Council discusses switch to ‘second class’ city status

City officials have different views on whether to adopt a new government structure that, if approved, would lead to the addition of two more city council members and also result in more changes.

Columbus City Council discussed the pros, cons and requirements of adopting a “second class city” Tuesday. Mayor Jim Lienhoop said the city council will likely vote on the matter at its next two meetings, on June 21 and July 5. However, he added that if the council votes to adopt second class status, most of the changes won’t go into effect until 2024.

Columbus is currently a “third class city.”

At present, Indiana Code states that municipalities are designated by status and population as follows:Cities of 600,000 or more — First class cities

Cities of 35,000 to 599,999 — Second class cities

Cities of less than 35,000 — Third class cities

Other municipalities of any population — Towns

As of July 1, 2022, the minimum population for second class cities will be updated to 34,000 due to newly-approved legislation.

In Columbus’ case, the difference is irrelevant. According to census counts from STATS Indiana, the city had already attained a population of more than 39,000 by the year 2000, and its 2020 count was a little more than 50,000.

However, such increases do not automatically trigger a change in status. Indiana Code states that a third class city that accumulates a population of 34,000 remains at third class, unless the legislative body chooses to adopt second class city status. Likewise, a second class city that falls below 34,000 remains with that designation unless its legislative body chooses to adopt third class status. Counts are determined at each federal decennial census.

“If it is the wish of the council, it documents that decision by passing an ordinance stating that the city adopts Class 2 status pursuant to Indiana Code. The change would take effect at the end of the terms of currently elected officeholders. In our case, should council decide to make this change, it would be effective Jan. 1, 2024,” according to the proposal.

For second class cities, the legislative body is made up of nine total individuals — six members representing six districts and three at-large members. The council is now made up of five district representatives and two at-large.

All cities are required to review council district boundaries this year in consideration of the 2020 census. If council members chose to adopt second class status, creation of a sixth district would be included in the redistricting process.

City councils for second class cities choose a president and vice president from their members to preside over meetings. In third class cities, such as Columbus, the mayor presides at all city council meetings but may vote only if a tie needs to be broken. The council also has a president pro tempore who presides if the mayor is absent.

“In Class 2 cities, the mayor does not vote on issues before the council, even in the case of a tie,” the city’s memo stated. “In case of a tie, the issue is treated as if it failed as it did not receive sufficient votes to pass.”

Mayors in both second and third class cities have the option to veto council decisions, which in turn can be overridden by a 2/3 majority vote of the council.

The change in city status would affect other positions as well. State code specifies that while third class cities elect a clerk-treasurer, second class cities elect a clerk. Both positions fill the role of city clerk; however, the clerk-treasurer also serves as the city’s fiscal officer. In a second class city, the fiscal officer is a city controller appointed by the mayor.

There are also more minor changes that are required for second class cities — such as changing the official titles of the city’s legal counsel — and some optional changes, said city officials. Optional changes include splitting the Board of Works and Public Safety into two boards, creating a deputy mayor position, creating a department of health, creating a department of sanitation and creating a city court. However, city officials do not expect to institute these changes.

Councilman Tom Dell, D-at large, supported the move to second class status, saying that the city would “gain representation” through the addition of new council members. Council members Tim Shuffett, R-District 5 and Elaine Hilber,D- District 2 favored the move.

Councilman Frank Miller, R-District 4, was opposed. “For me, it’s just growing government,” he said. “It’s growing the cost of government. And I can appreciate what the mayor has shared with us about the optional changes, and the way it’s proposed here is ‘We don’t anticipate doing this.’ … That is this administration’s thought.”

However, future administrations could decide to enact these changes. Miller added that he sees no financial benefit to the change and questioned why this matter is being discussed now.

Dell said he would prefer to be proactive on making changes to help the city.

“I see this as our opportunity to set the community and this city on a new course, a new venture,” he said. “And I think we can plan that, or we can wait until something happens and we have to react to that. I’d much rather be in a position where we systematically plan. … I think we’re at a threshold now, with the budgets that we’re dealing with and the amount of money that we’re talking about, all of the things that this city does and needs to go forward doing and maybe improving upon, I think now is the time to do that.”

He added that while there will be costs, “No change is free.”

Lienhoop estimated that the cost of adding a city controller and two more council members would total about $150,000. According to city officials, the midpoint salary for the role of city engineer is $118,118, and a similar compensation level would be expected for the controller, subject to market conditions. Council members’ salaries are $15,079 each.

Councilwoman Grace Kestler, D-at large, asked Lienhoop if the other mayors he’d spoken with had given positive feedback about their second class status.

“100%,” he replied. “Nobody regretted the move.”

“I think it’s telling that so many other communities have had the opportunity to move to this, have taken the risk, per se, and found it successful,” said Kestler.

Councilman Dave Bush, R-District 3, expressed mixed feelings about the potential move and said he’s been considering the pros and cons. On the one hand, he believes that adding additional checks and balances to city government will likely foster more collaboration between officials.

“We’re fortunate enough as a city that we all collaborate very well right now,” said Bush. “I feel like we’ve got a very good working relationship across the board. But we’re not always going to have that luxury. Well, hopefully we do, but realistically we won’t. So to be proactive about it now probably makes some sense.”

He also felt that having a city controller for fiscal matters would be helpful, given the size of the city’s budget.

However, he also echoed some of Miller’s concerns in regards to cost and potential changes that could be made in the future.

“It’s a big decision,” said Bush, “I want to make sure we’re thinking through it.”