HomeMy WebLinkAboutCity Council-Agenda Packets-9/29/2009City of Colleyville 100 Mltain Street
~ Colleyville, Texas 76034
Agenda 817.503.1000
www.colleyville.com
City Council Worksession
Tuesday, September 29, 2009 6:00 PM Colleyville Central Fire Station
5209 Colleyville Boulevard
1. CALL TO ORDER
2. EXECUTIVE SESSION - In accordance with Texas Government Code Chapter
551, Subchapter D
Sec. 551.072 -Property -Deliberate the purchase, lease, exchange or
value of real property -Park Land
Sec. 551.087 - Economic Development - Discuss and deliberate
commercial and financial information received from business prospects
the City seeks to have locate, stay or expand within the City
3. PRESENTATION AND DISCUSSION
3a Presentation and discussion of strategic management framework and
process
4. ADJOURNMENT:
I hereby certify the above agenda was posted on the bulletin boards at City Hall on Friday,
September 25, 2009, by 5:00 p.m.
r /
Cynthia Singleton, TRMC, CMC
City Secretary
Any matter on this agenda may, at the discretion of the governing body, be opened for public
comment and discussion.
If you plan to attend this public meeting and have a disability that requires special
accommodations, please advise the City Secretary at least 48 hours in advance at
817.503.1133, and reasonable accommodations will be made to assist you.
City of Colleyville Page 1 Printed on 9/25/2009
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City Hall
I ? - ~r^ ;,~~ City of Colleyville 100 Main Street
'~~~ Colleyville, Texas 76034
r:;... Agenda Briefing 817.503.1000
www.colleyville.com
File Number: File Type: Executive Session Status: Executive Session
Version: 1 Agenda Date: 09/29/2009 Controlling Body: City Council
Worksession
Requester: Office of the City Agenda No.: 2 Final Action:
Secretary
File Name: Executive Session -Legal -September 29, 2009
Attachments:
History of Legislative File
Version: Date: Acting Body: Action Text:
1 09/29/2009 City Council
Worksession
Title
Sec. 551.072 -Property -Deliberate the purchase, lease, exchange or value of real property
- Park Land
Sec. 551.087 -Economic Development -Discuss and deliberate commercial and financial
information received from business prospects the City seeks to have locate, stay or expand
within the City
City of Colleyville Page 1 Printed on 9/25/2009
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City of Colleyville
Agenda Briefing
City Hall
100 Main Street
Colleyville, Texas 76034
817. 503.1000
www.colleyville.com
File Number:
File Type: Presentation and
Discussion
Status: Presentation and
Discussion
Version: 1
Requester: Office of the City
Manager
Agenda Date: 09/29/2009
Agenda No.: 3a
Controlling Body: City Council
Worksession
Final Action:
File Name: Presentation and discussion of strategic management framework and process
Attachments: Strategic Planning in Brief.pdf Strategic planning and management.pdf
History of Legislative File
Version: Date: Acting Body: Action Text:
1 09/29/2009 City Council
Worksession
Title
Presentation and discussion of strategic management framework and process
Explanation
This item provides an opportunity to present and discuss the proposed strategic
management framework and process that links strategic goals, department activities,
citizen expectations and performance results to the City budget.
The Worksession will also provide an opportunity for City Council and the management team
to discuss focus areas, outline strengths, weaknesses, and opportunities and set the stage
for implementation.
City of Colleyville Page 1 Printed on 9/2M2009
2
Strategic Planning
in Brief
Strategic planning is a systematic process for drawing a vision of a community's
future. It enables localities to assess what the best outcomes of environmental
forces-foreseen and controlled to the extent possible-can be. Strategic planning
• Prescribes a comprehensive course of interrelated actions
• Integrates that course into the realities of budgeting and business plans
• Establishes measurement and review processes to assess progress.
In short, strategic planning helps communities control the future.
Strategic planning, then, is a means of understanding change, forecasting change,
and setting a course of action to manage the expected implications of change. Even
in the most negative situations in the life of a community, strategic planning is a
positive means of moving forward.
Call and timing
The call for conducting a strategic planning process can come from many sources:
elected officials, citizen groups, or other levels of government. In many localities, the
timing of each strategic planning process is dictated by the preceding plan, which
often identifies a cycle for review and replanning.
Even though many localities codify periodic reviews and in-depth planning, they
dori t always happen. Over time, new officials get elected, and appointed positions
are refilled. The planning process is repeated too infrequently and with little conti-
nuity from one cycle to the next. Some local governments prepare a strategic plan
simply to appear to be open to internal or community-wide input. To avoid such
"planning as window dressing," the manager must ensure that elected officials take
ownership of both the process and the plan.
The call for strategic planning can be the result of a specific event: the loss of
funding for a project, the loss of a primary employer, a natural disaster, or a report
critical of municipal services.
In many communities, however, a strategic planning process arises from the
recognition that alliances among local government and citizens and community
groups are necessary to solve long-standing problems. In a March 20041etter, a
Santa Clarita, California, official wrote that "the communications process with the
community focused on understanding how these big issues impact the daily lives of
people__.. From this information, we hope to identify more creative ways to mitigate
the impacts of the large issues that will take decades to resolve."
Strategic Planning in Brief 7
In brief, the plan can become a collectively supported, integrated road map of
how a community will begin to move toward its most desirable future; the plan can
also be the most acceptable formula for allocating always scazce resources. Over
time, the strategic plan also becomes a guide for making intermediate decisions'and
for demonstrating progress.
From process to product
Strategic planning must be seen as both a product and a process. As a process, it can
be athought-provoking, introspective, and comprehensive register of the key issues
confronting a community as well as a perspective on the resolution of the issues.
When the process is complete, the community should have agreement or significant
consensus on at least the following components of a strategic plan:
• Vision for the community in the future
• Mission statement for the local government entity
• Environmental scan and conclusions about what the unplanned future will be
like
• Complete list of the community's strengths and weaknesses as well as its
opportunities and threats (SWOT)
• Goals for the time frame identified
• Measurable objectives for each goal
• Tactics to be used to address each objective
• Implementation plan that includes time lines and group or individual
assignments
• Description of the plan's relationship to the local government budget and
available human resources
• Contingency plan that prepares as much as possible for the unexpected
• Schedule for performance assessment, periodic reviews, and replanning.
Excerpts from actual local government strategic plans can be found in the body
of this text and in the appendices at the end.
