7 Consideration for Other Assistance. In determining its incentive package, the City will give
consideration to other assistance which may be granted by other entities such as the State of
Colorado, Adams County, and School Districts, Xcel Energy, United Power or other private
sources.
2.8 Enterprise Zones. The City has one enterprise zone within the corporate boundaries: the 1990
Enterprise Zone, amended in 1996 and may be further amended by the State of Colorado,
located between 88th Avenue and 83rd Avenue, including the North Valley Tech Center
property, the Northland Shopping Center and the Thornton Shopping Center. A map of the
enterprise zone is attached. Enterprise zones provide a number of State tax credit programs
to qualified businesses located within the zone.
55
Policy Number: 8.9
Legislative History: CD 2014-105
Enterprise Zone Map
56
Policy Number: 8.9
Legislative History: CD 2014-105
2.9 Annual Appropriations. All Incentive Agreements shall be subject to annual appropriations by
City Council as required in the Colorado Constitution and the City Charter.
57
City Council Policy
Annexation
Policy Number: 9.1
Legislative History: CD 1988-176
1. Purpose
The purpose of this policy is to provide guidance with respect to formulating annexation strategies
designed to implement the objectives of the City of Thornton Comprehensive Plan, City of Thornton
Water and Wastewater Facilities Master Plan, and the intergovernmental agreements the City has
with the cities of Westminster, Commerce City, and Brighton and Adams County.
2. Policy
a. The City shall annex property in a strategic and planned manner. Measures shall be developed
to protect the City’s planned growth area, including the execution of intergovernmental
agreements, acquisition of critical rights-of-way, and timely inclusion of enclaves into the City
limits. Appropriate growth management practices shall be developed to provide a balance
between capital expenditures and revenue generation associated with property development.
b. The City shall consider innovative approaches to annexation and the provision of infrastructure
and services. Incentives related to the timing of capital improvement construction and
reimbursement of infrastructure costs shall be considered, and targeted to areas prime for
development. Other incentives shall only be considered as a means of encouraging
annexation as necessary to achieve strategic objectives.
c. The City shall require annexation as a condition of providing utility service. Utility service
contracts shall be offered as an incentive to annex property, and, where practical, land shall
be annexed and planned prior to receiving utility service. Existing service contracts shall be
negotiated or permitted to expire as necessary to encourage annexation and conformance to
City land use controls.
d. The policies contained herein are general in nature and other information as City Council
deems appropriate may be considered in the exercise of City Council’s legislative or quasi-
judicial discretion. The policies shall vest no right in any individual or entity either relating to
the annexation of land into the City or to City provisions of services to such annexed areas.
58
City Council Policy
Community Projects – Criteria for Designating and Locating on City Property
Policy Number: 10.1
Legislative History: CD 2007-095
1. Purpose
The purpose of this policy is to establish criteria for consideration of designating community projects
as important community projects when such projects are intended to be located on City property
and dedicated to and maintained by the City.
2. Policy
a. In order for City Council to consider designating a community project as an important
community project, it must meet the following:
• The City Council has determined that the public art, veterans’ memorial, other memorial, or
community project promotes the City’s long range goals and public welfare.
• The design of the public art has been reviewed and approved by the Thornton Arts,
Sciences and humanities Commission and the City Council has authorized the public art to
be located on City property subject to approval by the City Manager that the location for the
public art meets the Master Plan for the site. The City Council may revoke its authorization
at any time.
• The City Council has authorized the memorial or community project to be located on City
property subject to the City Manager determining that the location for the memorial or
project meets the Master Plan for the site. The City Council may revoke its authorization
at any time.
• The fundraising will be conducted through a non-profit entity.
b. Upon a community project receiving designation as an important community project by City
Council, the non-profit entity may have access to City events and facilities, at no cost, to
conduct fundraising and provide information materials at City facilities as space and
opportunities are available, in the City’s sole discretion, only for the approved community
project.
c. Subsequent to receiving such designation, the non-profit entity leading the community project
fundraising effort shall agree as follows:
• The public art, memorial or community project shall be dedicated to the City upon
completion.
• The City Manager or designee shall approve the design and materials of the public art,
memorials or community project related to maintenance and repair in writing before award
of a construction contract to commence the work.
• The appropriate permits shall be obtained from the City prior to any construction or
installation of the public art, memorials or community project on City property including
provision of required insurance.
59
• The City Manager is authorized to sign an agreement as it pertains to the responsibilities
between the City and the non-profit entity leading the community project.
60
City Council Policy
Capital Improvement Projects Funded by the City
Policy Number: 10.2
Legislative History: CD 2007-097
1. Purpose
The purpose of this policy is to establish the requirements for public participation, architectural
design and landscape requirements for capital improvement projects funded by the City. Capital
improvement projects are not subject to the processes and requirements of the Thornton City Code
pertaining to development.
2. Policy
a. The City Manager or his designee shall include a public participation and input element to
provide residents and/or businesses that may be impacted by the City capital improvement
project prior to or as a part of the design phase to discuss the project and their concerns and
suggestions. The City will also advise them of the final project scope and design as well as the
schedule for completion of the improvements.
b. The architectural design and landscape requirements for capital improvement projects shall be
approved by City Council.
c. Capital improvement projects for infrastructure (streets, bridges, drainage, water and sewer
lines, etc.) shall meet the generally accepted engineering design guidelines and design
standards appropriate for the project.
d. Capital improvement projects shall meet all other provisions of the City Code.
61
City Council Policy
Gifts, Property Donations, and Temporary Loans of Personal Property to the City
Policy Number: 10.3
Legislative History: CD 1995-184
1. Purpose.
The purpose of this policy is to establish a procedure for the City to accept Gifts, Property Donations
and Temporary Loans from Donors.
2. Policy:
2.1 This Council policy applies to all Gifts, Property Donations, or Temporary Loans that are
offered by a Donor to the City.
2.2 Definitions:
“Donor” means an individual, business or other entity that wishes to make a Gift, Donation or
Loan to the City of Thornton.
“Gift” means any item of personal property, whatever kind or nature, including money and
negotiable instruments.
“Property Donation” or “Donation” means the grant to the City of any real property.
“Temporary Loan” or “Loan” means a temporary transfer of possession of an item of personal
property to the City for a limited and specific period of time.
2.3 Criteria for Acceptance of a Gift, Donation, or Loan. All Gifts, Property Donations and
Temporary Loans may be accepted by the City so long as the following criteria as applicable,
are met:
2.3.1 The Gift, Donation or Loan is given without an obligation on the part of the City to accept
such Gift, Property Donation, or Temporary Loan in exchange for any compensation,
service, promise, concession, or consent.
2.3.2 The Donor shall establish to the City’s satisfaction that it is the sole owner and has the
authority to give the Gift, Property Donation, or Temporary Loan.
2.3.3 Gifts, Property Donations, or Temporary Loans can be maintained by the City without
the necessity of the City acquiring any unusual or specialized equipment, expending
additional costs, or engaging in any burdensome activity, including extraordinary
maintenance in which the City would not normally engage. The City may waive this
criterion.
2.3.4 The City shall not be required, as a condition of acceptance of a Temporary Loan, to
obtain insurance. The Donor shall be required to release the City from any liability
associated with the City’s possession and use of a Temporary Loan.
2.3.5 Monetary Gifts shall be made by direct deposit to an account designated by the City or
by negotiable instrument that can be immediately deposited by the City and cannot
include any type of limiting or restrictive endorsement, unless such endorsement has
been accepted by the City.
62
2.3.6 Property Donations shall be free from all liens, encumbrances, reservations, liabilities,
or deficiencies of any kind except those permitted by the City. Before a determination is
made to accept a Property Donation, a title commitment will be obtained at the cost of
the City. In addition, environmental assessments may be conducted at the direction and
cost of the City and the findings must be acceptable to the City and cannot have any
restrictions as to use associated with such real property, unless such use restrictions are
accepted by the City. At closing the City shall pay the title policy premium.
2.4 Procedure for Acceptance. When a Donor desires to make a Gift, Property Donation, or
Temporary Loan to the City:
2.4.1 The Donor must complete and execute an Agreement for Acceptance form, or other
appropriate form, prepared by the City. The Agreement for Acceptance or other form
must identify the Gift, Donation, or Loan and must clearly demonstrate compliance with
the Section 2.3 Acceptance Criteria.
2.4.2 The City Manager or the Executive Director of the department that will make use of a
Gift, Donation or Loan shall evaluate whether the Gift Donation or Loan fits within the
Acceptance Criteria and whether acceptance of the Gift, Donation or Loan is in the best
interests of the City.
2.4.3 If the Gift, Donation or Loan fits within the criteria, the City Manager is authorized to
approve the Gift, Donation, or Loan or may forward to City Council the Gift, Donation, or
Loan for consideration.
2.5 Procedures Upon Acceptance. Once a proposed Gift, Donation, or Loan has been approved
by City Council or the City Manager, the following procedures will be followed:
2.5.1 When appropriate, a copy of the Agreement for Acceptance or other appropriate form
shall be forwarded to the Finance Department for coordination regarding delivery to the
City and to arrange for all associated costs of delivery.
2.5.2 A copy of the Agreement for Acceptance or other appropriate form shall be forwarded to
all other appropriate departments to coordinate installation and to make arrangements
for existing facilities to incorporate such Gift, Donation, or Loan as necessary. In the
case of a Donation, the asset shall be added to the inventory of real property as required
by City policy.
2.5.3 A copy of the Agreement for Acceptance, or other appropriate form, shall be forwarded
to the City Attorney’s office for review and preparation of any and all appropriate transfer
documents deemed necessary for negotiation, execution, and/or transfer of title for Gifts,
or Donations or Loans.
