Solicitor's Handbook - Plum Borough

191 Pages·2003·2.23 MB·English

A Manual for Local Government Officials
Solicitor’s
Handbook
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Solicitor's
Handbook
ThirdEdition
April2003
Commentsorinquiriesonthesubjectmatterofthispublicationshouldbeaddressedto:
Governor’sCenterforLocalGovernmentServices
DepartmentofCommunity andEconomicDevelopment
CommonwealthKeystoneBuilding
400NorthStreet,4thFloor
Harrisburg,Pennsylvania17120-0225
[phone]
1-888-223-6837
E-mail:[email protected]
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Copyright©2003,PennsylvaniaDepartmentofCommunity andEconomicDevelopment,allrightsreserved.
Foreword
Duetotheway Pennsylvania’slocalgovernmentsystemhasevolved,theCommonwealthtoday hasalarge
numberofvery smalllocalgovernments. Morethan80percentofPennsylvania’smunicipalitieshavepopula-
tionsunder5,000,asizegenerally acceptedasthepointwherefull-timemunicipalmanagementbecomes
feasible. Thesesmallmunicipalitiesareably servedby dedicatedelectedandappointedofficials. Forthemost
part,they areconscientiousinlearningandperformingtheircivictasks. Largenumbersofthemtakeadvan-
tageoftrainingandeducationprogramsofferedthroughtheGovernor’sCenterforLocalGovernmentServices
andtheseveralmunicipalassociations. Butfromtimetotimetheoccasionariseswhenprofessionaladviceand
expertiseisneededonthespot. Theonly professionalsourceofassistancereadily athandinmany placesis
themunicipalsolicitor.
Becauseofthepivotalroleofthesolicitorasthefirstrecourseinrenderingtechnicalassistancetomunicipal
officials,keepingsolicitorsuptodateonmunicipallawtakesonacriticalperspectivefortheeffective
functioningoflocalgovernments. Periodically,colloquiumsareofferedby theMunicipalLawSectionofthe
PennsylvaniaBarInstituteandtheproceedingspublishedby PBI. Thispublicationwasconceivedasanintro-
ductionforattorneysnewtomunicipallawpractice. Projectplanningwasdoneby GeorgeM.AmanIII,Chair
oftheMunicipalLawSection,PBI,CounseltothePennsylvaniaMunicipalAuthoritiesAssociationandofthe
firmofHigh,Swartz,Roberts&Seidel,NorristownandThomasL.Wenger,SolicitortothePennsylvania
StateAssociationofTownshipSupervisors,andofthefirmofWix,Wenger&Weidner,Harrisburg.
IndividualchaptersoftheHandbookhavebeenpreparedby practicingmunicipalsolicitorswithparticular
expertiseinthefieldonwhichthey arewriting. Infutureeditions,additionalchapterswillbeaddedtocover
subjectareasnottreatedinthisedition. TheGovernor’sCenterforLocalGovernmentServiceswouldliketo
extenditsappreciationtotheeditorsandauthorsofthevariouschaptersforcontributingtheirtimeandexper-
tisetothispublication.
Thematerialincludedinthispublicationisforthepurposeofprovidinggeneralinformationonsubjectareasof
municipallaw. Statementsdonotrepresentlegalopiniononany particularissue,eitherby theauthororby the
DepartmentofCommunity andEconomicDevelopment. Any viewpointsexpressedwithintheindividual
chaptersaresolely thoseoftheauthor. They donotrepresentpositionsorpolicy oftheDepartment.
Table of Contents
I. MunicipalCodesandOtherEnabling V. EnforcingOrdinances ................ 15
Statutes;HomeRule................... 1 JoseleCleary
BlakeC.Marles Morgan,Hallgren,Crosswell&Kane
StevensandLee P.O.Box4686
190BrodheadRoad,Suite200 Lancaster,PA17604
P.O.Box20830 717-299-5251
LehighValley,PA 18002-0830
VI. PublicOfficialandEmployee
610-997-5060
EthicsLaw ......................... 19
[email protected]
JohnJ.Contino,ExecutiveDirector
II. ConstitutionalProvisions. .............. 5 StateEthicsCommission
ThomasL.Wenger Room309FinanceBuilding
Wix,WengerandWeidner P.O.Box11470
P.O.Box845 Harrisburg,PA17108-1470
Harrisburg,PA17108-0845 717-783-1610
717-234-4182 [email protected]
[email protected]
VII. EthicalConsiderationsfortheSolicitor..34
III. IntergovernmentalCooperation ........10 GeorgeM.AmanIII
GeorgeM.AmanIII High,Swartz,Roberts&Seidel
High,Swartz,Roberts&Seidel 40EastAiryStreet
40EastAiryStreet Norristown,PA19404
Norristown,PA19404 610-275-0700
610-275-0700 [email protected]
[email protected]
VIII. MunicipalTortLiability ............. 38
PeterJ.TaylorandMonica Maghrak
RobertL.Knupp
MurphyTaylorP.C.