8 Strategic Planning Handbook
Realistic expectations
A strategic plan is not a guarantee of management or economic success, although
the best plans do provide a means of reacting as well as acting. Even with the best
information and the greatest clarity of vision, good people may simply make wrong
choices and select the wrong actions. Even best-laid plans can require adjustment.
Neither is a strategic plan a resolution of the debates that take place over a vari-
ety of topics in any community. Reaching consensus on long-standing issues such as
choosing between tax reduction or program spending or defining and solving traffic
problems is not likely to occur through the planning process. A plan does offer an
opportunity to reach some common ground-it does so by demonstrating respect
for opposing positions-but it is not a panacea for long-term conflicts within a com-
munity. Aplan can help identify an acceptable middle ground, but it will not create
dramatic shifts in structural, philosophical, or political positions.
Neither does a strategic plan increase available resources. The process can result
in a more efficient use of existing human and capital resources, and it can identify
means of increasing or diversifying revenue sources. It may even enable a commu-
nity's leadership to agree on programmatic reductions or eliminations. But it should
not be regarded as an opportunity to find ways to do more without regard for who
will do the work or how they will be paid. Such expectations, although not uncom-
mon, are usually unrealistic and are simply a means of avoiding the need to address
programmatic reductions. The strategic plan cannot stand alone; it must be tied to
the operating budget.
Work in progress
A strategic plan is never a final document. It will never be completed. As soon as an
initial plan is final, a process of review and reconsideration must begin. The breadth
of responsibilities facing today's local governments and the overall pace of change
in the world almost guarantee that any strategic plan needs to be seen as on its way
to becoming out of date as soon as it is adopted.
To understand how quickly a community's strategic plan can become outdated,
consider the time span for which plans are typically written. Consider, for example,
a plan that was written for athree-year time frame. As of this writing, that plan
would have been written in 2001-before the 9/11 attacks, the war with Iraq, the
war on terrorism, the terms of office of many current elected and appointed officials,
and the emergence of issues particular to different state and local governments.
Change occurs too quickly in this world to assume that our three-year-old vision of
the world and direction for our communities remain entirely relevant today.
Pitfalls
As the process of strategic planning has become more commonplace in municipal
government circles and as local government leadership has become more adept at
planning strategically, some of the pitfalls are clearer and better understood than
they were in the past.
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Strategic Planning in Brief 9
The community and community leaders believe a finished strategic plan is a per-
manent document Localities-especially those preparing strategic plans for the
first time-often regard the plan as the end point that, once completed, represents
the full accomplishment. The plan becomes irrelevant as local conditions change, but
because the plan is regarded as permanent, it is not updated. Managers begin to
focus on the daily "fires to put out" to the exclusion of keeping relatively scarce
resources focused on longer-term objectives.
The community and community leaders do not acknowledge changed environ-
ments that call for revision of strategic plan It is common for plans to be devel-
oped and implementation to begin but also for local leaders to lose sight of the plan
and its long-term vision the minute new issues arise. Every strategic plan needs to
be altered, and the community must realize and acknowledge this fact.
Blind adherence to goals or tactics that have lost relevance because of changes in
the environment only invite disaster. Communities need to constantly scan the envi-
ronments in which they operate in order to see the best means of approaching the
vision they have created. Continuous diligence will yield a consistent journey rather
than a meandering path to the desired future.
Only community leaders participate in strategic planning Some of the most suc-
cessful strategic planning processes involve participants from a variety of levels of
the community and the government staff. Involving people with different perspec-
tives and including their input has numerous advantages. Clerks and others who
have daily interaction with constituents are often a valuable source of intelligence
for planning.
The downside is that lower-level participants may find it daunting to speak up in
front of elected or executive staff at higher levels, resulting in unquestioned asser-
tions and assumptions by senior individuals. This is dangerous and can be avoided
if senior officials clarify that everyone needs to be heard and that no individual
source of information or opinion is unimpeachable.
Highest levels of community leadership do not commit to the strategic plan and
the process High-level commitment is not always easy to obtain, possibly because
members of the leadership perceive that the plan will tie their hands by committing
resources to the goals and objectives of the plan rather than allowing flexibility to
address other issues as the leadership deems appropriate. In this case, planning in
the private sector has an advantage over planning in the public sector because pri-
vate sector resources can be narrowly focused on a single objective-profits. In the
public sector, a wider range of issues needs to be addressed. A public sector "prod-
uct line" cannot be abandoned simply because the costs are too great or the return is
too small.
Strongly expressed support for the process by the most senior officials helps cre-
ate commitment, or buy-in, to the plan by those who must later implement it. Such
buy-in quickly permeates all levels of the organization and thus helps to secure the
most effective implementation feasible. Anything less than full and enthusiastic sup-
port for the process will be detected easily and can debilitate the implementation of
the plan and dilute the effectiveness of the local government's services.
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10 Strategic Planning Handbook
Communities want to implement all the tactics identified in the planning process
without regard to available human and financial resources After listing potential
tactics that will move the community toward its goals, the leadership of the local
government must make decisions about what can be done, what cannot be done,
what can be done in stages, and what can be done at a later time. The Lewis County,
Washington, plan succinctly states this key aspect of local government strategic
planning.
Simply put, we must focus the resources available to us on the most important,
~~% most effective services for our community.
Overextension of government resources to accommodate a good idea is an error
that can stretch resources too thin or distract people and dollars from more vital
services. Tactical plans must be approved or disapproved after they are considered
in light of the plan's stated vision and its goals and objectives. Adherence to goals
and objectives will ease decisions about which programs are first to be included or
excluded from implementation. Remember Charles de Gaulle's remark about his
governance of France: How can anyone be expected to rule a country that produces
265 varieties of cheese?" Local government leaders must make difficult decisions
about what to fund and what not to fund; they can use the strategic plan as their
guide to making those decisions.
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5
Values, Vision, and
Mission
Community values are reflected in community vision and mission statements. Often
the values, visions, and missions of local jurisdictions are similar even though the
jurisdictions vary in their populations, locations, and other defining characteristics.
This reflects the fact that most people seek and want to enjoy a similar high quality
of life.
`~"' Core values
The inherent values of an organization provide the foundation on which the strate-
gic plan is constructed. They are the basis for all decisions and actions. In strategic
plans, inherent values are often referred to as "core values," "key elements," "guid-
ing values," or even "critical success factors."
The planning group is not always aware of its
~ inherent or collective values. A good step in the strate-
gic planning process, therefore, is to consider what the
values of the stakeholders are for their community.