2.5.4 Coordination for acceptance, integration, and/or transfer of title to all Gifts, Donations or
Loans shall be coordinated as necessary by the City department designated by the City
Manager.
2.6 General.
2.6.1 The City shall become the owner of all Gifts, Donations or Loans to use or dispose of as
the City deems appropriate. However, any identifying or memorial language may be
considered by the City Council at the time of acceptance.
63
2.6.2 Gifts, Donations and Loans shall be accepted for the benefit of the City and used for
public purposes only.
2.6.3 Loans shall be used only in accordance with the specific requirements contained in the
Agreement for Acceptance.
2.6.4 If the City discovers, following acceptance of a Gift, Property Donation, or Temporary
Loan of personal property, that the item or real property does not comply with the
requirements of this Council Policy, the City has the authority to take whatever steps are
necessary to address such non-compliance, including but not limited to retaining,
returning or otherwise disposing of the item.
64
Policy Number: 10.3
Legislative History: CD 1995-184
FOR
AGREEMENT FOR ACCEPTANCE OF LOANS OF PERSONAL PROPERTY
TO THE CITY OF THORNTON
Lender:
Address:
City: State: Zip:
Phone:
In accordance with the Conditions Governing Loans listed on the reverse side, the item(s) listed below
are loaned to the City of Thornton for use in for the period
to .
Item Description I.D. or Serial No.
Special Conditions (if any):
If necessary, please attach any additional information which identifies or describes the condition of the
item(s).
Having read, understood, and agreed to the Conditions Governing Loans, and having the authority to
make this Loan, I, agree to loan the item(s) listed herein to the City of
Thornton.
STATE OF COLORADO )
)ss.
COUNTY OF ADAMS )
Subscribed and sworn to before me this day of by
WITNESS my hand and official seal.
My commission expires:
NOTARY PUBLIC
ACCEPTED BY:
City of Thornton Month/Day/Year
65
Policy Number: 10.3
Legislative History: CD 1995-184
Conditions Governing Loans of items for Exhibit
Ownership and Authority of loaned item(s). The Lender represents to be the lawful and sole owner of
the loaned item(s).
Indemnification. The Lender shall hold the City of Thornton ("the City") and its agents, officers and
employees harmless and defend against any and all claims which may be asserted by any who claims
any right, title or interest in the loaned item(s).
Care and condition.
I. The City shall only use the loaned item(s).
2. No alteration, restoration or repair will be undertaken without the written consent of the Lender.
3. The Lender certifies that the item(s) loaned are in working condition. The Lender agrees to inform
the City of any defects or weaknesses in the loaned item(s).
Transportation and packing.
1. Costs of transportation and packing will be borne by the Lender City (check one). The method
of transportation and packing must be approved by both the Lender and the City.
2. The Lender will assure that said item(s) are adequately and securely packed for the type of shipment
agreed upon, including any special instructions for packing and unpacking. Item(s) will be returned
packed in the same or similar materials as received unless otherwise specified by the Lender.
Insurance and release of liability. The City is not responsible for obtaining insurance for the loaned
item(s). By signing this Agreement the Donor(s) hereby release(s) the City and its officers and agents
from any and all liability in the event the loaned item is damaged while in the City's possession.
Return of loans. Loaned items will be returned to the Lender within a reasonable time after the
. Unless directed in writing, the City will release loaned items only
to the Lender. If the Lender fails to make provisions for return of the item(s), the City reserves the right
to, within 60 days after the termination of the loan period, ship the item(s) C.O.D. to the Lender's home
or place of business. Upon return of the loaned item(s) the Lender shall sign a receipt indicating the
return of the item(s).
Governmental immunity not waived. By entering into this Agreement the City does not in any way waive
any of the rights, immunities or protections afforded by the Colorado Immunity Act, C.R.S. 24-10-101,
et seq., as it is amended from time to time.
Venue. This Agreement shall be governed by the laws of the State of Colorado, and any legal action
concerning the provisions hereof shall be brought in the County of Adams, State of Colorado.
The loaned item(s) were returned to the Lender:
by mail or in person on by .
(Name and Title)
(Signature of Lender, if item(s) returned in person)
66
Policy Number: 10.3
Legislative History: CD 1995-184
Gift to the City of Thornton
I, , hereby voluntarily and unconditionally give to the City
of Thornton ("the City") the item(s) listed below for the City's use. I understand that by making this Gift
I will transfer all my rights in the item(s) to the City, and that the City may use and dispose of the item(s)
as it deems proper. I certify that I am the sole lawful owner of the Gift(s) and that I have the sole authority
to make this Gift to the City. I understand that making this Gift to the City is irrevocable.
Description of Gifted item(s) ID or Serial No.
Donor's Signature Date
Address:
City: State: Zip:
Phone:
STATE OF COLORADO )
) ss.
COUNTY OF ADAMS )
Subscribed and sworn to before me this day of , by
.
WITNESS my hand and official seal.
My commission expires:
NOTARY PUBLIC
67
City Council Policy
Naming of City Facilities and Honorary Street Name Designations
Policy Number: 10.4
Legislative History: CD 2001-094
1. Purpose
The purpose of this policy is to establish the guidelines for naming of parks, parks and recreation
facilities, and other City sites or facilities (“City Facility”) and to establish the guidelines for the
honorary street name designations alternatives to honor individuals and organizations who have
made significant contributions to the community.
2. Policy
2.1 Naming of City Facilities.
a. The first priority for naming a City Facility shall be given to a name that is based of its
geographical location, historic significance, or geologic features.
b. The second priority for naming a City Facility shall be given to the name of a person(s)
who has made a large financial contribution or contributed many years of service to the City.
All names must meet one of the following classifications:
• Donors (individuals or organizations) who contribute a significant portion of the total
cost of the land and/or cost of development of neighborhood or larger parks; or
• National war heroes or in memory of all service men and women in the community; or
• National civilian heroes or persons such as great scientists, Presidents; or
• City Council and other persons who contribute service of over twenty years to the
community; or
• Historical places, events, and names; or
• Significant geographical or geological areas and feature names or;
• Civic, fraternal, veterans and other organizations; or
• Any other criteria deemed appropriate by City Council in the naming of a City Facility.
c. When a new facility requires a name, the City Manager shall submit a suggested suitable
name to the City Council who shall make the final selection of names for all City Facilities.
68
d. Parks, whose names are based on geographical location or geologic features, may be
renamed at the discretion of City Council.
e. City Facilities named after a person(s) shall include a monument that provides information
about the person(s) and why the facility was named after the person(s).
f. The City Council must approve any change in the name of a City Facility.
2.2 Renaming a Street Segment.
a. Segments of streets that have no addressed houses, businesses, or structures situated
on the street segment may be renamed in honor of a specific veteran who had resided in
Thornton and lost their life in the military at a time of war or military conflict in which the United
States is involved or an individual who made a significant contribution to the community. The
street segment proposed to be renamed should start and stop at a logical street intersection.
b. A request to rename a street shall be submitted to the City Manager for review for
compliance with the criteria noted above and City Code and submitted to City Council for
consideration. Any formal action on the request shall be by resolution of City Council.
2.3 Honorary Street Name Designations
a. A secondary sign separate from the street directional sign may be requested to honor a
specific veteran who had resided in Thornton and lost their life in the military at a time of war
or military conflict in which the United States is involved or an individual who made a significant
contribution to the community.
b. The honorary street designation signage may be installed above or below an existing
street name.
c. The City shall fabricate and install the signs. The signs shall be designed in a manner
that clearly designates them as honorary through color and/or shape.
d. Honorary street name designations shall sunset in 10 years. The City reserves the right
to remove the signs at any time.
e. An honorary street designation does not replace the official street name or cause the
need to re-address the street.
f. A request for a street name designation shall be submitted to the City Manager for review
for compliance with the criteria noted above and the City Code and submitted to City Council
for consideration. Any formal action on the request shall be by resolution of City Council.
69
2.4 Honorary Stand-Alone Signs.
a. An individual or organization may request a separate, stand-alone sign to be placed in
the City right-of-way to honor a specific veteran who had resided in Thornton and lost their life
in the military at a time of war or military conflict in which the United States is involved or an
individual who made a significant contribution to the community.
b. A request for an honorary sign shall be submitted to the City Manager for review for
compliance with the above criteria; to ensure that there is adequate right-of-way to
accommodate such sign; and that the proposed stand-alone sign meets City requirements. If
approved by City Council, the applicant shall be responsible for paying the cost of the sign and
installation.
c. Authorization for the stand-alone sign shall sunset in 10 years. The City reserves the
right to remove the stand-alone sign at any time.
d. The City Council may cause to have a stand-alone sign erected at its discretion.
70
City Council Policy
Public Input and Transparency in Construction of New Public Buildings
Policy Number: 10.5
Legislative History: CD 2012-1961
1. Purpose
The purpose of this policy is to set forth the public input process that City Council may initiate when
a decision is made to proceed with the planning, programming, design, siting and construction of a
new building to be utilized or programmed for public use.
2. Policy
a. Scope. The planning, programming, design, siting and construction of a new building2 to be
utilized or programmed for public use occurs on an infrequent basis. When it does occur, it is
a significant public event and one which garners significant budgetary attention as well. The
City Council is the focal point for decision-making regarding these projects from start to finish.
Historically, the Council has utilized a variety of processes to ensure that decisions are made
in a public forum and to enhance public input, which adds credibility to the entire process. This
policy sets forth the public input process that City Council may initiate when a decision is made
to proceed with the planning, programming, design, siting and construction of a new building
to be utilized or programmed for public use.