Knupp,Kodak&IngramP.C.
326ThirdAvenue
P.O.Box11848
Pittsburgh,PA15222
407NorthFrontStreet
412-255-0200
Harrisburg,PA17108
[email protected]
717-238-7151
IX. InsuranceandRiskManagement ......45
[email protected]
NancyE.Campbell
IV. MeetingsandRecords ................ 12
Campbell,Nolan&Daly
NormanE.Dettra,Jr.,Esquire
1500MarketStreet
JoanE.London,Esquire
Philadelphia,PA19102
KozloffStoudt,ProfessionalCorporation
215-446-7300
2640WestviewDrive
P.O.Box6286
Wyomissing,PA19610
[phone]
[email protected]
X. IntroductiontoLaborLaw ............ 47 XVI. MunicipalInvestments................ 85
TimothyP.O’ReillyandMeganR.Ford DavidUnkovic
Morgan,Lewis&BockiusLLP SaulEwingLLP
1701MarketStreet 1500MarketStreet,38thFloor
Philadelphia,PA19103-2921 Philadelphia,PA19102-2186
215-963-5000 215-972-7777
[email protected] [email protected]
XI. EmploymentLaw:IndividualRights ...55 XVII. MunicipalRetirementPlans........... 88
ThomasD.Rees DavidG.Knerr,Esquire
High,Swartz,Roberts&SeidelLLP P.O.Box3556
40EastAiryStreet Allentown,PA18106-0556
Norristown,PA19404 610-965-3835
610-275-0700 [email protected]
[email protected]
XVIII.AuditsandSurcharges ............. 109
XII. PoliceRegionalization ................ 61 JohnR.Morgan,Lawyer
JonathanMark 116-118WarrenStreet
ResortsUSA,Inc. Tunkhannock,PA18657
Route209 570-836-3170
P.O.Box447
XIX. CollectingMunicipalAccounts .......111
Bushkill,PA 18324
GeorgeM.AmanIII
570-588-6661
High,Swartz,Roberts&Seidel
[email protected]
40EastAiryStreet
XIII. MunicipalProcurement .............. 67 Norristown,PA19404
StevenA.Stine 610-275-0700
23WaverlyDrive [email protected]
Hummelstown,PA 17036
XX. CollectingMunicipalAccountsin
717-903-1268
BankruptcySituations ............... 114
[email protected]
RobertL.Knupp
XIV.MunicipalBorrowing ................. 73 Knupp,Kodak&IngramP.C.
GeorgeM.AmanIII P.O.Box11848
High,Swartz,Roberts&Seidel 407NorthFrontStreet
40EastAiryStreet Harrisburg,PA17108
Norristown,PA19404 717-238-7151
610-275-0700 [email protected]
[email protected]
XXI. MunicipalAuthorities .............. 118
XV. EminentDomain .................... 78 GeorgeM.AmanIII
MarcS.Drier,Esquire High,Swartz,Roberts&Seidel
Drier&DieterLawOffices 40EastAiryStreet
227AlleghenyStreet Norristown,PA19404
JerseyShore,PA17740 610-275-0700
570-398-2020 [email protected]
XXII.ThePlanningCommissionand XXVIII.MunicipalSolidWaste
TheComprehensivePlan............. 126 andRecycling ...................... 156
DavidR.Getz,Esquire RobertL.Collings
Wix,Wenger&Weidner SchnaderHarrisonSegal&LewisLLP
508NorthSecondStreet Suite3600,1600MarketStreet
Harrisburg,PA17108-0845 Philadelphia,PA19103-7286
717-234-4182 215-751-2074
[email protected] [email protected]
XXIII.Zoning ........................... 130 XXIX.StormwaterManagement............ 161
JohnL.Hall RobertL.Collings
Unruh,Turner,Burke&Frees,P.C. SchnaderHarrisonSegal&LewisLLP
17WestGayStreet Suite3600,1600MarketStreet
P.O.Box515 Philadelphia,PA19103-7286
WestChester,PA19381-0515 215-751-2074
[phone] [email protected]
[email protected]
XXX.MunicipalWaterSupply ............ 167
XXIV.Reserved MarkE.Goldberg(deceased)
Revisedforthe3rdeditionby:
XXV.ZoningHearingBoards .............. 134
GeorgeM.AmanIIIandKennethR.Myers
HarryL.McNeal,Jr.,Attorney-at-Law
High,Swartz,Roberts&Seidel
34EastPrincessStreet
40EastAiryStreet
York,PA17403
Norristown,PA 19404
717-848-1308
610-275-0700
[email protected]
[email protected]
