HomeMy WebLinkAbout07/20/1993, C-4 - REMOTE ACCESS TO THE CITY'S COMPUTER SYSTEMS AND PILOT PROGRAM FOR ELECTRONIC MAIL USE BY COUNCIL MEMBERS I��NII�RIII�IIIIIIIIII�II`IIII MEETING DATE:
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COUNCIL AGENDA REPORT ITEM NUMBER: �-
FROM: Diane Gladwell, City Clerk ,
William C. Statler, Director of Finance �
Prepared by: Lori Atwater, Information Syste or i
SUBJECT: REMOTE ACCESS TO THE CITY'S COMPUTER SYSTEMS AND
PILOT PROGRAM FOR ELECTRONIC MAIL USE BY COUNCIL
MEMBERS
CAO RECOMNENDATION
■ Adopt policy regarding remote access to the City's computer systems.
IN Approve six month pilot program for Council Member use of electronic mail.
■ Appropriate $4,500 from General Fund balances to implement remote access for
Council Members.
OVERVIEW
Since 1989, a computer for Council Member access to the City Hall local area network
(LAN) has been provided in the Council Office. Council Members use the computer for
word processing, planning and research purposes. Because Council Members do so much
of their work off-site,there has recently been an interest in providing Council Members with
remote access to the City Hall LAN.
In addition to raising questions concerning Council Member use of office automation
applications, this interest has raised a more basic need to address remote access in general.
Accordingly, the purpose of this report is threefold:
■ Address remote access in general
■ Address remote access by Council Members j
■ Address use of E-mail by Council Members
DISCUSSION
Background - Remote Access to the City's Computer Systems
Remote access to a computer system is the ability to use the computer system from a
different location using a modem. Generally, a modem is a communications device which
may be installed internally or externally to a personal computer (PC) which allows the PC
to send and receive data over telephone lines. The City also uses special high speed
modems to connect our LANs together over leased lines.
Currently, only Fire, Police and City Hall are using remote access to their LANs, but only
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COUNCIL AGENDA REPORT
for technical support purposes. With appropriate hardware and software set-ups, all of the
LAN's could have remote access to them. Each dial-in access requires one PC which is not
in use. Staff with the appropriate login name and password may "log-in" to a local area
network from any computer with a modem and compatible communications software. The
communications software has the ability to "dial-back" the computer user who requests
access to the network from a remote location. This provides security on each remote
session and allows City staff to track usage of the system. As noted above, remote access
is currently restricted solely to technical support of LANs; we do not have any
"telecommuting" or other on-going remote use to our LANs.
Modems are also used by City staff for access to computer systems outside of our networks.
Staff send notices and ads to the Telegram-Tribune, receive bank account information,
communicate with State and County agencies, and contact vendors.
Modem use within the City has grown to nearly 20 devices at different sites. Each dial-in
request requires one PC with a modem which is not in use. After hours, the impact is only
the cost of a modem. Because tying up a PC during regular work hours for modem
transmission is not a very efficient use of the City's computer resources, centrally managed
modems are recommended if the requests for dial-in access exceed 3 or 4 during work
hours.
One copy of the communications software is required for each person on the LAN who
wishes to dial-in/out. As the numbers increase, the complexities of support increase and
we will soon reach a point in City Hall where a centralized "modem pool" or
communications server is more cost effective and easier to manage. Communication servers
are available which use one PC but allow multiple dial-in/dial-out sessions and are
estimated to cost $10,000 - $12,000.
Existing Policies on Remote Access j
There are currently no written policies addressing remote access to the City's computer
systems: who should/should not have access, how security should be maintained, or what
the City's responsibilities are related to such access. The proposed policy for remote access
which addresses use by both staff and Council Members is provided in Attachment A.
Twenty cities similar to San Luis Obispo were contacted with questions about their use of
remote access and Council Member use of electronic mail. Eleven of these cities either use
remote access or electronic mail, and their practices are summarized in Attachment B. If
dial-in access is possible, most of these eleven cities allowed technical staff.to use remote
access as a means of enhancing support of their computer systems. None of these eleven
cities have formal policies on remote access for Council Members, although it is allowed in
four of the cities.
The League of California Cities has created a task force on telecommuting which is
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COUNCIL AGENDA REPORT
developing recommended policies for remote access to municipal information systems;when
this report is available, we will review its implications for our operation and return to
Council for changes in the remote access policy as appropriate.