In addition, the City’s Charter includes a provision relating to the development of the career
service pay plan that essentially requires that people working for the City be treated fairly and
receive proper benefits that are commensurate for the area. The City Council, by practice and
policy, extended this concept to cover all employees and believes that extending this concept
to firms hired by the City to build new buildings reflects the values of this community and the
organization. This policy establishes a process that may be enacted by City
1 Ordinance No. 3227/CD 2012-200 amending City Code Section 26, division 7, Construction Contracts to add additional
factors to be considered in construction procurement for contracts exceeding $500,000 and construction services exceeding
$25,000.
2 For purposes of this policy, a “building” is defined as a structure that is primarily designed to accommodate the use by the
public for activities such as recreation, arts and culture, senior services, or public meetings, including fire stations with public
meeting facilities.
71
Policy Number: 10.5
Legislative History: CD 2012-196
Council that is intended to ensure that the contractors selected to participate in the
procurement process have policies and practices in place relating to personnel procurement,
workforce development and training, and benefit programs that are within the market range for
the current local labor market. This process, the “Prequalification Procurement Process”, is
over and above the requirements set forth in the City’s Purchasing Ordinance.
2.2 Planning for a New Public Building. In order to assist the City Council in making decisions with
regard to the planning, programming, design, and siting of a new public building planned to be
utilized by or programmed for public use, the City Council may impanel a Citizen Advisory Task
Force. The composition of the Citizen Advisory Task Force (CATF) may be comprised of
community members, representatives from organizations whose members would likely be
served by the new building, members of the community located near the proposed new public
building, and other members as determined by City Council.
If a CATF is impaneled, the City Council will provide a “charge” which includes, but is not
limited to, the following:
• The general scope and purpose of the new building.
• The role and responsibilities of the CATF as it relates to developing a recommendation(s)
for the City Council.
• The role and responsibilities of the CATF as it relates to gathering public input regarding
programming, design and location of the building.
• Any limitations (budgetary or otherwise) or constraints that the CATF needs to work within.
• A specific timeframe and end date by which the CATF is to make a recommendation(s) to
City Council; and
• Any other information pertinent to the CATF’s work effort.
3.9 Prequalification Procurement Process. If the City Council makes a decision to move forward
with the construction of the new building, the City Council may also choose to enact the
prequalification procurement process which is in addition to the process provided in the City’s
Purchasing Ordinance. This prequalification procurement process is intended to ensure that
the contractors selected to participate in the request for proposals process have policies and
practices in place relating to personnel procurement, workforce development and training, and
benefit programs that are within the local market range for this area. This review is
accomplished through the Citizen Advisory Task Force on Contractor Workforce who are
impaneled to review the responses of the contractors to each of the Prequalification Criteria
and make a determination that the companies’ practices and policies are within the current
local labor market.
2.3.1 The Citizen Advisory Task Force on Contractor Workforce shall be comprised of six
citizens appointed by the City Council along with the City Manager or the City Manager’s
appointee. The role of this Task Force is to review each contractor’s response to the
Prequalification Criteria and make a determination that the company’s practices and
policies are within the current local labor market. The City Manager or appointee will
provide the Task Force with data as to the range of prevailing practices of the current
local labor market which may be obtained through a variety of resources such as the
U.S. Department of Labor and Mountain States Employers Council or other resources72
that can be used to determine prevailing practices in the local labor market. The Task
Force may also collect information with respect to the experience of the contractor’s
proposed work force, the training provided, certifications held, and the source that the
contractor would rely on to obtain workers during the project to deal with turnover.
The Task Force will provide a list to the City Council of the companies whose practices
and policies meet or exceed the practices and policies of the current local labor market
as indicated by the data collected through the process identified above. The list shall
not include any prioritization or ranking. The City Council will review the list and
determine which companies meet this Prequalification Criteria. Those companies
meeting this criteria may move forward through the City’s established process.
Companies moving forward will be subject to the screening criteria set forth in the
Purchasing Ordinance.
The Citizen Advisory Task Force on Contractor Workforce will utilize the Project
Specific Charge and Evaluation Criteria to evaluate the responses of the contractor
to the Prequalification Criteria. The project specific charge and evaluation criteria
provides guidance to the Citizen Advisory Task Force on Contractor Workforce as to
what is important to the community at the time of the actual project (example: there may
be a desire to evaluate respondents higher who have a large workforce living in
Thornton or those who have a strong on-the-job training program).
2.3.2 The Prequalification Criteria are as follows:
a. Personnel Procurement.
• How will craft personnel be recruited for this Project?
• How will the contractor assure that trained, skilled persons are assigned to this
Project and maintained throughout this Project as attrition occurs?
• The number of personnel assigned to this Project residing in Thornton, Denver-
metro area, State-wide, out-of-State.
b. Workforce Development and Training
• Percentage of work on the Project that is typically self-performed.
• Describe the contractor’s on-the-job and classroom training of employees
assigned to the Project.
• List any applicable certifications related to the performance of the employees’ job-
duties as it relates to this Project.
• Describe the training program; accreditations and/or certifications available
through the program; completion statistics.
c. Benefit programs
• Describe the type, cost (employee/employer) and coverage of benefit programs
(i.e. health, retirement, pension, other) provided to employees.
2.4 Short-List and Award of the Contract. After City Council has determined which companies
meet the Prequalification Criteria, those companies may move forward through the normal
process identified in the Purchasing Ordinance. The list of the companies meeting all the
requirements will be provided to City Council and a short list developed of those companies
who will be asked to respond to a request for proposal. Upon receipt of the requests for
proposal from the short listed companies, the City Council may schedule interviews and
73
presentations by the companies. The City Council shall select the company that will be
awarded the contract.
2.5 Policy Exclusions. This policy does not apply to the following:
a. Projects outside the corporate limits of the City of Thornton, unless funded entirely by the
City.
b. Maintenance, storage, or utility projects.
c. The Prequalification Process may be waived for projects funded partially or wholly by
government grants or other entities whose regulations and laws may be in conflict with the
provisions of this policy.
74
City Council Policy
Residential Speeding Control Program - Guidelines for Establishing iWatch Speed Awareness
Neighborhood Program
Policy Number: 10.6
Legislative History: CD 2011-040
1. Purpose
The purpose of this policy is to outline a two-pronged approach to address residential speeding.
This policy relies on involving residents in neighborhoods to help address the speeding problems in
their area through partnering with the City and also outlines the resources that City staff will utilize
to address residential speeding.
2. Policy
2.1 Overall policy statement. City Council and staff are committed to reducing residential speeding
in Thornton neighborhoods in order to enhance safety and ensure a healthy environment for all
citizens. To accomplish this, the City will partner with citizens to involve them in implementing
neighborhood solutions, utilize a variety of traffic calming technologies as needed, and provide
timely and accountable evaluation of solutions.
The reality is the problem of speeding can likely best be addressed by the people directly
affected by its impact—local citizens. Since most speeding in neighborhoods is a direct result
of the driving behavior of its residents, the best way to slow traffic down is for citizens to take
responsibility for the driving behavior within their neighborhood.
In reviewing the 2004 Residential Speeding Control Program and Policy, the City has
determined that additional citizen involvement, flexibility, and resources are important to
reducing speeding and increasing safety in neighborhoods. Also in the review it was evident
the petition process is ineffective in implementing speed reduction measures; therefore, this
policy does not use the petition process.
2.2 Neighborhood Involvement.
2.2.1 Receiving a Speeding Concern. Upon receipt of a request to address speeding concerns
in residential neighborhoods, the Infrastructure Department will conduct an initial
evaluation to obtain a better understanding of the frequency, time of day, nature and
extent of the problem. At the same time staff will typically set up a neighborhood
meeting to discuss with the neighborhood and citizens the evaluation findings and
facilitate discussions to determine possible solutions.
2.2.2 Neighborhood Meetings. Recognizing that resident and neighborhood involvement can
be very effective, this policy places significant emphasis on involving citizens in
neighborhood meetings and a speed awareness neighborhood program. The concept is
to engage citizens in enhancing their neighborhoods by combining their own passion and
commitment with the expertise of City staff and the appropriate use of speed reduction
tools to improve the safety of Thornton neighborhoods.
75
Neighborhood meetings will be facilitated by the City with the purpose to open
communication and begin a partnering process with the neighborhood. The meeting will
include information on the speed awareness program and the traffic study results,
discussion of ideas and options to address speeding concerns, and partnering to
implement solutions based on this policy. It is the desire of the City to encourage an on-
going partnering relationship that may involve additional neighborhood-wide and smaller
scale meetings.
2.3 Speed Awareness Neighborhood Program. The purpose of Speed Awareness Neighborhoods
is to provide enhanced resource availability and speed enforcement through partnering between
citizens and City staff. This includes, but is not limited to, the provision of publication-ready
materials, presentations, signs, and training on the collection of pertinent information in order to
report alleged speeders. The desired result of neighborhoods participating in this program is
that drivers are more aware of the need to obey traffic laws and drive responsibly in
neighborhoods.
To become designated a Speed Awareness Neighborhood, the following criteria must be met:
a. Fifty percent participation of neighborhood residents indicated by a signed pledge card
that they will limit their speed and obey traffic laws.
b. Neighborhood citizens willing to report alleged speeders and provide pertinent information
to the Police Department.
c. Designated contact(s) to coordinate neighborhood information distribution.
d. Brochures delivered by involved neighbors to each residence in the neighborhood.
e. Agree to provide speed reduction reminders in the neighborhoods’ communications.
The Speed Awareness Neighborhood program asks citizens to make a personal commitment
to reduce speeds and to encourage neighbors to do the same. Additionally, residents will raise
awareness of the need to drive the speed limit by distributing brochures and posting yard signs.
Signs are to be posted in residential yards only, and are not allowed to block sidewalks or
driveways, nor be posted in public rights-of-way.
