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309 comment: See G.S. 143-318.13(b). Rule 24. Action by Reference. The board shall not deliberate, vote, or otherwise act on any matter by reference to an agenda or document number unless copies of the agenda or documents being referenced are available for public inspection at the meeting and are so worded that people at the meeting can understand what is being discussed or acted on. comment, see G.S. 143-318.13(c). Rule 25. Introduction of Ordinances, Resolutions, and Orders. A proposed ordinance shall be deemed introduced at the first meeting where it is on the agenda, or added to the agenda by a majority vote of the board, regardless of whether it is actually considered by the board, and its introduction shall be recorded in the minutes. comment: G.S. 153A-45 provides that an ordinance may not be finally adopted at the meeting where it is introduced except by unanimous vote; the definition of introduction therefore is important because it makes a difference in the number of votes required to adopt an ordinance. No North Carolina judicial decisions have addressed the question of when an ordinance is considered to have been introduced. This rule assumes that a measure is introduced when it has been formally presented to the board through an agenda that has been approved by the chair or by an item added to the agenda by a majority vote of the board. An alternative would be to consider introduction to have taken place only when the board begins to consider the measure, in which case this rule should be revised to read as follows: "A proposed ordinance shall be deemed introduced at the first meeting where it is actually considered by the board." Rule 26. Adoption, Amendment, or Repeal of Ordinances. To be adopted at the meeting where it is first introduced, an ordinance or an action with the effect of an ordinance, or any ordinance amended or repealing an existing ordinance (except the budget ordinance, a bond order, or another ordinance requiring a public hearing before adoption) must be approved by all members of the board of commissioners. If the proposed measure is approved by a m~jority but not by all the members of the board, or if the measure is not voted on at that meeting where introduced, it shall be considered at the next regular meeting of the board. If the proposal receives a majority of the votes cast at the next meeting or at any time thereafter within one hundred (100) days of being introduced, it is adopted. comment: see G.S. 153A-45. See also G.S 153A-46 for requirements for granting franchises. Rule 27. Quorum. A majority of the board membership shall constitute a quorum. The number required for a quorum is not affected by vacancies. If a member has withdrawn from a meeting without being excused by majority vote of the remaining members, he or she shall be counted as present for the purposes of determining whether a quorum is present. The board may compel the attendance of an absent member by ordering the sheriff to take the member into custody. comment: see G.S. 153-43. Compelling the attendance of a member by ordering the sheriff to take him or her into custody is an extraordinary remedy to be used when a member obstinately refuses to attend meetings, for the purpose of preventing action on a proposal. If the board contemplates using this power, it might wisely give absent members notice that their attendance is required by the majority and may be compelled in this manner. Rule 28. Public Hearings. Public hearings required by law or deemed advisable by the board shall be scheduled and notice given in accordance with the procedures set forth by the North Carolina General Statutes, including the subject, date, place, and time of the hearing. Prior to the beginning of the public hearing, the chair may set any rules regarding the length of time allotted to each speaker, designating representatives to speak for large groups, and other such rules he feels reasonable to conduct the hearing. At the appointed time, the chair shall call the hearing to order and preside over it. When the allotted time expires, the chair shall declare the hearing ended and the board shall resume the regular order of business. comment: G.S. 153A-52 provides that public hearing may be held anywhere within the county and gives the board authority to adopt rules governing the hearings. Rule 29. Quorum at Public Hearings. A quorum of the board must be present at all public hearings required by law. comment: G.S. 153A-52 implies that a quorum of governing board members is necessary for a public hearing by providing that a hearing shall be deferred to the next regular meeting if a quorum is not present at the originally scheduled time. However, if the board decided to hold a public hearing not required by law to gather a consensus of public opinion on an issue, the hearing could be held at several different sites, with a few members at each site. Rule 30. Minutes. Minutes shall be kept of all board meetings. comment: see G.S. 143-318.10(d) and the discussion of minutes (pages 48-49) in Bonnie E. Davis' , Handbook for North Carolina County Commissioners (second edition, revised by Joseph S. Ferrell, Institute of Government, 1985). G.S. 143-