E-mail Use By Council Members
Although interest in the use of e-mail by Council Members is understandable, there are
several concerns related to this, including:
■ Conforming to existing Council policy regarding staff/Council relations.
■ Ensuring equal access, information and communication for all Council Members.
■ Keeping the CAO informed.
■ Ensuring compliance with the Brown Act. Attachment C outlines legal issues related
to electronic mail use by Council Members which were raised during the Spring 1990
City Attorneys meeting.
■ Staff communication via E-mail being read or received timely by all Council
Members.
■ Fiscal and support constraints.
These and other concerns regarding the use of E-mail by Council Members are more fully
discussed in the attached memorandum from the CAO (Attachment D).
To address these concerns, a pilot program for Council Member E-mail is proposed
consisting of the following:
■ Training for all Council Members will be provided by the City Clerk's Office.
■ E-mail messages should only be sent to the CAO (for significant items) and to
Management Team members (for relatively simple information requests). E-mail
messages should not be sent to other Council Members or staff.
■ The pilot program will be evaluated six months after implementation.
CONCURRENCES
The City Attorney, Personnel Director, and MIS Steering Committee have reviewed this
report and concur with its recommendations.
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COUNCIL AGENDA REPORT
FISCAL IMPACT
Users will require an IBM-compatible PC with 640K RAM, DOS 3.1, communication
software and a modem for remote access to the City's computer systems. As noted in the
proposed remote access policy, the modem and communication software would be provided
by the City, but any additional costs associated with upgrading, maintaining, and supporting
any other resource needs would be the responsibility of the user. The City Clerk's Office
will be responsible for providing on-going training for Council Members on City applications
and remote access to the City Hall LAN.
To reliably implement this system, another computer will be required and dedicated to dial-
in access. This machine will allow only one dial-in at a time, and for this reason, instant
access to the LAN cannot be guaranteed since'the dedicated PC/modem may be in use
when dialed-in by the user. The initial cost of providing this resource to Council Members
and staff is:
Dedicated dial-in computer with communications software & modem $ 2,000
Communications software and external modem @ $500 each 2.500
TOTAL $ 47500
ATTACHMENTS
A. Policy on remote access to the City's computer systems.
B. Survey of remote access and Council Member use of e-mail by other cities.
C. Overview of legal issues associated with computerization of City Hall presented by
Joseph Lawrence at the 1990 Spring City Attorney's Meeting
D. Memorandum from the CAO outlining concerns with Council Member use of E-mail.
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ATTACHMENT "A"
REMOTE ACCESS TO THE CITY'S COMPUTER SYSTEMS
PURPOSE STATEMENT
Modem use to and from the City's computer systems should occur under guidelines that are
incorporated into the Management Information Systems policies and procedures. The remote
access policies outlined below are intended to establish a framework for the use of modems City-
wide.
LINK TO MANAGEMENT INFORMATION SYSTEMS POLICIES
The City is committed to a strategy of decentralized computing systems based on local area
network technology. Although decentralized, centralized support through the Information Systems
Division of the Finance. Department is provided for hardware, software and devices that are
integrated into each site local area network. Non-LAN data communications, including modems,
fall into the category of uses not supported by Information Systems. As such, purchase, installation,
maintenance and support of modems are the sole responsibility of the operating departments.
Under Management Information Systems guidelines, the City encourages the use of information
systems that are compatible and maximize the easy exchange of information between users and
departments, and minimise the duplication of data bases and maintenance efforts. Modems
installed in different locations for individual use should be minimized in the future. If growth of
these devices continues, a modem pool (communications server) should be installed as a local area
network resource which will allow many users to access the same modems using network
communication software. This device would be installed, maintained and supported by Information
Systems.
AUTHORIZED USE
Council Members and System Administrators are specifically authorized to have remote access to
the City's local area network. Access by other staff members requires the approval of the
Department Head and the concurrence of the System Administrator. Any significant use of remote
access for "telecommuting" must be approved by the CAO.
SECURITY
The following practices are intended to provide reasonable, but not absolute, safeguards against
unauthorized access to the City's computer systems:
Cor ummications Softwarr— All communications shall be conducted via "dial-back" communications
software. The caller list in the software contains the user login name, password and phone number
of authorized users. This ensures that the host is accessible only to remote users at the numbers
in the caller list. The communication software will "dial-back" to the authorized remote user who
has requested access to the system.