The City will also utilize City information outlets such as the City Voice, Cable 8, bus shelter
ads, and the City’s website to promote the Speed Awareness Neighborhood program
messages on an ongoing basis. Outside media, including school newspapers and
newsletters, Home Owner Associations publications and web sites may be utilized as
well.
Neighborhoods not choosing to participate in the Speed Awareness Neighborhood designation
will still have City resources used to curtail speeding based on need.
2.4 Definition of a Neighborhood for the iWatch Program. A neighborhood is typically defined
using subdivision boundaries. However, there may be instances where the layout of the
subdivision, geographical features, or the size of the subdivision may not be beneficial in
defining a neighborhood. The city may use the following criteria in defining a neighborhood if
the use of the subdivision boundaries is determined at the City’s sole discretion to not be
beneficial.
76
a. Subdivision Layout. If the subdivision layout is such that distinct smaller separate roadway
networks exist, the smaller roadway networks may be used to define smaller iWatch
neighborhoods within the subdivision.
b. Geographical Boundaries. If the subdivision is divided by a geographical feature such as
drainage way, field, pond, lake, trail, or landscaped area, the geographical feature may be
used as a boundary in defining smaller iWatch neighborhoods within the subdivision.
c. Size of Subdivision. If the City determines at its sole discretion that it is beneficial to divide
larger subdivisions into smaller neighborhoods and there are no distinct smaller separate
roadway networks or geographical features that can be used to create smaller iWatch
neighborhoods, the boundaries of the smaller iWatch neighborhoods may then be defined
by collector streets or higher volume streets within the subdivision. If there are convenient
alternate routes through the smaller iWatch neighborhoods that bypass a street used as a
boundary, the City and the neighborhoods immediately adjacent to the boundary street will
work jointly together in addressing the boundary street. If there are no convenient alternate
routes through the smaller iWatch neighborhoods that bypass a street used as a boundary,
the homes immediately adjacent to the boundary street will work jointly together in
addressing the boundary street. If there are no convenient alternate routes through the
smaller iWatch neighborhoods that bypass a street used as a boundary, the homes along
the boundary street may be used to define a smaller iWatch neighborhood.
2.5 Use of City Resources. The City will implement lower cost solutions first, before installing more
expensive solutions such as traffic calming devices. A follow up study of the lower cost
solutions implemented will be completed in six months to evaluate the effectiveness of the
solution. Possible low costs solutions based on the nature of the speeding include, but are not
limited to:
a. Extra Patrol. If one or more citizens report a specific and frequent traffic situation where
residents in a neighborhood consistently speed or run a stop sign, then the Police
Department will use its best efforts to schedule an extra patrol of the area.
b. Visit by a Police Officer. If the traffic volume is low and the speeder is known to the
neighborhood citizens, a police officer may visit the home of the offending speeder to
remind them to obey the speed limit. If pertinent information is recorded under the Speed
Awareness Neighborhood Program, a police officer may contact the reporting party or the
owner of the vehicle, if known, to obtain additional information.
c. Directed Patrol. If the traffic study indicates speeding, the Police may conduct a directed
patrol in which a Traffic Unit is assigned to patrol a specific area. The activity is tracked
and a report prepared on the number
of summonses written and amount of time spent at the problem area. Normally, Traffic
Engineering and the Police Department determine that the problem can be substantially
mitigated by Traffic Unit enforcement activity.
d. Portable Speed Monitoring Signs. Portable speed monitoring signs may be set out for
seven days on different sections of streets within neighborhoods at the direction of the
Traffic Engineer.
77
2.6 Areas Where Speeding Is a Consistent Problem. There are geographic locations within the
City where the measures described above may be temporarily effective while in place, but
which fail to permanently solve the speeding problem. This may be due to the presence of a
physical characteristic such as a downhill slope that may induce people to speed, or an
operational problem with the way the road is used by the motorist. Traffic calming devices will
be considered for these areas if the site continues to be a speeding area after six months or
there have been three speed-related crashes in three years. The Traffic Engineering Division
will submit project(s) for funding consideration as part of the annual budget process to install
traffic calming devices which include, but are not limited to:
a. Permanent Speed Monitoring Signs. These devices are similar to the portable speed
monitoring signs but installed on the street permanently.
b. Speed Cushions. These devices allow a fire truck wheel base to straddle the raised
portions which normal vehicle wheel bases cannot straddle. The device physically slows
traffic. These devices can be manufactured devices and installed in the street or built-in
place.
c. Speed Tables. These devices are raised roadway surface sections that allow traffic to
traverse the device in the street at the speed limit but excessive speeds are reduced.
These devices can be manufactured devices and installed in the street or built-in place.
d. Raised Pedestrian Crosswalks. These devices are used at trail or sidewalk crossings
and are similar to Speed Tables.
e. Pedestrian Activated Signs. These devices are used at trail or sidewalk crossings and
can be solar or electrically powered. A yellow flashing
beacon is activated when a pedestrian pushes a button to warn drivers of a pedestrian
present.
f. Curb Extensions. These devices narrow the street.
2.7 Privately-funded Traffic Calming Devices. In established neighborhoods, privately-funded
traffic calming devices may be installed as part of a partnering solution through the City in
accordance with City standards and specifications. If private funds are used, they must be
received by the City in advance of authorizing the work on the traffic calming device. The City
reserves the right to approve or deny a privately-funded traffic calming device request at its
sole discretion.
2.8 New Developments. New developments will be required to install street traffic calming as a
component of the construction of new residential streets in accordance with adopted City
Council policy.
78
Attachment A
EXPENSE REIMBURSEMENT POLICY
Legislative History: Ordinance 3572
1.0 Purpose:
1.1 To identify the conditions, limits and procedural matters under which travel, training,
subsistence, and other business costs in the process of conducting official City business.
Such attendance and reimbursement of expenses is authorized in accordance with the
guidelines and procedures outlined herein.
2.0 Scope:
2.1 Councilmembers may incur expenses to attend training programs, conferences, NLC
Steering Committee conferences, professional meetings and other costs in the process
of conducting official City business. Councilmembers will inform the City Council in
advance of travel out-of-state to attend training programs, conferences, and events where
the Councilmember is representing the City. Such attendance and reimbursement of
expenses is authorized in accordance with the guidelines and procedures outlined herein.
3.0 Policy:
3.1 General Guidelines: It is the policy of the City to reimburse Councilmembers on an actual
expense basis for all reasonable expenses incurred while on authorized City business. Only
expenses incurred by Councilmembers in the conduct of City business are eligible for
reimbursement under this policy. Unless otherwise authorized by City Council, attendance
at a national conference held the last quarter of the year by term-limited, out-going
Councilmembers will not be reimbursed by the City.
3.2 Expense Advances: An expense advance may be secured by submitting an expense
advance request to the Finance Director or designee. The amount requested should be
a minimum of $50. Such advances should not be paid more than one (1) month prior to
the first day of travel. An expense report indicating how advanced funds were spent must
be submitted no later than 60 days following the incurrence of the expense.
79
Any outstanding expense advances not cleared within 60 days may be deducted from the
Councilmember’s next paycheck(s) and the amount included as taxable wages to the
Councilmember pursuant to IRS regulations as is appropriate.
3.3 Allowable Expenses: Reasonable expenses incurred while conducting City business shall
be reimbursed as authorized in the following classifications:
TYPE OF EXPENSE REIMBURSEMENT
OTHER INFORMATION
LIMITED TO
3.3.1
Air Travel Economy Round-Trip Fare with
assigned seats for flights
available for the desired date and
time when reservation is made
plus bag fee not to exceed two
bags. First-Class Fare not
reimbursable unless authorized
by City Council. Seating
upgrades for extra leg room and
priority boarding, unless needed
to accommodate a medical
condition, shall be at the expense
of the Councilmember.
Alternative routes for personal
business are permitted.
However, any difference
between the total travel cost
and the cost for City business
travel will be paid by the
individual.
3.3.2
Bus, Rail – Instead of
Air Travel
Reimbursement not to exceed
Lowest Round-Trip Fare available
at the time the reservation is
made.
Alternative routes for personal
business are permitted.
However, any difference
between the total travel cost
and the cost for City business
travel will be paid by the
individual.
3.3.3
Auto Rental Actual Cost will be covered for
minimum nights required to
attend the function, including one
night before and one night after
any event.
Alternative routes for personal
business are permitted.
However, any additional miles
not related to City business
must be reimbursed by the
individual.
3.3.4
Parking Actual Cost
80
TYPE OF EXPENSE REIMBURSEMENT
LIMITED TO
3.3.5
Private Car – Instead
of Air Travel
Rate per mile as established
yearly by the Finance Director
based on IRS standard mileage
rate; reimbursement not to
exceed round-trip airfare at the
time the reservation is made.
3.3.6
Private Car –Travel
outside of 25 mile
radius of City
Over most direct route; rate per
mile as established yearly by the
Finance Director based on IRS
standard mileage rate from
personal residence to destination
and back as per MapQuest or
other equivalent program.
3.3.7
Taxi or Shuttle Actual Cost plus reasonable tip.
3.3.8
Lodging Actual double-occupancy (one or
two-beds) rate for minimum
nights required to attend the
function, including one night
before and one night after any
event.
81
OTHER INFORMATION
Documentation of actual miles
driven required. Alternative
routes for personal business
are permitted. However, any
additional miles not related to
City business must be
reimbursed by the individual.
Staying beyond the time
required to attend the function
will be paid by individual unless
stay over results in significant
airfare savings to the City, as
demonstrated in writing by the
Councilmember.
TYPE OF EXPENSE REIMBURSEMENT
LIMITED TO
3.3.9
Meal Expenses –
Related to
conventions, training,
conferences, and
seminars requiring an
overnight stay*.