Not all participants will have the same core values,
however. One person may have a strong sense that
those in need should be cared for by the community at
~ This plan is only effective if any cost, while others may believe strongly that pro-
fit reflects the concerns, grams should be slashed to ensure that no new taxes
will be needed. For the sake of an introductory exer-
valttes, and priorities of OuY cise, even those distinctions can be eliminated: the
Cftizens. plan may include a statement to the effect that "we
believe in a caring community that, within the context
® -Lewis County, wastungton of available resources, cares for those who cannot care
for themselves." Such a statement is not simply an
equivocation because the goal of an introductory exer-
cise is to start the process of strategic thinking and
encourage stakeholders to begin to concentrate on the
most important aspects of any discussion as they pro-
ceed with strategic planning.
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28 Strategic Planning Handbook
Collective values and standards of behavior affect the manner in which programs
are defined and resources allocated. Planners need to be aware of these perspectives
because the context for decision making can often help identify where and when
compromises may be feasible. Following are three examples of core values state-
ments. The first example, from Rowlett, Texas, listed three areas its core values fall
into.
Our City
%i
• We make the lives of our customers the highest priority.
• We exercise fiscal responsibility.
• We provide the highest quality of service to the community based on concern,
compassion, and professionalism.
• We are innovative in responding to the current and future needs of the
community.
• We recognize that all individuals living and working in the community are
essential resources for achieving the city's mission and goals.
Our Organization
• We work as a team to accomplish our mission and goals through open
communication, respect, cooperation, and recognition of any shared successes.
• We promote pride and ownership in our city organization and our community.
Each Other
• We are committed to honesty and integrity.
• We value each member of the city staff and treat his/her contributions with
dignity, fairness, and respect.
• We are accountable to those we serve and to each other.
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Planners in Grand Junction, Colorado, took a different approach; in their list,
they defined what each core value meant.
~~ Integrity We hold ourselves to the highest level of honesty, truthfulness, and
~~ ethical conduct.
• Professionalism We are committed to the highest level professional
standards by recruiting and developing highly trained, skilled, and motivated
employees.
• Teamwork We embrace a spirit of teamwork, empowerment, cooperation,
collaboration, communication, and community involvement.
• Honesty We are truthful and open in our interactions with each other and
with citizens of our community.
• Creativity We encourage innovative and creative approaches to problem
solving.
• Fairness We treat everyone and all situations in an impartial, equitable,
sensitive, and ethical manner.
Values, Vision, and Mission 29
• Respect We believe that all people deserve to be treated with respect,
sensitivity, and compassion by showing understanding and appreciation for our
similarities and differences.
Customer service We strive to gain the public's confidence and trust by
providing friendly, efficient, and effective service.
The city of Columbus, Ohio, and Franklin County, Ohio, prepared afour-year
consolidated plan for issues specific to housing and community development in
which inherent values are listed.
• Regional and local Balance regional issues with specific neighborhood and
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target area needs.
• Citizen participation Provide opportunities for all citizens to participate in
plan development, implementation, and evaluation.
• Proactive Anticipate and respond to current and emerging trends,
community needs, and citizen values.
• Priority to lowest income Ensure that no one is left behind, especially the
poorest in our community.
• Collaboration Encourage public, private, and nonprofit sector collaboration
and reduce program duplication.
• Emphasize the positive Build on available and realistic community assets,
resources, plans, and market forces.
• Leverage Leverage the involvement of private sector organizations and
resources.
• Measurable results Produce and evaluate measurable outcomes and results.
• Comprehensive Engage comprehensive strategies to address the holistic
needs of a neighborhood, household, or individual.
Vision statements
Vision statements for communities reflect the collective understanding of the ideal
situation. They may reflect a certain standard of living, the pleasantness of the envi-
ronment, or the general vibrancy of the community. In local government strategic
plans, the vision statement represents a view of the ideal community toward which
the group is working. The mission statement, on the other hand, relates not to the
community but instead to the governmental entity. (See page 31 for a discussion of
mission statements.)
The entire strategic plan starts with and must consistently relate to the vision
statement. The ideal view of the community sets the tone for the process and plan.
The mission of the local government must fit into the vision for the community;
goals and objectives must support that vision as well.
Because the vision reflects the ideal view of the community, great specificity is
not necessary. That comes later. Also, as a reflection of the ideal, the vision statement
is unlikely to change over time. Each subsequent plan will address the same vision.
Years after an initial vision is agreed upon, subsequent sets of goals and objectives
30 Strategic Planning Handbook
Vision statements from local government strategic plans
Bartlett, Illinois ... is a community of small-town charm with a high level of responsive municipal
services. Prudent economic development and diversification of the tax base make the village of
Bartlett a safe, family-oriented community that is a great place to live, shop, work, and play... a
place where community isn't just a word, but a way of life.
Clark County, Nevada ...a dynamic and vibrant community valuing diversity, opportunity, and
partnerships, which fosters a healthy environment where individuals and families choose to live,
work, and play.
Dover, Delaware ... a place where people want to live! ... [with] a reputation for being a clean
and safe community, with a future of balanced growth and opportunity, where all citizens are
heard, enjoy a high quality of life, and diversity is valued.
Hamburg, New York ... is the most desirable community in western New York, where quality of
life, affordability, and innovation are the norm.
Mesa County, Colorado ...will be the best of government in the State of Colorado.
Montgomery, Minnesota ...will become the leader in LeSeur County, where others look to see
how good a city can become.
Wildwood, Missouri ... is about the bonds that link neighbors and neighborhoods into a
cohesive community of caring, involved, and dedicated citizens. It's also about a quality of life
based upon careful stewardship of the magnificent natural environment found within the city, and
ensuring that this legacy is passed on to future generations as a result of planned, responsible,
sustainable growth.
Worcester, Massachusetts ...the most vibrant, welcoming, medium-sized community in the
Northeast.
will assess progress and chart the course anew, but always with a focus on pursuing
the vision stated at the outset.
Note that because the vision reflects an ideal, it is unlikely that it will ever be
fully and definitively achieved. If a community's vision is to be the best place to live
in the Midwest, one could never assert with finality that such a view had been
achieved, even though one may believe it without question to be true. And, of
course, no matter how pleasant life has become in the community or how wonderful
a place it is, it is not likely be the best in every facet of community life. Nor will it
ever be of such unparalleled excellence that it can be left to its own devices, never
again to be tested or improved.