Passwords All users of the City's computer systems must be issued a login name and password.
The City standard login name is first initial and last name up to eight characters. Passwords are
a confidential sequence of letters and numbers. Because passwords are the key to system security,
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which becomes an even greater issue when remote access is provided, it is essential that they are
not disclosed or utilized by other persons. All passwords will be assigned by the System
Administrator and changed every six months. Disclosure of passwords (or the use of an
unauthorized one) may result in terminating access (remote or local) to the City's LANs, and
depending on the severity of the outcome of the disclosure, may result in disciplinary action,
including termination.
SUPPORT RESPONSIBILITIES
Information Systems Information Systems will establish standards for remote access communication
software and external modems to be used. Information Systems will also provide initial installation
of external modems and communication software for Council Members in their role as ,System
Administrators for City Hall LAN: Information Systems does not otherwise support remote access
to the City' computer systems.
System Admisdrtrators. Each site System Administrator is responsible for the training and technical
support required for use of remote access and for developing procedures for its use at their'site as
appropriate. System Administrators are also responsible for installing external modems and
configuring the communication software for remote access to their site's local area network.
Modems shall run at speeds of 9600 baud or higher. This speed will allow the transfer of
documents, text processing, and provide the best investment of funds. This approach should
provide reliable use of the City's standard application software such as WordPerfect, E-mail, and
Lotus; databases such as the Land Use Inventory will probably be too slow and are not
recommended for use via remote access. Printing to the network printer is available and
incorporated. into the user login name; printing to the home printer creates potential problems for
support and therefore, can not be guaranteed.
Departments Departments are responsible for the costs of purchasing modems and communication
software, and for approving employee access to the LAN. In the case of Council Members, the
City Clerk's Office is responsible for training and support for use of modems in accessing the City
Hall local area network as well as the use of standard City office applications.
USER RESPONSIBILITIES
Users who own a computer and are authorized to have remote access may dial-in to the City's local
area network. The minimum computer must be an IBM PC or compatible with 640K RAM and..
DOS 3.1. The remote user must coordinate with their site System Administrator' for the
installation of a City-owned modem and communication software. Any other costs associated with
installing remote access as well as the on-going maintenance, repairs, and upgrades of the remote
computer are the responsibility of the individual user. At the end of employment with the City (or
termination of remote access privileges), the communication software and external modem must
be returned to the City.
Each remote user will have the same level of access to programs and files as they would while on
site. As noted above, unauthorized access or improper system utilization may result in terminating
access (remote or local), and depending on the severity of the outcome of improper use, may result
in disciplinary action, including termination.
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Attachmen
1990 SPRING CITY ATTORNEYS MEETING
League of California Cities
Santa Barbara, California
Presentation by Joseph Lawrence
LEGAL ISSUES ASSOCIATED WITH COMPUTERIZATION OF CITY HALL
(1). Electronic Mail and Public Meetings Law.
A. Brown Act.
- All meetings of public bodies shall be open
and public (Government Code Section 54953) .
- Meeting not defined by Brown Act but
interpreted to connote not only collective
- discussion but also "collective acquisition
and exchange of facts preliminary to the
ultimate decision. " Meeting includes any
gathering where public-*s business is
transacted or discussed. Sacramento
Newspaper Guild v: Sacramento Bd. of
_ Supervisors, 263 Cal. App. 2d 41, 47-49, 69
Cal. Rptr. 480, 485 (1968) ; Stockton
Newspapers, Inc. v. Members of Redevelopment
Agency, 171 Cal. App. 3d 95, 100, 214 Cal.
Rptr. 561, 563 (1985) ; 63 Ops. Cal. Atty.
Gen. 820 (1980) ; 65 Ops. Cala Atty. Gen. 63
(1982) .
Meeting also includes "seriatum" sessions
where less. than entire legislative body are
present or contacted at any one time if
majority are eventually involved. 63 Ops.
Cal. Atty. Gen. 820 (1980)
- Meeting can occur via telephone. Stockton
Newspapers, Inc. v. Redevelopment Agency,
171 Cal. App. 3d 95, 214 Cal Rptr. 561
(1985) .
B.' Electronic Mail Can Easily Cross Over Into
Brown Act Concerns.