Per diem for Meals and Incidental
Expense as established by the
General Services Administration
for the destination City except for
Washington D.C. which shall be
provided in the annual stipend
memo. Per diem is available for
the minimum number of days
required to attend the event,
including travel hours. Per diem
amount includes meals, room
service, taxes and tips for
persons who provide services,
and incidental expenses for tips
to porters, baggage carriers, and
hotel staff. Per diem does not
include taxicab fares, laundry
expenses.
Per diem will be provided for
each breakfast, lunch, and dinner
unless they are paid for
separately by the City or are
meals that are part of a basic
registration fee. Per diem will not
be reduced for complimentary
meals provided by the hotel the
Councilmember is staying at or
as part of the event.
3.3.10
Tips for Baggage
Handling, Valet,
Doormen & Bellhops
Reasonable tips and gratuities
shall be reimbursed.
3.3.11
Registration Fees Actual Cost for Councilmember
only. Exception: spouse or adult
live-in companion registration for
the CML Annual Conference
3.3.12
Miscellaneous Actual cost
3.3.13
82
OTHER INFORMATION
City will pay for banquet meals
for a Councilmember’s spouse
or adult live-in companion at
CML, NLC, and US
Conference of Mayors that are
part of the listed program.
Per diem above IRS
established “high-low
substantiation method” will be
included in taxable wages
each year.
*The NLC, US Conference of
Mayors, or CML conference
held in Metropolitan Denver is
excepted.
Amounts will be included in
taxable wages each year as
required by the IRS.
Business related description
required. Miscellaneous
includes access to
internet/WIFI while traveling.
TYPE OF EXPENSE REIMBURSEMENT
OTHER INFORMATION
LIMITED TO
Business Meals:
Business meeting at
breakfast, lunch or
dinner.
Actual cost to conduct City
business plus tip not to exceed
$2.00 over 20% of the cost of the
meal, unless there is a specific
restaurant gratuity charge.
Specify individual(s) met with,
nature or purpose of meeting;
business meals with
constituents are not
reimbursable. Itemized meal
receipts for actual expenses
must be included with the
expense report or purchasing
card statement.
3.3.14
Regularly scheduled
dinner meetings;
awards or recognition
banquets, ceremonial
events or meetings
where a
Councilmember is
representing the City
for which there is a
charge to attend.
Actual cost for Councilmember(s)
and actual cost for a guest
reimbursed where it is common
for guests to attend.
Examples include, but are not
limited to: MetroNorth
Chamber Banquet, DRCOG
Awards Banquet, ADCOG July
and December Meetings, and
annual school district
recognition galas.
Sponsorship of tables for fund
raising events requires City
Council approval.
3.3.15
Expenses associated
with informal ward
meetings hosted by a
Councilmember.
Each Councilmember shall be
provided an allowance of up to
$200 each per calendar year for
reimbursement of, or payment of
expenses by city-issued p-card,
associated with hosting informal
meetings.
Allowable expenses: facility
rental, printing of fliers/meeting
notice, beverages and
donuts/cookies/snacks
provided at the informal
meeting. City issued p-cards
may be used to purchase
these items. Expenditures will
be tracked so that a notification
may be provided to the
member prior to reaching
$200. Balances are not
transferable and lapse at the
end of the calendar year.
Expenditures exceeding $200
shall be reimbursed by the
Councilmember.
3.4 Receipts: Except for meals covered by per diem, receipts are required to document all
expenses. If a receipt was lost or not available, a written statement affirming the
reimbursement amount requested and explaining why a receipt was not available, signed
by the Councilmember, shall accompany the expense report (see Exhibit A).
3.5 Prohibited Reimbursable Expenses: Reimbursement for the purchase of personal items
including toiletries, etc., expenses associated with recreation (such as tennis and golf play
and tournaments) gifts, and alcoholic beverages are specifically prohibited. Expenses for
83
spouses, guests or family members are not reimbursable, unless specifically identified in
this Policy.
3.6 Expense Reports/Approval: Expense reports may be submitted monthly, but no less than
quarterly. Each expense report must be approved as to compliance with this policy by the
City Manager or designee prior to submittal to the Finance Director for processing. All
expense reports may be reviewed by an external auditor on an annual basis.
3.7 Other Reimbursable Expenses: In the event a Councilmember has an accounts receivable
billing outstanding for 60 days, the City may deduct the amount owing from the
Councilmember’s next paycheck(s). Examples of items that may show up as an accounts
receivable billing are airline tickets for family members, family member’s non-reimbursable
meal expenses, recreational fees for various conferences, and copying/supplies/voter lists.
3.8 Stipends: The City will provide the Mayor and Councilmembers a one-time stipend to
purchase a laptop, netbook, or tablet of their choice at the beginning of the term in which
elected to office or upon appointment to fill a vacancy. The City will also provide the Mayor
and Councilmembers a monthly stipend for business use of personal automobiles which will
be adjusted annually based on the IRS mileage rates. The City will also provide the Mayor
and Councilmembers a monthly stipend for cell phone and service which will be reviewed
annually by the Office of Management and Budget. The amount of such stipends shall be
provided in the annual stipend memo.
3.9 Use of City Purchasing Cards. The City will provide the Mayor and Councilmembers a
Purchasing card to be used to pay for City-related expenses as provided herein (except
meals covered by per diem). The use of the City Purchasing card for personal cash
advances is specifically prohibited. Councilmembers shall be responsible for reviewing
each monthly statement and for acknowledging that all charges appearing on the statement
were made in accordance with the provisions of this policy. Use of the City Purchasing card
for personal charges is not authorized except where personal and City travel and
entertainment charges would be unreasonably difficult to separate. This type of combination
charge may be transacted with a Purchasing card if the personal portion is reimbursed to
the City via an Expense Report. Purchasing card billing statements may be reviewed by an
external auditor on an annual basis. Councilmembers shall report the loss of their
Purchasing Card immediately.
3.10 Exceptions to this policy may be approved by City Council.
3.11 The City Manager is authorized to develop and amend forms and procedures to implement
this policy.
84
EXHIBIT A
CITY OF THORNTON
PURCHASING CARD/EXPENSE REPORT
MISSING RECEIPT
Please type or print legibly.
I, have either misplaced or did not receive an Expense Report/Credit
Card receipt(s). This form is submitted in lieu of the original receipt(s).
Please list each expense/purchase separately.
Date Amount Description Supplier (if applicable)
I certify that the amounts shown above were expended for official City of Thornton business.
Employee/Council Signature Date
Supervisor Signature for Employees Required Date
85
Attachment B
City Council Policy
Rules of Order and Procedure
The purpose of this Council Policy is to establish Rules of Order and Procedures for the conduct
of City Council meetings. The intent of this policy is to assist Council in streamlining its meetings
to allow more time to focus on substantive issues facing the City.
This policy applies to all regular meetings of the Thornton City Council.
1. Purpose
2. Scope
3. Policy
City Council has the authority to establish Rules of Order and Procedures for conducting
business at its regular meetings.
4. General Rules
(a) An agenda shall be prepared for each regular City Council meeting containing the specific
items of business to be transacted and the order thereof. The agenda shall be available
to Councilmembers not later than the Friday preceding the meeting and shall be made
available to the public as soon thereafter as practicable.
(b) A majority of the members of the Council may, by vote, either request or compel the
attendance of its members and other City officers at any meeting of the Council. Any
member of the Council or other officer who, when notified of such a request for
attendance, fails to attend such meeting for reasons other than illness, vacation, work,
absence from the City, the Councilmember is attending a meeting as a representative of
the City or as approved at Council’s discretion shall be deemed guilty of misconduct in
office unless excused by the Council.
(c) A majority of the members of the Council in office at the time shall be a quorum for the
transaction of business at all Council meetings, but, in the absence of a quorum, a lesser
number may adjourn any meeting to a later time or date, and, in the absence of all
members, the Clerk may adjourn any meeting for not longer than one week.
(d) The presiding officer shall enforce orderly conduct at meetings, and any member of the
Council or other officer whose conduct is not in an orderly manner at any meeting shall
be deemed guilty of misconduct in office.
(e) A Councilmember once recognized shall not be interrupted when speaking unless called
to order by the presiding officer or unless a point of order or personal privilege is raised
by another Councilmember or unless the speaker chooses to yield to a question by
another Councilmember. If a Councilmember, while speaking, is called to order, the
Councilmember shall cease speaking until the question of order is determined, and, if
determined to be in order, the Councilmember may proceed. Members of the City staff,
after recognition by the presiding officer, shall hold the floor until completion of their
remarks or until recognition is withdrawn by the presiding officer.86
(f) The presiding officer shall determine all points of order, subject to the right of any
Councilmember to request a full Council ruling.
(g) A member of the Council who wishes to terminate discussion of a motion may call for the
question in accordance with the Roberts Rules of Order, newly revised and as amended
from time to time, except as set forth herein.
(h) Legislative matters.
(1) Resolutions require one reading and become effective immediately after passage.
Resolutions are initiated to make appointments, expressions of the City Council's
intent or its opinion on matters not actually within its control, approvals of specific
transactions such as purchases and agreements (except some transactions which
must be done by ordinance); to establish positions of the Council on matters of
concern; to deal with special administrative or temporary matters as opposed to
general rules of conduct; to acknowledge accomplishments or contributions; and
for a variety of other lawful purposes which require formal action but not the
enactment of laws.
a. A resolution is required under any circumstance where it is desirable that
the action be formally recorded in the office of the City Clerk for future
reference.
b. A resolution may be presented verbally in motion form, together with
instructions for written preparation. Upon execution of such resolution, it
shall become an official action of the Council.
c. Any Councilmember may request that a specific resolution, acknowledging
accomplishments or contributions, be placed on a regular meeting agenda
under "audience participation" for the purpose of gaining special recognition
or additional publicity.