The best vision statements for communities, then, are broad without being so
general as to be common and are expressive of the ideal without being inane. It's
safe to assume that, when there is greater specificity reflected in the vision state-
ment, the community has been able to identify an issue of long standing or a depth
of criticality that implies that the ideal community cannot be realized until that issue
has been addressed and resolved. Subsequent goals and objectives will normally
reflect a heavy debt and direct relationship to that issue.
Because most communities want the same kinds of things for their various con-
stituencies, the concept of the ideal, as expressed, may be quite similar from one
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Values, Vision, and Mission 31
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plan to the next. Distinguishing features of communities will become clear later, in
their environmental scans and their subsequent goals and objectives. An example of
an elaborated vision statement comes from the Gratiot County, Michigan, strategic
plan.
Gratiot County will be a cohesive community of people enjoying distinct but
~% interrelated urban and rural living environments; where the natural surroundings
and important agricultural resources are protected; and where opportunities
abound to live and work in a safe atmosphere, allowing people to enjoy the
benefits of well-paying jobs, varying housing choices, excellent public services,
superb education, quality health care, ample cultural and leisure opportunities,
and a healthy family environment.
Mission statements
The mission statement identifies the local government's role in pursuing the com-
munity's vision.
The mission is often described as an organization's raison d'etre, the core reason
for its existence. It is so central to the purpose of an organization that it can usually
be seen in its founding or charter documents. Iri the case of a local government, it is
typical to find the mission statement for the local government restated in bond doc-
uments, budget manuals, and elsewhere.
The typical mission statement for a local government is fairly concise. And, as is
the case with the vision statement, the mission tends to highlight themes common to
most communities.
Consider, for example, the following statement included in the strategic plan for
the village of Addison, Illinois.
...to create and sustain a dynamic, engaged, and successful community in which
~~% all residents, businesses, and employees enjoy economic opportunity, social
stability, and a sense of well-being.
This statement illustrates the most common themes. The role of local government
is clear, and the statement is enduring. The lasting nature of the mission statement is
important. Cuter time, mission statements tend to change very little and generally do
so only in the wake of a dramatic change in the community or the responsibilities
assigned to the local government.
Mission statements are often used to encourage or give credence to the impor-
tance of citizen involvement in city life. The mission statement of Gaithersburg,
Maryland, is a good example.
/~% commun tyrse viges fog tsec tizens. Wetareoa ChadracgeraCounts city that serve asya
catalyst for the involvement of residents, businesses, and organizations to ensure
that Gaithersburg is a great place to live, work, learn, and play.
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32 Strategic Planning Handbook
Local government mission statements
Bartlett, Illinois The village of Bartlett is committed to preserving the high quality of life enjoyed
by our residents, providing fiscally sound, responsive municipal services, and delivering those
services in a professional manner with a high degree of integrity.
Hamburg, New York [The village's mission is] to serve the needs of the people of Hamburg by
supporting the village laws and policies, the state constitution, and the constitution of the United
States through the effective and efficient stewardship of resources provided.
Jackson County, Kansas The mission of Jackson County... is to evaluate, strengthen, improve,
develop, promote, and preserve the quality of life in Jackson County, Kansas.
Lewis County, Washington Lewis County government provides responsive, efficient, quality
public service. We promote the self-sufficiency, well-being, and prosperity of individuals, families,
businesses, and communities in a manner that fosters public trust and confidence in government.
Mesa County, Colorado [The county's mission is] to provide high quality services to Mesa County
in a friendly, cost-efficient manner.
Moore County, North Carolina The mission of Moore County government is to enhance the
quality of life by providing exceptional public services.
Wildwood, Missouri The city of Wildwood is dedicated to government of, by, and for the people
whose active civic involvement and commitment to community life is the cornerstone of the city.
Local representation will be responsive, accountable, and fiscally responsible in pursuit of the
public interest while adhering to the highest ethical standards in all its dealings.
The mission statement communicates the purpose of the local government to the
community. It is instructive for employees, residents, and others.
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7
Goals, Objectives, and
Tactics
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Upon the completion of the environmental scan and the identification of the
strengths, weaknesses, opportunities, and threats (SWOT), the planning committee
will have an outline for the development of goals and objectives. Each of the items
from the SWOT analysis represents a potential goal. It is at this point that the com-
mittee will begin to transition from the research and analysis phases of the strategic
planning process and move toward the development of programs, action items, per-
formance measurements, and assignments.
Following the environmental scan performed by the city of Winston-Salem,
North Carolina, planners there compiled a list of goal statements and classified them
under five separate categories: economic vitality and diversity, social vitality, service
excellence, community participation, and governance. Each goal statement in each
category relates to one or more lessons learned in the environmental scan. The fol-
lowing bullet examples are from Winston-Salem's section on economic vitality and
diversity.
• Review business regulations and processes to remove unintended obstacles and
~~
Once goals like these are selected, objectives and tactics for achieving the goals
can be defined.
~ delays
• Define a proper approach to incentives for manufacturing, small businesses,
and new technology
• Revitalize/redevelop existing commercial areas under decline.
Hierarchy and time frames
Goals, objectives, and tactics form a hierarchy. Goals are general statements that are
subsets of the vision. They are the points toward which a community works. They
may be realized in the short term, but they may also reappear from one strategic
plan to the next. Because they are general in nature, they do not typically include
any form of measurement.
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38 Strategic Planning Handbook
Objectives are more specific. Each goal may have any number of objectives, and
they represent the first point at which measurement can later be considered. A plan
can be determined to be successful if its objectives are being met. Objectives are usu-
ally carried over from one plan to the next when they cannot be accomplished in
one planning cycle.
Goals, objectives, and tactics can be developed for any period of time selected.
There are several models from which to choose. Some plans cover three to five
years, while other communities develop plans that can be managed within aone- or
two-year horizon and then reconsidered.
A hybrid approach often used by local governments allows for athree- or five-
year comprehensive strategic plan. However, the reports of the achievement of these
goals will be a mixture of short- and long-range targets, and the tactics employed
will be items that either can be completed within a year or may continue as actions
for many years.
Goals
The goals in the strategic plan are drawn from the environmental scan. They are
designed to address the opportunities that are expected and take maximum advan-
tage of them while the jurisdiction resolves or minimizes any anticipated threats
before they arrive. The strengths and weaknesses identified in the internal scan can
also be addressed in the goal statements.
Goals usually address long-term issues. They are directly tied to the vision state-
ment and do not include a great deal of specificity. Specific performance measure-
ments will appear at the level of the objectives that support each of the goals. Goals,
then, are generalized statements of where the community wants to be at some point
in the future.