XXVI.SubdivisionandLandDevelopment
[email protected]
Ordinances ........................ 145
XXXI.PennsylvaniaRoadLaw
JamesH.Roberts
andRelatedIssues .................. 172
EckertSeamansCherin&Mellott,LLC
JamesR.Mall
600GrantStreet,44thFloor
Meyer,Unkovic&Scott
Pittsburgh,PA15219
1300OliverBuilding
412-566-6000
Pittsburgh,PA15222
[email protected]
412-456-2832
XXVII.SewageFacilitiesPlanning
[email protected]
AndOn-LotSewageDisposal ......... 151
XXXII.LandRecycling:Pennsylvania’s
JoseleCleary
VoluntaryCleanupStatute ........... 179
Morgan,Hallgren,Crosswell&Kane
RobertL.Collings
P.O.Box4686
SchnaderHarrisonSegal&LewisLLP
Lancaster,PA17604
Suite3600,1600MarketStreet
717-299-5251
Philadelphia,PA19103-7286
215-751-2074
[email protected].

I. Municipal Codes and Other Enabling Statutes;
Home Rule
BlakeC.Marles
Stevens&Lee
190BrodheadRoad,Suite200
P.O.Box20830
LehighValley,PA18002-0830
610-997-5060
[email protected]
Inevery respect,municipalentitiesinPennsylvaniaarecreaturesofstatute. ThePennsylvaniaConstitution
empowersthestatelegislaturetoclassify counties,cities,boroughsandtownshipsby population1andrequires
ittoprovideforlocalgovernments“by generallaw.”2 Themannerinwhichthelegislaturehasfulfilledthose
dutiesformsthebasisforthelocalgovernmentstructureswithwhichwearefamiliar.
Dillon’s Rule
Justasthemunicipalitiesarecreaturesofstatute,theirpowersarelimitedby statute. Municipalgovernments
possessnosovereignpowerorauthority,andexistprincipally toactastrusteesfortheinhabitantsoftheterri-
tory they encompass.3 Theirlimitedpowerandauthority iswholly withinthecontrolofthelegislature,which
hasthepowertomoldthem,altertheirpowersorevenabolishtheirindividualcorporateexistences. The
clearestjudicialstatementofthelimitationsstatutorily imposedonmunicipalitiesisknownasDillon'sRule,
andisderivedfromanearly municipalhornbookentitled DillononMunicipalCorporations. Theruleisoften
expressedasfollows:
Nothingisbettersettledthanthatamunicipality doesnotpossessandcannotexerciseany otherthanthe
followingpowers:1)thosegrantedinexpresswords;2)thosenecessarily orfairly impliedinorincidenttothe
powersexpressly granted;and3)thoseessentialtothedeclaredobjectsandpurposesofthecorporation,not
simply convenientbutindispensable. Any fair,reasonabledoubtastotheexistenceofpowerisresolvedby the
courtsagainstthecorporationandthereforedenied.4
TheclearstatementofDillon'sRulesustainedgenerationsofmunicipallawyers,lendingcertainty totheadvice
they gavetoclients.
General Powers Clauses
Contemporary solicitorsfindsuchcertainty difficultforseveralreasons. First,theGeneralAssembly has,in
thelatterpartofthiscentury,enactedmunicipalcodeprovisionswithexpansivelanguagenoteasily interpreted
usingaDillon-typeanalysis. Forexample,allmunicipalcodesnowcontain“generalpowers”language
allowingmunicipalities:
Tomakeandadoptallsuchordinances,by-laws,rulesandregulationsnotinconsistentwithorrestrainedby
theConstitutionandlawsofthisCommonwealth,asmay bedeemedexpedientornecessary fortheproper
management,careandcontrolofthe[municipality]anditsfinances,andthemaintenanceofpeace,good
governmentandwelfareofthe[municipality]anditstrade,commerceandmanufacturers.5
1
Howdoesonereconcilethelegislature'sdeterminationthatallmunicipalitiesshouldbeabletoaccomplishnot
only whatisnecessary,butalsowhatisexpedient,withDillon'schargethatmunicipalitiesshouldbedenied
powersthatare“simply convenient”ifthosepowersaren'tindispensable?