(2) Acts of the Council which are required to be by ordinance, and the procedure for
passage, posting and publication of ordinances, including emergency ordinances,
shall be as provided in the Charter.
a. The name of the Councilmember introducing each ordinance shall be
appended to and made a part of the ordinance. Ordinances shall be
numbered in the numerical order in which they are passed.
b. An exact legible copy must be submitted to the City Clerk in writing at the
time the ordinance is introduced.
(3) Motions are the formal statement of a proposal or question to the Council for
consideration and action. A motion is generally not to be considered as a legislative
action of the Council but is in the nature of direction or instruction; however, a
motion will generally suffice unless a resolution is specifically called for by law or
unless there is some reason for desiring the particular action formalized by
separate instrument.
87
(4) Proclamations are used ceremonially for the purpose of recognizing
accomplishments, honoring individuals or groups or setting a designated period
for a special event or to declare a symbolic occasion. Proclamations are the
prerogative of the Mayor and do not require Council action.
(i) Resolutions and motions shall pass by the affirmative vote of a majority of the members
of Council present, provided a quorum exists. Should any Councilmember being present
refuse to vote on any measure, the Councilmember’s vote shall be recorded in the
affirmative, but no such vote shall be recorded if the Councilmember refuses to vote
because of a conflict of interest.
(j) A vote upon all ordinances and resolutions shall be taken by a "yes" or "no" vote and
entered upon the records, except that, where the vote is unanimous, it shall only be
necessary to state that the vote was unanimous. All abstentions shall also be recorded
and the reason for the abstention recorded, if given. Abstentions by reason of conflict of
interest shall be sufficient.
(k) In all roll call votes at any given meeting, the names of the members of the Council shall
be called in alphabetical order, and the name to be called first shall be advanced one
position alphabetically in each successive roll call vote.
(l) The rules of procedure and order of business shall be strictly adhered to unless
temporarily suspended by a two-thirds vote of the members present.
(m) The rules contained in the latest revised edition of Robert's Rules of Order, Newly
Revised, shall govern the meeting in all cases to which they are applicable and in which
they are not inconsistent with the Rules of Order and Procedures adopted by this division.
The City Attorney or acting City Attorney shall be the designated parliamentarian.
(n) Minutes of each meeting shall be kept in the English language by the Clerk and shall be
signed by the presiding officer and Clerk of the meeting.
(o) The minutes shall not be a verbatim transcript of the proceedings. The recordings of all
proceedings shall be retained pursuant to State Statute. The purpose of the minutes shall
be to record the City Council's transactions rather than its deliberations; therefore,
debates, arguments and discussion among the City Council shall not be included. Specific
direction to staff shall be included in the minutes when such direction may affect the
outcome of a decision to be made by the City Council. Informational items, such as
upcoming meetings and events, brought up by the City Council need not be included in
the minutes, provided that the information has previously been conveyed to them through
normal communication or correspondence channels. The City Clerk shall include the
following in the action minutes of each regular or special meeting:
(1) The name: "Meeting of the City Council of Thornton, Colorado."
(2) The kind of meeting (regular, special).
(3) The place and date of the meeting.
(4) The officer presiding.
88
(5) The decision in each point of order arising.
(6) A complete record of the City Council's actions, which will, in most instances, be a
motion reflecting the decision taken by the Council.
(7) The time and place of reassembling, unless it is the regular meeting time and
place.
(8) The signature of the City Clerk and the Mayor at the time the minutes are approved.
(9) A statement of whether previous minutes were approved.
(10) All motions made and seconded and subject matter of reports given and
disposition of such.
(11) A record of the results of each vote taken shall be recorded as provided in the
Charter and this Code.
(12) Minutes shall reflect the general topic of the discussion at an executive session.
(p) Participation by the Mayor and Councilmembers in regular and special meetings of City
Council, Council updates and planning sessions shall be conducted in-person at City Hall.
However, if extenuating circumstances do not permit in-person attendance, the Mayor
and Councilmembers may participate virtually by electronic or telephonic means
(“Electronic Participation”) on an infrequent or occasional basis. In such instances, the
Mayor or Councilmember shall endeavor to provide the City Clerk notice of intent to utilize
Electronic Participation twenty-four hours in advance of a public meeting, if possible. For
purposes of this policy, “infrequent or occasional” shall mean no more than four different
meeting dates within one calendar year. Should electronic participation be required for
reasons protected by state or federal law, that required accommodation shall take
precedence over this rule.
(1) The Mayor or Councilmember using Electronic Participation shall maintain a good
connection such that they are able to hear the proceedings and are able to be
heard when speaking during the proceedings.
(2) In-person attendance by the Mayor and Councilmembers shall be subject to City
Council Rules of Order and Procedure 4(b).
(3) The Mayor or a Councilmember utilizing Electronic Participation may vote and
participate in all legislative matters, including votes to go into executive session.
When the Mayor or Councilmembers are using Electronic Participation, all votes
shall be conducted by roll call.
(4) The Mayor and Councilmembers using Electronic Participation to listen to a quasi-
judicial public hearing do not count for purposes of establishing a quorum and may
not participate or vote. However, the Mayor and Councilmembers may maintain
the electronic connection and monitor and listen to the hearing.
(5) The Mayor and Councilmembers may only attend executive sessions in person
and may not use Electronic Participation.89
(6) If the City Manager, in consultation with the Mayor, determines that meeting in
person is not practical or prudent because of a health, weather or other emergency
affecting the City, the regularly scheduled meeting may be conducted entirely as
a remote meeting or cancelled. If the decision is to conduct a fully remote meeting,
the City Manager shall provide notice to the Council and the public as soon as
such decision is made, but no later than three (3) hours before the time the meeting
is scheduled to begin. In the event of a fully remote meeting, all Councilmembers
may participate and vote in legislative and quasi-judicial matters and participate in
Executive Sessions. All votes in a fully remote meeting shall be by roll call. If the
meeting is cancelled, the items will be rescheduled to another meeting.
5. Order of business.
(a) At the beginning of each regular City Council meeting, the Mayor, Mayor Pro Tem or
acting Mayor shall call the members to order. Following the pledge of allegiance,
moment of silence, and land acknowledgment, the City Clerk shall call the roll, note the
absences and announce whether a quorum is present. In the event that a quorum is
present, the City Council shall then proceed to the business before it. Business shall be
conducted in the following order except that City Council, may by motion, suspend the
order of the agenda during a meeting:
(1) Call to Order
(2) Pledge of Allegiance
(3) Moment of Silence
(4) Land Acknowledgement
(5) Roll Call of Council
(6) Approval of the Agenda
(7) Presentations
(8) Audience Participation
(9) Public Hearings
(10) Council Comments/Communications
(11) Staff Reports
(12) Consent calendar
(13) Action Items
(14) Adjournment
90
6. Regular meeting procedures.
(a) If a motion, resolution or ordinance is passed or defeated by Council action, it may be
reconsidered by motion from a member who was on the prevailing side no later than the
next regular meeting.
(b) Members of the public wishing to be heard under "audience participation" on any subject
which does not appear earlier on the agenda as a public hearing are requested to sign
up on the register located in the lobby or Council chamber, or through the remote
conference platform. Speaking time will be limited to three minutes per individual with a
one-hour limit on that segment of the agenda, provided, however, that the Council, by a
majority vote of the members present, may increase an individual speaker’s speaking
time by a prescribed amount above the three-minute to accommodate unique or
exceptional circumstances. Any motion to increase speaking time shall not be
debatable. Groups of people brought together with a common interest are requested to
choose a spokesperson and, at the discretion of the presiding officer, may be allowed
additional time. In-person speakers will be heard first, followed by remote speakers registered
before the end of the in-person comment segment. Residents of the City will be given preference
in the order heard in each segment.
Audio/visual presentations of original content not subject to copyright protection are
limited to an individual’s three-minute speaking time and must be submitted to the City
Clerk’s office by 10:00 a.m. the Monday prior to the Council meeting.
(c) Council comments/communications will be limited to eight minutes per individual not
including reports of a Councilmember’s participation on outside Boards or Committees.
(d) Action items shall be referred to by their agenda item number. Council document numbers
and ordinance numbers shall be assigned to each action item and ordinance,
respectively, for recordkeeping and retrieval purposes.
(e) Consent calendar.
(1) A consent calendar shall be used for the expeditious handling of routine, non-
controversial issues in order to provide more time for the deliberation of major
agenda items which establish City policy and goals. Items to be placed on the
consent calendar may include but are not limited to the following:
a. Personnel actions, such as the appointment of personnel as mandated by
the Charter and approval of new positions.
b. Ordinances on first reading and ordinances on second reading, which have
not been changed since first reading.
c. Approval of minutes.
d. Issues which the staff has been directed by the Council to prepare, such as
items discussed during a manager's briefing.
e. Contracts which require City Council approval.
91
f. Annexation Petitions and Findings of Fact.
(2) At the request of Councilmember, an item shall be removed from the consent
calendar and placed upon the regular agenda for debate at the end of the "Action
Items" segment. A motion to approve the consent calendar shall not be debated
and shall only be adopted by a unanimous vote of those Councilmembers present
at the meeting. Prior to a vote being taken on the consent calendar, the City Clerk
shall be called upon by the Mayor to read, by title, all ordinances for first and
second reading which have been placed thereon.
(3) Minutes shall be removed from the consent calendar for corrections of a
substantive nature.
(f) At the time the agenda is approved, items may be deleted, or additional action items may
be added by a Councilmember, the City Manager or the City Attorney, to be placed at the
end of the "Action Items" segment.