Goals must be at once attainable and sufficiently ambitious to make an organiza-
tion and its people stretch. A goal that is too ambiguous or overly ideal will generate
a lack of focus because people will not regard it as serious. A goal that is overly
aggressive can cause frustration and an expectation of failure.
The number of goals cannot be predicted. Strategic plans for local governments
may concentrate on four or five key goals, or they may list dozens of areas that will
be component parts of the focus for the community during the next several years.
The plan must consist of what the individual community feels comfortable with and
believes it can implement over time.
To draw the connection between issues identified in the environmental scanning
process and statements of specific goals, some communities list the concepts side by
side in the published plan. Dover, Delaware, has done this effectively by including a
column headed, "What is the issue/problem?" The following excerpt provides the
section of Dover's plan that relates to the city library; it is an excellent example of
how the juxtaposition of the issue or the problem and the goal can be mutually rein-
-. forcing as well as instructive to citizens who read the plan.
a
Goals, Objectives, and Tactics 39
a
~% Goal What is the issue/problem?
1. Improve security in library by Blind spots in the building make it
adding surveillance cameras difficult for staff to monitor activities
2. Create an annual report for the Community is unaware of available
library services
3. Provide staff training in customer Customers have expressed that service
service feedback and begin asecret- needs to be improved
shopper project to gauge current
customer service levels
4. Develop a plan to meet the Library services are currently limited
need for additional library space because of space and other
constraints
5. Provide a more diverse library Dover has a diverse population, and
collection we need to meet their needs
6. Create a staff procedure manual Lack of consistency results in
problems with management
Within a jurisdiction, some goals may change from one plan to the next, but often
the same statements reappear over time, supported by new or advanced objectives
and tactics. Consider, for example, two of the programmatic goals listed in the
strategic plan of Los Angeles County, California.
~~j/ Children's and Families' Well-Being:
Improve the well-being of children and families in Los Angeles County as meas-
ured by the achievements in the five outcome areas identified by the Board: good
health, economic well-being, safety and survival, social and emotional well-being,
and educational/workforce readiness.
Public Safety:
Increase the safety and security of all residents in Los Angeles County through
well-coordinated comprehensive response and recovery plans for terrorist incidents.
Clearly, these are areas of concern that will reappear in the county's strategic
plan for several years. Other communities' plans also include such longer-term goal
statements while they address given issue areas more specifically. The strategic plan
developed by the community of Lewiston, Idaho, lists the several goals.
I. Enhance the safety, attractiveness, aesthetics, and health of our city [this goal
~% is supported by eleven objectives]
II. Diversify the economy and stimulate growth [this goal is supported by six
objectives]
40 Strategic Planning Handbook
C
III. Strengthen the leadership, vision, and planning of our city [this goal is
supported by five objectives]
IV. Promote an economical, efficient, productive, innovative, and responsive city
government [this goal is supported by four objectives].
Several positive examples of goals, objectives, and tactics from local government
strategic plans of Gaithersburg, Maryland; Los Angeles County, California; and
Worcester, Massachusetts, are provided in Appendix E.
Objectives
Each of the goal statements in the strategic plan will be followed by one or more
objectives. There is no set number of objectives that is appropriate for each goal.
Some goal statements may have relatively few objectives attached to them, while
some goal statements could have 10 or more objectives.
Objectives begin to provide the specificity attendant to concepts identified in the
goal. For that reason, objectives tend to be shorter term than goals. Although the
goal maybe repeated in successive strategic plans, the (measurable) means of
achieving those goals usually change over time as the result of changes in the envi-
ronment, new ways of doing things, or the accomplishment of previous objectives
that then lead to follow-up activities.
Objectives should be measurable. If specific performance measures are not
included in the objectives, it will be difficult to document success.
Measures can be of various types: quantities, percentages, or dates; or a measure
can be the completion of a unit task (for example, a study, a project, or a plan). One
objective may include a numeric metric, such as "increase the number of partici-
pants in volunteer programs by 75," or "reduce the number of traffic accidents on
the east side of town by 20 percent." Others may state dates by which an assignment
should be completed, such as "complete the master plan for the new development
no later than June 1." Still another measure for objectives is the single task item, for
example, "complete the bus shelter program this year."
Strategic plans that provide measurements as part of the objectives almost
always use all of the methods described above, depending on the nature of the goal,
the nature of the objective, and the level of comfort the planners have with various
levels of specificity. Some goals and objectives seem to defy any form of measure-
ment. One example is "enhance community pride." When sentiments and beliefs are
the subject, specific actions with quantitative or timing performance measures are
typically identified at the tactics level.
The following example of objectives, from the December 2002 strategic plan of
Los Angeles County, California, covers the county's third goal, organizational effec-
tiveness: Ensure that service delivery systems are efficient, effective, and goal
oriented. This goal comprises five component objectives (called strategies in the
county's plan).
Goals, Objectives, and Tactics 41
1. By June 30, 2004, implement a countywide framework for performance
~~~ measurement.
2. By December 31, 2007, design and implement common systems architecture
for countywide administrative systems.
3. By February 28, 2003, develop a plan to convey a simple message that
highlights to the public and county employees the positive impact the county
is having.
4. By June 30, 2004, recommend options for effective alternative support
services models to maximize the ability of the departments to focus on the
core missions.
5. By July 1, 2003, redesign the process and communications between the chief
administrative office, department of human resources, and departments on
classification, compensation, and collective bargaining.
Another instructive example, one that incorporates more quantitative measure-
ments, is that of Dover, Delaware. Even the objective relating to the office of the city
manager contains specific requirements.
• In FY 03/04, have 80 percent of departments within 95 percent of budget; and
~~~ by FY 04/05, have 90 percent of departments within 95 percent of budget
• In FY 03/04, have 80 percent of CIP projects done on time and under budget;
by FY 04/05, 90 percent
• Implement a citywide survey in the first half of FY 03/04 and use that to
establish goals for FY 04/05
• Have three of four key documents fully unified in FY 03/04, and all four unified
in FY 04/05
• Implement four new programs per fiscal year that emphasize performance
and/or cost efficiency into city organization.
Tactics
`- Tactics represent action steps. Indeed, tactics are often referred to in strategic plans
as action steps, but sometimes the plans refer to them as strategies. These are the
activities that the jurisdiction must undertake to achieve the measurements desig-
nated in each of the objectives. Tactics may be numerous or few, depending on what
is needed to realize the accomplishment of the specific objective. As with the objec-
tives themselves, tactics can be one time, short or medium term, or ongoing. Tactics
also typically include measurements, either quantitative or time lines.