Somecommentatorssuggestthattheseadditionstothevariousmunicipalcodeshaveimpliedly repealed
Dillon'sRule,6 butthePennsylvaniacourtshavenotgenerally adoptedthatreasoning.7
Home Rule Law
Asecond,morefrontalassaultagainstDillon'sRulelimitationsfindssubstanceina1968amendmenttothe
PennsylvaniaConstitution,whichauthorizesmunicipalitiestoadopthomerulecharters.8 Thisamendment
expressly allowsahomerulechartermunicipality to“exerciseany powerorperformany functionnotdenied
by [the]Constitution,by itshomerulecharterorby theGeneralAssembly atany time.” Obviously,ahome
rulecharterturnsDillon'sRuleonitshead. Questionsconcerningpowerandauthority aretoberesolvedin
favorofahomerulemunicipality,whilethehistoricpresumptionisagainstallothermunicipalitiespossessing
suchpowerandauthority.
The1968HomeRuleAmendmenttotheConstitutionwasfinally embodiedinlegislationwiththe1972
passageoftheHomeRuleCharterandOptionalPlansLaw,9 astatutewhichbothestablishesamechanismfor
thecreationofeitheraHomeRuleCharteroranOptionalPlanforeachmunicipality,andsetsforthlimitations
uponthepowerofmunicipalitieswhichchoosetoadoptaCharterorOptionalPlan.10
Thethirty-plusyearssincethepassageoftheHomeRuleCharterandOptionalPlansLawhavenotbeensuffi-
cienttodevelopalargebody ofcaselawconcerningHomeRuleandOptionalPlanCommunities. Whatis
apparent,however,istheCourts'ambivalenceindecidingwhethertoimposegreaterliabilitiesandresponsibil-
itiesuponthosemunicipalitieswhoopttoexercisegreaterpowerandauthority.11
Municipal Codes
Allmunicipalities(otherthanthoseadoptingHomeRuleChartersorOptionalPlans)followrulesandproce-
duressetforthinthevariousmunicipalcodes.12 AlthoughtheseCodesdonotcreateahierarchy amongthe
variousclassesofmunicipalities,13 neitherdothey createany degreeofconformity.14 Theuniqueprovisions
ofeachcodewerecraftedtomeettheparticularhistoricalneedsofthetypeofcommunity itaddresses,anda
municipallawyeropinestohisclientathisperilifhefailstoassurethatheisdealingwiththepropercode.
Imaginetheembarrassmentofasolicitortoasecondclasstownshipwho,baseduponhisclearrecollectionof
theBoroughCode,suggeststhathisclient'sgoverningbody canapproveamunicipalequipmentpurchaseafter
ithasalready beenconsummated. Whileaboroughcouncilisstatutorily empoweredtograntsuchretrospec-
tiveapprovals,15 aboardofsupervisorscouldbesurchargedforthevery sameaction.16
Other Statutes
Unfortunately,athoroughknowledgeofthemunicipalcodesthemselvesisseldomsufficienttorendercompe-
tentadvice,asmany otherPennsylvaniastatutessubstantively impactmunicipalaffairs. Forexample,thereis
anadditionalbody ofstatutesgenerally codifiedintoageneralmunicipallawfoundat53P.S.§§101through
11400and§§54101through54251whichgreatly impactstheauthority ofamunicipality tooperate,and
regulatesmany oftheprocedurestowhichitmustadhere. Many oftheseprovisionswillbediscussedinthe
chapterswhichfollow,andtheirimpactispervasive,regulatingsuchthingsasthenatureandlimitationsupon
debtwhichcanbeincurred,17 establishingproceduraldueprocessguidelines,18 creatingmunicipalclaimsand
liensprocedures,19 impactingroadway activities,20 regulatinglanduseanddevelopment,21 andrequiring
recyclingofsolidwaste,22 tonamejustafew.
2