(g) Federal law, State Statutes, the Charter and this Code call for public hearings on various
matters, such as the annual budget or requests for annexations and rezonings. The
Council may also direct that a matter of significant interest be scheduled as a public
hearing. Where the method of notice for a public hearing is not otherwise specified by law
or by Council action, notice shall be given by posting once on the City website at least ten
days prior to the hearing, or less than ten days for good cause shown. If the required
notices are not provided based on an action of the applicant, the public hearing shall be
opened and continued to the next City Council meeting that does not have another public
hearing scheduled, unless City Council otherwise directs the City Manager. The purpose
of a public hearing is for the City Council to receive input, both negative and positive, to
help it in making a determination on a matter it is about to consider. The item is listed on
the agenda under the title "public hearings," and the Council may or may not receive a
verbal report and/or recommendation from staff, and interested parties and citizens are
asked to comment either in support of or in opposition to the item at hand. Public hearings
will be conducted, generally, in the following manner:
(1) In order to schedule the timing and length of public hearings for the convenience
of the Council, the general public and interested parties, the first public hearing will
begin at or before 7:30 p.m., or as soon thereafter as possible. This segment of
the agenda will last no more than two hours.
(2) On land use issues, time limits for presentations are established at no more than
15 minutes for the applicants, or at the discretion of the Mayor may be allowed
additional time. Presentations will be structured in accordance with procedures
established by the City Development Department.
(3) Proponents and opponents who wish to speak shall be requested to sign up prior
to the beginning of the meeting, on the register located in the lobby or Council
chamber and limit their remarks to three minutes, provided, however, that the
Council, by a majority vote of the members present, may increase an individual
speaker’s speaking time by a prescribed amount above the three-minute to
accommodate unique or exceptional circumstances. Any motion to increase
speaking time shall not be debatable. Groups of citizens who wish to support or
oppose a specific item will be requested to choose a spokesperson and, at the92
discretion of the Mayor, may be allowed additional time to admit testimony on
information over and above that already presented in their behalf. Speakers may
be asked to be sworn in by the City Clerk if they wish to submit facts rather than
opinions.
Audio/visual presentations must be submitted to the City Clerk’s office by 10:00
a.m. the Monday prior to the Council meeting. However, the Mayor has discretion
to permit a speaker to show an audio/visual presentation during a public hearing,
without prior notice to the City Clerk’s office, with proper assurances that the
individual is not aware of the file having computer viruses. After the presentation
during a public hearing, any councilmember has the right to move that the
audio/visual presentation be stricken from the evidentiary record as irrelevant.
(4) Action may be taken on public hearing items after the public hearing has been
closed or scheduled for action at the next Council meeting. If it is deemed desirable
by the Council to continue a public hearing, it shall be continued to a date certain.
(5) At the conclusion of the public hearing on an application, the City Council may:
a. Continue the public hearing to a future meeting date for additional
testimony;
b. Close the public hearing, and refer the application to a board or commission
for review and recommendation;
c. Close the public hearing, and continue the ordinances or resolutions to a
future meeting for action;
d. Close the public hearing, and request an executive session pursuant to
state statute;
e. Close the public hearing, and take action on the ordinances or resolutions
that relate to the application; or
f. Take any other lawful action.
(h) There shall be a speaker’s timing system utilized to monitor the speaker’s time under the
audience participation portion of the agenda as well as interested parties and citizens
testifying at public hearings. The City Clerk shall be responsible for selecting and
operating the speaker’s timing system.
93
Attachment C
City Council Policy
City Council Code of Conduct
1. Introduction
(a) The Home Rule Charter of the City of Thornton provides information on the
more formal duties of Councilmembers, the Mayor, and the Mayor Pro Tem.
The City’s Code of Ethics Policy provides guidance related to conflicts of
interest.
(b) This Code of Conduct is designed to describe the manner in which the
Mayor and Councilmembers should treat one another, City staff,
consultants, constituents, and others they come into contact with in
representing the City of Thornton. It reflects the work of City Council in
defining more clearly the behavior, manners, and courtesies that are
suitable for various occasions. In concert with this document, City Council
may wish to consider policy changes and clarifications designed to make
public meetings and the process of governance run more smoothly.
(c) The constant and consistent theme through all of the conduct guidelines is
"respect." The Mayor and Councilmembers experience stress in making
decisions that impact the lives of the community. At times, the impacts of
the entire community must be weighed against the impact of only a few.
Despite these pressures, elected officials are called upon to exhibit
appropriate behavior at all times. Demonstrating respect for each individual
through words and actions is the touchstone that can help guide the Mayor
and Councilmembers to do the right thing in even the most difficult
situations.
2. Overview
(a) General introduction.
(1) Members of Thornton City Council (“Members” or “Councilmembers”
refers to the Mayor, the Mayor Pro Tem, and the Councilmembers
as a whole) recognize their obligation to serve their constituents and
the public in a conscientious and diligent manner understanding that
as leaders of the community, they are held to a higher standard of
behavior and conduct.
(2) Members recognize that ethics and integrity are at the core of public
confidence in government and in the political process; that elected
94
officials are expected to perform their duties in office and arrange
their private affairs in a manner that promotes public confidence,
avoids the improper use of influence of their office and conflicts of
interests, both apparent and real. They recognize the need to uphold
both the letter and the spirit of the law including policies adopted by
Council.
(3) This Code of Conduct ensures that Members of Council share a
common basis and understanding for acceptable conduct of
Members of Council, in concert with and beyond the minimum
standards of behavior set out in the existing legislative framework.
This Code of Conduct is consistent with the principles of transparent
and accountable government and reflective of the City’s core values.
(4) The Council is committed to treating all individuals fairly and without
discrimination and to creating a welcoming community for all
residents.
(b) Applicability and review.
This Code of Conduct applies to all Members of Council. As a living
document, the Code of Conduct will be brought forward for review at the
end of each term of Council, when relevant legislation is amended, and at
other times when appropriate to ensure that it remains current and
continues to be a useful guide to Members of Council.
(c) Pledge.
In serving on City Council, all Members pledge as follows:
(1) I understand that as a City representative, I am entrusted with
protecting and preserving the integrity of the government of the City.
(2) I will honor this trust by:
a. Upholding the City of Thornton Code of Ethics and this Code
of Conduct;
b. Putting the public interest first;
c. Conducting myself at all times in a manner that brings credit
to the City;
d. Serving with integrity, impartiality and transparency;
95
e. Fostering an ethical culture;
f. Taking no action that will result in, and avoiding the
appearance of, personal gain or conflict of interest;
g. I will communicate openly and civilly, listening to all views,
seeking common ground as a starting point, and being
respectful even in areas of disagreement.
(1) Practice civility, professionalism, and decorum in discussions and
debate.
3. Types of Conduct
(a) Council Conduct with One Another in Public Meetings
Councils are composed of individuals with a wide variety of backgrounds,
personalities, values, opinions, and goals. Despite this diversity, all have
chosen to serve in public office in order to preserve and protect the present
and the future of the community. In all cases, this common goal should be
acknowledged even as Council may "agree to disagree" on contentious
issues.
Difficult questions, tough challenges to a particular point of view, and
criticism of ideas and information are legitimate elements of a free
democracy in action. This does not allow, however, the Mayor or
Councilmembers to make belligerent, personal, impertinent,
slanderous, threatening, abusive, or disparaging comments,
including statements by spoken word or audio or visual materials. No
shouting or physical actions that could be construed as threatening
will be tolerated. The Mayor and Councilmembers should conduct
themselves in a professional manner at all times, including dress.
Business casual is expected for formal business meetings.
(2) Honor the role of the Presiding Officer in maintaining order.
It is the responsibility of the Mayor (or the Mayor Pro Tem in the
Mayor’s absence or other Councilmember in the absence of both) to
keep the comments of Councilmembers on track during public
meetings. Councilmembers should treat each other with respect and
honor efforts by the Mayor to focus discussion on current agenda
items. If there is disagreement about the agenda or the Mayor’s
actions, those objections should be voiced politely and with reason,
following procedures outlined in parliamentary procedure (per
Robert’s Rules of Order).
(3) Avoid personal comments.
96
The Council must address all discussion to the Presiding Officer,
maintain a courteous tone, and avoid injecting a personal note into
the debate. In addition, discussion must not attack or make
suggestions as to the motives of other members. No inflammatory
language, including statements by spoken word or audio or visual
materials, should be used and a member may not criticize a prior
action of the group.
(4) Demonstrate effective problem-solving approaches.
Councilmembers have a public stage to show how individuals with
disparate points of view can find common ground and seek a
compromise that benefits the community as a whole. It is important
that discussions on issues be relative to the topic at hand to allow
adequate time to fully discuss scheduled issues.
(5) Attend meetings regularly.
Councilmembers have made a commitment to attend meetings and
partake in discussions. Therefore, it is important that
Councilmembers be present at meetings, punctual, and that
meetings start on time. Should a Member need to miss a meeting,
the Member should notify the City Manager as soon as reasonably
possible, and the City Manager shall notify the entire Council. After
a Member misses more than four meetings in a row, including
regular, special, and planning sessions, they may be subject to
formal public censure by the Council. Notwithstanding the foregoing,
any Member whose absence from a meeting is due to the Member’s
own or an immediate family member’s serious health condition, as
defined in the Family and Medical Leave Act, shall be deemed
excused from the meeting.
(b) Council Conduct with City Staff.
Governance of a City relies on the cooperative efforts of elected officials,
who set policy, and City staff, who implement and administer the Council’s
policies. Therefore, every effort should be made to be cooperative and show
mutual respect for the contributions made by each individual for the good of
the community.
(1) Treat all staff as professionals.