Tactics are often presented under each objective in a logical order. In many cases,
the order selected is chronological. Consider this hypothetical example.
Goal: Reduce crime on the north side of town.
Objectives:
1. Increase police officers in schools by 10 percent
2. Install 10 new surveillance cameras around schools
r...,~..,x-. ,
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42 Strategic Planning Handbook
3. Initiate neighborhood watch program by September 1.
Tactics for Objective 3:
a. Hold community meetings at 101ocations over the next six months
b. Select volunteers for various roles, assignments, and schedules
c. Conduct three-part training program for volunteers
d. Identify three regular officers to support the operations
e. Develop promotional plan to publicize program
f. Measure impact on crime rates and disturbances during school year and report
by start of next school year.
In the above example, it is clear that the goal is a general statement, the objec-
tives are broad but measurable, and the tactics are specific actions. Again, the objec-
tives can be used later to assess organizational performance. Once the tactics are
assigned to specific individuals, they can be used as indicators of both organiza-
tional effectiveness and individual performance.
Outlining the goals, objectives, and tactics in the strategic plan follows no set for-
mat in all communities. The format should be one that will help inform residents
and other stakeholders of what is expected and the progress being made. At the
same time, the format should be useful to those who will implement the plan and
measure performance against the plan over time.
The following strategic plan for Lewiston, Idaho, uses a format similar to the
example above; it shows Lewiston's layout of action steps for objective B, which falls
under its first of four goals. Goal I comprises eleven objectives; objective B is the sec-
ond objective of the eleven.
~~j/ Goal 1:
We will enhance the safety, attractiveness, aesthetics, and health of our city.
Objective B:
Promote and expand recreational opportunities
/~~~i
Implementation Action steps
1. Evaluate and implement
a plan to provide cost-
effective swimming
opportunities for
Lewiston residents
1 a. Investigate cooperative efforts with city of
Clarkston and Asotin County
1 b. Provide technical assistance to Asotin County
during design and construction phases of new
aquatic center and evaluate how city might
support the facility, including public transporta-
tion issues; site and design architecture selected
June 2; construction to begin February 2003
Goals, Objectives, and Tactics 43
2. Implement the park 2a. Prioritized project listing is reviewed by parks
master plan and develop and recreation annually
a public-private 2b. Develop and maintain a park of 5-20 acres in
financing mechanism each neighborhood, with off-street parking,
winterized bathroom, and playground
2c. Upgrade and install year-round restrooms in
each neighborhood park
3. Develop a community 3a. Funding options include general funds, land
park sales, surcharges, grants, and bond issue
4. Explore opportunities for
RV facilities along the
travel corridor
Relating actions to vision
4a. Being examined through the North Idaho Travel
Council
Gaithersburg, Maryland, provides stakeholders with a comprehensive report that
highlights each of Gaithersburg's "strategic directions," the reason each was
adopted, and the general approach to implementing each one. It also lists the goals
for that strategic direction and all the "critical measures" that will result from imple-
mentation. Citizens know what outcomes to expect and how those outcomes con-
tribute to the larger vision. A partial excerpt follows, and examples of the measures
used are included in the next chapter on page 50.
Strategic Direction:
~~i
Implement traffic and transportation strategies to improve the safety, structure,
and function of streets, transit, bikeways, and sidewalks within the city
Background (Why)
• The city is committed to safe and convenient roads, sidewalks, parking areas,
and bikeways.
• One of the most common concerns raised by city residents is managing traffic
in residential neighborhoods.
• The city recognizes that a comprehensive approach to traffic management
must include engineering, education, and enforcement.
• The city's proximity within the I-270 corridor creates both opportunities and
constraints on our local road networks, and a regional approach to traffic
mitigation is essential.
• The transportation element of the master plan recommends eliminating gaps in
the pedestrian and bicycle network and encouraging the use of transit facilities
to reduce traffic congestion, conserve energy, and maintain air quality goals.
• The city's concern for pedestrian safety creates a need for new and innovative
design standards that can provide both identity and improve pedestrian safety.
44 Strategic Planning Handbook
Approach (How)
• Work with homeowner associations and other community organizations to
identify specific areas of concern.
• Implement traffic calming measures in existing communities where appropriate.
• Ensure that traffic calming measures are considered in new developments
through the development review process.
• Use speed and traffic studies to assist in determining where speed enforcement
would be effective.
• Enforce parking ordinances and traffic laws aggressively to address hazardous
situations and community concerns.
• Encourage state and county officials to fund transit and traffic improvements
that will decrease congestion.
• Maximize the location and use of parking through site plan review and by
permitting parking on existing streets where appropriate.
• Coordinate with the Maryland Department of Transportation and Montgomery
County on road projects, making sure that all new state and county roads in
Gaithersburg contain appropriate design features.
• Promote smart growth through the implementation of the bikeways and
pedestrian master plan as well as through the transit components of the
transportation master plan.
• Integrate bicycle and pedestrian design elements into road design and traffic
calming measures.
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Looking toward implementation
Some communities choose to array the objectives and tactics in a format that permits
managers to set their schedules to accomplish the tasks in the plan. This is the case
in the following example, taken from the 2002 strategic plan of Los Angeles County,
California. These tactics relate to the county's fifth goal, "Children and Families'
Well-Being" and the following objective: Improve the well-being of children and
families in Los Angeles County as measured by the achievements in five outcome
areas adopted by the Board: good health, economic well-being, safety and survival,
social and emotional well-being, and educational/workforce readiness.
~~ Tactics:
ii
• By July 31, 2003, initiate an action plan and identify resources to implement
health, mental health, and substance abuse screening and assessment for all
children entering out-of-home placement for the foster care and juvenile justice
systems.
• By October 31, 2003, complete the design process for an integrated family
services system to integrate services and improve outcomes for children in out-
of-home placement and/or families receiving two or more...services
• By December 31, 2003, fully implement the child care and development project
to increase the capacity of child care providers and programs to appropriately
serve children with disabilities and other special needs.
Goals, Objectives, and Tactics 45
• By July 31, 2004, fully implement customer service and satisfaction standards
with county departments/agencies and their community partners.
• By December 31, 2004, implement Principles for Partnering pilot and evaluate
the collective efforts of county departments and community-based
organizations for enhancing families' and communities' capacities to meet their
own needs.
• By July 31, 2005, implement the child abuse prevention initiative in partnership
with First 5 LA.