- Electronic mail can be used to provide
- "background" on issues.
Electronic mail can be used to
-.. .initiate
staff projects.
lem
Electronic mail can become instant
"conference call" whether intended or not
through use of "distribution lists" or
"cc's" or bcc's. "
Electronic mail exchanges are recorded and
become records providing evidence of Brown
Act compliance/violation. "Paper" trail
easily established.
C. Safeguards.
- Electronic mail messages should be written
as though, they could (and will) be made
public.
- Distribution of materials to each Council
member or commissioner, etc. should not be
automatic. Is there a need for every
decisionmaker to know beyond mere courtesy
or political protocol? Limit "cc's" and
,11;cc's" and other document forwarding
techniques.
Electronic mail should not become substitute
for public, noticed, discussion. Non-public
"conferencing" should be curtail ed/di scour-
aged. ....
D. Exemptions/Privileges.
- Standard exclusions:
* attorney-client
* litigation
* real estate transactions
* personnel
* labor negotiations
* license application
* national and public security
- Is there a practical, "good government"
exemption similar to one created for
conferences or training sessions?
- Instantaneous access to information
inherently at odds with Brown Act prior
notice requirements.
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Attachment
MEMORANDUM
July 9, 1993
To: City Council
From: John Dunn( G�
Subject: Staff recommendation regarding 'Remote Access to the Citv's
Computer Systems and Pilot Program for Electronic Mail Use
by Council Members"
The City of San Luis Obispo has long been characterized by informality and a free and easy
information exchange between the City government, the media and the public we serve, and
between the City Council and the staff members. Because of this tradition, and our
philosophy, I wholeheartedly endorse the staff recommendation to you on this subject.
However, at the risk of appearing to be a "latter day Luddite", I did want to express three
concerns which we should keep in mind for the longer term, as we recognize the need for
constant vigil to see that computer access and information exchange serves our intended
purposes as a municipal organization.
My three concerns come in the categories of(1) Council requests of staff, (2) security of the
system and (3) legal issues.
Council requests of the staff: My basic concern is that the two-way information and flow,
encouraged and facilitated by computer processing methodology, be consistent with the
Charter-established form of government,the Mayor-City Council-City Administrative Officer
system, and that the same processes and protocols that are called for under the Charter and
under the City Council policies, specifically the policy on Council/staff relationships be
adhered to. Within Exhibit A of Chapter 1.24 is point number 2, as follows:
2. Insure Council Members free access to and flow of any information
relative to the running of the City and to insure that such information is
communicated by staff in full and with candor to those requesting it.
While that is certainly the objective of the system under discussion,we also want to see that
points 3 and 4, as follows, are observed:
3. Avoid intrusion by individual Council Members into those areas which
should be the responsibility of staff and to prohibit intervention by individual
Council Members in staff decision-making, the making of staff
recommendations, scheduling of work, and executing department priorities
without the prior knowledge and approval of the City Council as a whole.
4. Protect staff from undue influence and pressure from individual Council
Members, and to allow staff to execute priorities given by management and
the Council as whole without fear of reprisal.
Security of the s sy tem: While the staff report speaks to the subject, and I will add little
more, I do want to state the up-front observation that there is a great deal of information
the City's computer system which needs protection and preservation, and which must be
handled in a way consistent with State law and the City's own policies and procedures. In
brief, we do not want to violate confidential information, nor see that any of our data bases
are destroyed or contaminated nor have any City information used for personal rather than
City benefit, nor have certain types of information used by unauthorized personnel.
What I have stated above is directed to all users of the City computer system and the City
information base.
Legal issues: In reviewing the paper, Legal Issues Associated With Computerization, there
are several points discussed by the author which are appropriate reminders to us that
relatively easy access and information exchange is to be used consistent with the Brown Act
and other applicable law. The City Attorney is prepared to speak to these matters in
greater detail. The Legal Issues paper serves as a reminder as we expand into a system of
greater and easier access to the City's computer and E-mail system.
While I do not expect that any of the possible problems noted above will actually happen,
we must remember that policies adopted today are likely to be in place for many years, and
through many different City Councils. Therefore, it is important that any new policies are
clear and continue to support practices established over the years to protect the City
Council, staff, and ultimately the public. Thank you for bearing with me as I express my
concerns and reminders to all of us.
JD:mc
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