Clear, honest communication that respects the abilities, experience,
and dignity of each individual is expected. Poor behavior towards
staff is not acceptable. Councilmembers should always speak with
staff in a respectful, polite, and professional manner.
Councilmembers should not raise their voice, be rude, or curse at
staff members. This includes phone and electronic communications.
97
(2) Limit contact to specific City staff.
Questions of City staff and/or requests for additional background
information should be directed to the City Manager, City Attorney, or
Department Heads. The City Manager should be copied on or
informed of any request. Requests for follow-up or directions to staff
should be made only through the City Manager or the City Attorney
when appropriate. When in doubt about what staff contact is
appropriate, Councilmembers should ask the City Manager for
direction. Materials supplied to a Councilmember in response to a
request will be made available to all members of the Council so that
all have equal access to information.
(3) Do not solicit political support from staff.
Councilmembers should not solicit any type of political support
(financial contributions, display of posters or lawn signs, name on
support list, etc.) from City staff. City staff may, as private citizens
with constitutional rights, support political candidates but all such
activities must be done away from the workplace.
(c) Council Conduct with the Public.
(1) Public meetings.
Making the public feel welcome is an important part of the
democratic process. No signs of partiality, prejudice, or disrespect
should be evident on the part of individual Councilmembers toward
an individual participating in a public forum. Every effort should be
made to be fair and impartial in listening to public testimony.
a. Be welcoming to speakers and treat them with care and
gentleness.
Speaking in front of Council can be a difficult experience for
some people. Some issues the Council undertakes may affect
people’s daily lives and homes. Some decisions are
emotional. The way that Council treats people during
audience participation and public hearings can do a lot to
make them relax or to push their emotions to a higher level of
intensity. In general, it is best not to respond at all to public
comments. However, the Presiding Officer may provide brief
factual information, if appropriate. The Presiding Officer must
not under any circumstances enter into back-and-forth
exchanges with the public.
98
b. Be fair and equitable to all speakers.
Subject to the time limits on audience participation and public
hearings as provided in Section 6(b) and (g)(1), respectively,
of City Council’s Rules of Order and Procedures, no speaker
will be turned away unless a speaker exhibits inappropriate
behavior.
c. Give the appearance of active listening.
It is disconcerting to speakers to have Councilmembers not
look at them when they are speaking. It is fine to look down at
documents or to make notes, but reading for a long period of
time gazing around the room gives the appearance of
disinterest. Be aware of facial expressions, especially those
that could be interpreted as "smirking," disbelief, anger, or
boredom.
d. Ask for clarification, but avoid debate and argument with the
public.
Only the Presiding Officer—not other Councilmembers—can
interrupt a speaker during a presentation. However, a
Councilmember can ask the Presiding Officer for a point of
order if the speaker is off the topic or exhibiting behavior or
language the Councilmember finds disturbing. If speakers
become flustered or defensive by Council questions, it is the
responsibility of the Presiding Officer to calm and focus the
speaker and to maintain the order and decorum of the
meeting. Questions by Councilmembers to members of the
public testifying should seek to clarify or expand information.
It is never appropriate to belligerently challenge or belittle the
speaker. Councilmembers’ personal opinions or inclinations
about upcoming votes should not be revealed until after the
public hearing is closed.
e. No personal attacks of any kind, under any circumstance.
Councilmembers should be aware that their body language
and tone of voice, as well as the words or audio or visual
materials they use, can appear to be intimidating or
aggressive.
f. Follow parliamentary procedure in conducting public
99
meetings.
The City Attorney serves as advisory parliamentarian for the
City and is available to answer questions or interpret
situations according to parliamentary procedures. Final
rulings on parliamentary procedure are made by the Presiding
Officer, subject to the appeal of the full Council.
(2) Unofficial Settings
a. Make no promises on behalf of the Council.
Councilmembers will frequently be asked to explain a Council
action or to give their opinion about an issue as they meet and
talk with constituents in the community. It is appropriate to
give a brief overview of City policy and to refer to City staff for
further information. It is inappropriate to overtly or implicitly
promise Council action, or to promise City staff will do
something specific (fix a pothole, remove a library book, plant
new flowers in the median, etc.).
b. Make no personal comments about other Councilmembers.
It is acceptable to publicly disagree about an issue, but it is
unacceptable to make derogatory comments about other
Councilmembers, their opinions and actions. This includes
posting on social media. Statements should remain factual
without opinion on the motives of Councilmembers.
c. Remember the sense of community.
Councilmembers are constantly being observed by the
community every day that they serve in office. Their
behaviors and comments serve as models for proper
deportment in the City of Thornton. Honesty and respect for
the dignity of each individual should be reflected in every
word and action taken by Council Members, 24 hours a day,
seven days a week. It is a serious and continuous
responsibility.
(d) Council Conduct with Other Public Agencies
(1) Be clear about representing the City or personal interests.
If a Councilmember appears before another governmental agency or
organization to give a statement on an issue, the Councilmember
100
must clearly state if his or her statement reflects personal opinion or
is the official stance of the City and whether this is the majority or
minority opinion of the Council. Even if the Councilmember is
representing his or her own personal opinions, remember that this
still may reflect upon the City as an organization. If the
Councilmember is representing the City, the Councilmember must
support and advocate the official City position on an issue, not a
personal viewpoint. If the Councilmember is representing another
organization whose position is different from the City, the
Councilmember should withdraw from voting on the issue if it
significantly impacts or is detrimental to the City’s interest.
Councilmembers should be clear about which organizations they
represent and inform the Mayor and Council of their involvement.
(2) Correspondence should also be equally clear about representation.
City letterhead may be used when the Councilmember is
representing the City and the City’s official position. A copy of
official correspondence should be given to the City Clerk to be filed
as part of the permanent public record. It is best that City
letterhead not be used for correspondence of Councilmembers
representing a personal point of view, or a dissenting point of view
from an official Council position.
(e) Council Conduct with Boards and Commissions
The City has established several Boards and Commissions as a means
of gathering more community input. Citizens who serve on Boards and
Commissions become more involved in government and serve as
advisors to the City Council. They are a valuable resource to the City’s
leadership and should be treated with appreciation and respect.
(1) If attending a Board or Commission meeting, be careful to only
express personal opinions.
Councilmembers may attend any Board or Commission meeting,
which are always open to any member of the public. However, if
the Board or Commission is conducting a public hearing, the
Councilmember shall remove themselves from the proceedings.
Councilmembers should be sensitive to the way their participation
– especially if it is on behalf of an individual, business or developer
– could be viewed as unfairly affecting the process. Any public
comments by a Councilmember at a Board or Commission
meeting should be clearly made as individual opinion and not a
representation of the feelings of the entire City Council. Also, a
101
Councilmember’s presence may affect the conduct of the Board or
Commission and limit their role and function.
(2) Limit contact with Board and Commission members.
It is inappropriate for a Councilmember to contact a Board or
Commission member to lobby on behalf of an individual, business,
or developer. Councilmembers should contact staff in order to clarify
a position taken by the Board or Commission.
(3) Remember that Boards and Commissions serve the community,
not individual Councilmembers.
The City Council appoints individuals to serve on Boards and
Commissions, and it is the responsibility of Boards and
Commissions to follow policy established by the Council. But
Board and Commission members do not report to individual
Councilmembers, nor should Councilmembers feel they have the
power or right to threaten Board and Commission members with
removal if they disagree about an issue. Appointment and re-
appointment to a Board or Commission should be based on such
criteria as expertise, ability to work with staff and the public, and
commitment to fulfilling official duties. A Board or Commission
appointment should not be used as a political “reward.”
(4) Be respectful of diverse opinions.
A primary role of Boards and Commissions is to represent many
points of view in the community and to provide the Council with
advice based on a full spectrum of concerns and perspectives.
Councilmembers must be fair and respectful of all citizens serving on
Boards and Commissions.
(5) Keep political support away from public forums.
Board and Commission members may offer political support to a
Councilmember, but not in a public forum while conducting official
duties. Conversely, Councilmembers may support Board and
Commission members who are running for office, but not in an official
forum in their capacity as a Councilmember
(f) Council Conduct with the Media.
Councilmembers may be contacted by the media for background and
quotes.
102
(1) The best advice for dealing with the media is to never go "off the
record."
Most members of the media represent the highest levels of
journalistic integrity and ethics, and can be trusted to keep their word.
But one bad experience can be catastrophic. Words that are not said
cannot be quoted.
(2) The Mayor is the official spokesperson for the representative on City
position.
Pursuant to City Charter Section 4.4(a), the Mayor is the designated
representative of the Council to present and speak on the official City
position. If an individual Councilmember is contacted by the media,
the Councilmember is free to talk with the media, but should be clear
about whether their comments represent the official City position or
a personal viewpoint. It is recommended to let the City Manager
know of the inquiry.
(3) Choose words carefully and cautiously.
Comments taken out of context can cause problems. Be especially
cautious about humor, sardonic asides, sarcasm, or word play. It is
never appropriate to use personal slurs or swear words when talking
with the media.
4. Violations of Code of Conduct
(a) Members who do not follow proper conduct may be formally censured by
the Council.
(b) Any Member may interrupt discussion or debate to allege another Member
violated this Code of Conduct. The Council may, upon motion and by
two-thirds vote of the Members present, sustain the alleged violation.
Before the vote takes places, the Member alleged to have committed the
violation shall have the opportunity to respond to the allegation, and may
choose to speak last. If Council sustains the same violation two or more
times during the same meeting, or Council sustained the same violation
at a previous meeting, Council may, by motion adopted by a majority vote of
the Members present, sanction the offending Member by issuing a verbal
censure that shall be entered upon the record of the meeting. For
intentional and repeated violations of this Code of Conduct, Council may by
resolution issue a written censure.
103