As a result of the strategic planning process, communities almost invariably
identify more goals, objectives, and tactics than they have the human or capital
resources to accomplish. At some point in the process, planners need to compare the
lists of tasks with the budget and staffing tables. Then someone must make very dif-
ficult decisions about what can be done, what must be tabled for a later time, and
what cannot be done at all unless additional resources are identified. The final lists
of actions to be taken must then be assigned to groups and/or individuals who will
be responsible for their implementation (see Chapter 8 for details).
Implementation plan
The implementation plan is really an extension of the
strategic plan for the community. Action steps for begin-
ning the work are assigned to groups or individuals. To
develop a realistic, achievable action plan, planners must It's easy to let the things in
take into account existing workloads of individuals and t]te plan Slide because of
agencies.
Many planning groups tend to focus on the new
d1StYaCtions with Other hot
objectives and tactics and give priority to them; in prac- issues that Conte up on a daih/
tice, the new tasks must be assigned priorities that also basis. We have taken the.
take into account the priorities already assigned to con-
a~proaCh of purposely
tinuing tasks. On the other hand, the work units
involved tend to focus on day-to-day issues and ignore allocating time in our city
new initiatives called for in a plan. Co1tnCll work SP.5SZOl2 meetings
Many local government managers use the implemen-
to review certain sections of
tation plan to develop annual performance standards for
employees as well as year-end performance measures. It the strategic plan itt order to
is important that managers and other staff understand keep 1t ltl front of the Cit1/
clearly not only what is assigned to them but also the C01t ZtCll lZnd the Clay Staff
larger context of the plan. Why are these tasks impor-
tant? Where do they fit in the greater scheme of improv- -Charlie Graham, city manager
ing our community? The greater the understanding by Frankerunuth, Michigan
those who implement the plan, the better the buy-in; the
better the buy-in, the more aggressively and effectively
the goals and objectives will be pursued.
Again, there are many ways to lay out the implementation plan. And, again, the
plan must correspond with existing personnel operating systems and local comfort
46 Strategic Planning Handbook
levels. Some implementation plans use a tabular format, but some are in a narrative
format. An excerpt follows from the Lombard, Illinois, narrative plan fora confer-
ence center.
Action: The following implementation steps and designation of responsibilities
~~% have been developed in order to address the village's strategic direction regarding
the new conference center.
• Prepare financing alternatives associated with the village's financial participation
in the conference center project. Submit the financial pro forma to the
economic and community development committee and the finance committee
for review and approval prior to consideration by the board of trustees. This
will be the responsibility of the village manager, community development
director, and the finance director.
• Develop and review the purchase and sale agreements for the conference
center site. Submit to the board of trustees for consideration. This will be the
responsibility of the village manager and the community development director.
• Prior to board of trustees consideration, prepare and submit the development
agreement to the plan commission, economic and community development
committee, and finance committee for review. This will be the responsibility of
the village manager, community development director, and finance director.
• Process the necessary zoning approvals for the conference center project. This
will be the responsibility of the community development department.
• Create a public facility corporation that will, among other responsibilities, issue
bonds for the project. This will be the responsibility of the board of trustees.
;.
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Jefferson City, Missouri, used a format in its October 2000 strategic plan that
enabled managers to line up in one place the action, the person or office to whom it
was assigned, due dates, and completion dates. Such a form can be the basis for
daily assignments, performance measurement, and even rewards systems.
An implementation plan can also be used to report back to stakeholders on
progress toward the various tactics laid out in the strategic plan. The community of
Marion, Indiana, uses a reporting format for internal management review that indi-
cates the status. A brief segment of Marion's format follows.
~~j/ Continue implementation of the city's facilities plan
Strategic priority Completed by Responsible
A. Review financing plan and project May 2003 Employee S
schedule of city hall/community
building, public services, and Thomas
Park shop building expansion projects
B. Implement plan in accordance Ongoing Employee T
with ongoing schedule
~~
I ~
1
Goals, Objectives, and Tactics 47
Finally, Worcester, Massachusetts set up a summary listing of strategies and assign-
ments in a format that other communities may wish to consider.
~~j/ List of Strategies and Assignments
Objective 5:
Improve communication and information systems for youth
Strategies:
• Develop, in cooperation with community partners, a comprehensive
communication network of available resources and services.
The following municipal departments will provide services to meet the goals of
the new strategic plan within the area of youth services:
• The city manager's office will coordinate with funding agencies and service
providers to develop a cooperative multiyear action plan, secure funding, and
explore the possibility of establishing a youth services position and/or
department within the municipal system.
• The parks department's youth, parks, and recreation division will coordinate
with community-based agencies to expand summer recreation, employment,
and meals programs and extend, where possible, to a year-round schedule....
Appendix E provides additional examples of goals, objectives, and tactics; and
Appendix F shows excerpts from an implementation plan from Medford, Oregon.
Once the plan is ready to be implemented, local government staff must ensure
that they have the necessary systems in place to track progress against the measura-
ble objectives and tactics. They must also be aware of lessons being learned as the
plan is implemented so that they can apply the lessons to upcoming planning cycles.
These topics are covered in Chapter 11.
a
8
Performance
Measurement
Performance measurement enables stakeholders to assess the effectiveness of the
strategic plan and enables managers to evaluate the performance of individuals and
agencies tasked with accomplishing the tactics and objectives of the strategic plan.
To facilitate review and evaluation, managers in some jurisdictions assemble all
assignments from the strategic plan into one list. This list can become an action plan
and can be used to monitor assignments, determine performance, and adjust work
schedules. It can also form the basis of a regular progress report to the community.
A comprehensive list of all the measures and tactics from the various sections of
the strategic plan enables agency managers to evaluate the impact on available
resources of new or expanded assignments. Does this agency have enough staff
hours to accomplish the items on its portion of the list? Do the new work levels
require additional funding or facilities from which to work? What other tasks or
expenses can be cut back or delayed in order to assume these new responsibilities?
The measurable benefits and costs of objectives and tactics in the strategic plan
should be considered at many levels. At the highest level, what is the relative impor-
tance of the program vis-a-vis other programs that must compete for the same lim-
ited funding? At the department level, objectives and tactics must be related to the
department's mission, capabilities, and resources. The department must also be able
to collect the data necessary to measure success. At the program level, outcome
measures can be used to help make decisions about whether constituent services are
being provided in the most effective and efficient manner possible. At the level of
the unit or the individual, outcome measures can influence pay and promotion
decisions.
