An independent investigator concluded Thursday that Palm Coast Mayor Mike Norris exhibited a pattern of “inappropriate conduct and unprofessional behavior” that undermined the city’s council-manager form of government and created a hostile work environment, and that he exceeded his powers under the city charter by seeking resignations of senior staff.

The finding came as outside investigator Adam Brandon of the law firm Lawson Hunt Gonzales presented a written report to the Palm Coast City Council after interviewing city employees, council members and other witnesses. Brandon read his conclusion aloud: “These findings reveal a pattern of inappropriate conduct and unprofessional behavior by Mayor Mike Norris that undermines the city’s council-manager form of government and creates a hostile work environment for city employees.”

Brandon told the council his recommendations include referring the matter to the Florida Commission on Ethics for further legal review, initiating formal censure proceedings, strengthening enforcement mechanisms in the city charter and hiring a permanent city manager. He also recommended workplace training on the charter, the Sunshine Law and ethics rules and that the city monitor retaliation against employees who gave statements.

Brandon said his team interviewed people who were present for a March conversation in which the mayor told the acting city manager and the chief of staff that he had “lost confidence in both of you” and asked for their resignations. Brandon wrote that request, which the mayor provided in a text he had prepared and read, and concluded that a single council member’s demand for resignations constituted interference with operational personnel decisions reserved to the manager under the charter.

Mayor Mike Norris disputed parts of the report during the meeting and described his intent as seeking accountability for long-standing operational problems in city departments. Norris told the council and residents that he had sought answers about utilities and development approvals and said he had apologized when he believed it was warranted.

Council action: Vice Mayor Teresa Pontieri moved to add the report to the council’s May 6 (Tuesday) agenda and to delay sending any complaint to the Florida Commission on Ethics until after that meeting; the motion passed unanimously. Council members also agreed by consensus to ask the investigator to obtain sworn statements from witnesses who had already provided written statements.

A separate motion to hold a closed-door special meeting within 24 hours to discuss witness statements was proposed by Mayor Norris but failed. A later motion to send a letter to the governor seeking removal of the mayor for malfeasance failed for lack of support and on a subsequent recorded vote.

Brandon emphasized the distinction between this administrative inquiry and a criminal investigation: statements were not given under oath during his review, though he said he circulated summaries back to each witness for confirmation and that most confirmed their accounts. Brandon told the council that many employees who spoke to him expressed fear of retaliation and that restoring staff trust would require a permanent manager who has the council’s full confidence.

City Attorney Marcus Duffy advised the council on legal constraints including the Sunshine Law and confidentiality provisions; he told members he would advise further about whether and how material in complainants’ filings should be redacted before referral. Human Resources Director Renina Fuller described HR’s handling of earlier complaints and told the council some complainants asked not to pursue the matter further at the time they filed, which affected how HR had handled those initial reports.

The council did not adopt Brandon’s recommendations at the meeting but voted to put the matter on the next regular agenda for fuller consideration and agreed to collect sworn statements before making additional formal referrals.

What’s next: The council directed staff and counsel to prepare materials for the May 6 meeting, including a draft referral and any recommended charter or policy changes to consider. Brandon’s report remains with the council pending any legal review and the sworn statements the investigator will seek.