For all of the reasons cited above, a single listing of all of the measures from all of
the objectives and tactics listed in the plan can be very useful. Some communities
have begun to apply a balanced scorecard model to strategic planning objectives: a
weighted index of performance metrics is assessed within the context of acceptable
ranges of outcomes. The format that is best for any given community must be the
format its leadership finds most comfortable.
The city of Kingsport, Tennessee, lists very general performance outcomes to be
expected from each of the goals in its strategic plan. In the plan adopted by the
mayor and aldermen of Kingsport in May of 2003, one goal was to "create a healthy
.... -
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economy by continuing efforts to expand and diversify the economic base." C-ne
strategic objective under this goal was to become a "smart city." The very succinct
and easily understood summary of that objective and its measures is shown below.
Goal:
~~
Create a healthy economy by continuing efforts to expand and diversify our
economic base
Strategic objective:
Make Kingsport known as a "smart city," exemplifying high-quality educational
initiatives
Measures:
• Number of students enrolled in higher education institutions in the city
• Percentage of high school graduates who go on to post-secondary education
• Number of high school students who enroll in RCAT [Regional Center for
Applied Technology, a collaborative effort of Northeast State Technical
Community College and the city of Kingsport]
• Number of students enrolled in post-secondary distance learning in Kingsport
• Percentage of high school graduates who earn post-secondary degrees or
certifications
• Vocation survey score (Is the educational system producing what area business
needs for its workers?)
• ACT/SAT scores of city school students
• Percentage of households with high-speed Internet
• Number of graduating seniors obtaining ASQ [American Society for Quality]
Quality Improvement Associate certification.
Gaithersburg, Maryland, also offers concise measures of performance.
~~ j/ Strategic direction:
Implement traffic and transportation strategies to improve the safety, structure,
and function of streets, transit, bikeways, and sidewalks within the city
Critical measures:
• Number of speed studies completed
• Number of citations for traffic violations
• Average reduction of speed after a traffic calming measure has been
implemented
• Number of new sidewalks and bike paths.
Appendix G shows performance measures listed in the section on community safety
in the strategic plan for Charlotte, North Carolina. Charlotte's measures provide a
complete and easily scanned picture of the plan's expected results.
y:
~~
9
Strategic Plai~uling and
the Business Plan
~.
Local governments need to ensure that their strategic plans and business plans are
consistent and interconnected. Planners now recognize that resource allocations that
result from the strategic plan's objectives and tactics must be coordinated with ongo-
ing budgeting tasks, responsibilities, and work assignments.
The three-year (2003-2005) plan of Grand Rapids, Michigan, includes the follow-
ing statement on its cover.
Several documents represent the strategic direction of the city, including the city's
~~ mission statement, fiscal plan, performance measurement plan, three-year
strategic plan, and various departmental, technical, and community strategic
- plans. Together, these documents form the strategic blueprint for the city to
provide equitable access to urban life for all citizens.
Worcester, Massachusetts, is typical. Goals, objectives, and strategies of its strate-
gic plan for 2000 were all tied to its performance budgeting system, which identifies
service delivery inputs, outputs, and departmental outcomes. These were linked to
departmental performance, budget priorities, and financial allocations. The system
identifies costs, benefits, efficiencies, and constraints of municipal dollars and
services.
In Maricopa County, Arizona, the 2000 strategic planning effort made a clear con-
nection between strategy and business planning.
Maricopa County is ready to manage for results, developing strategic plans that
~% integrate planning with budgeting and performance measurement. This effort will
create powerful tools for making good business decisions and achieving
department/agency and corporate goals and priorities....Of importance, the
guide will provide information and time lines on how the county will move
toward performance-based budgeting and the integration of results-oriented
performance information in every employee's appraisal....The resource guide also
provides the methodology for creating alignment of the people, resources, and
systems of each departmentlagency. This makes it possible for each employee to
know how his or her job contributes at every level of the organization.
~ ~ ~~
.3;
66 Strategic Planning Handbook
Among the new pressures local governments face are the remarkable demo-
graphic changes in the nation. Associated with such changes are both exciting
opportunities and inevitable problems. For local governments, the challenges of pro-
viding new and expanded services in the environment of disparate cultures, lan-
guages, and expectations yield new tactics and additional costs.
The economic recession, the loss of selected industry sectors to overseas competi-
tors, and the advance of new industry sectors in areas like biotechnology create
pressures that threaten the fiscal structure of many local governments while they
increase the need for economic development and social programs.
The Internet and associated technologies have grown, and growing with them is
our capacity to access and exchange information. For localities, this has meant an
ability to do more and do it faster, smarter, and cheaper. This fact alone dramatically
alters the way in which governments can provide services to their constituents and
prescribes changes in the strategies being devised for municipalities. The pace of
this technological change seems to be increasing relentlessly.
In addition, the cost of new security measures to protect people and infrastruc-
ture has largely been passed on to states and localities. Communities that serve as
entry points to the United States or that are near the country's borders are particu-
larly affected.
Local governments that plan strategically recognize these facts and are able to
respond, thereby taking advantage of opportunities as they appear and outlining
tactics to resolve problematic issues.
The new professionalism of local government is apparent in how strategic plans
are developed and in how they are used. In 2004, compared with 1993, significantly
greater emphasis is placed on ensuring at every step that the community and all
stakeholders are fully apprised of what is being done and why. Substantially greater
efforts are made today to obtain community input and sell the plans to stakeholders
after the plans are formally approved.
Communities now place a far greater emphasis on connecting the strategic plan
with the budgeting process, and vice versa. The budgeting process is conducted in
light of the vision for the community's future. Thus, budgets incorporate programs
to address both immediate needs and their longer-term evolution, consistent with
the vision defined in the strategic plan.
Finally, there is a growing effort to tie the goals and objectives of the strategic
plan closely to the performance measurements for the local government and even to
the staff who manage the resultant programs. Such linkages create a very real and
strong connection between the plan and its implementation.
If the pace of change over the past decade has been dramatic, the pace of change
over the next decade could very well seem alarming. Will America's communities be
able to change their service provision to accommodate that change? Will environ-
mental forces be anticipated in time for local governments to adjust plans? Can indi-
vidual communities continue to take effective advantage of opportunities and avoid
problems that arise?
The answers will become clear over the next several years. In the meantime, the
best way to anticipate and prepare for change, and successfully respond to it, lies in
our ability to plan and act strategically. Local governments cannot control the future,
but they can help shape it.
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