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metropolitan governmental units should determine what constitutes a "major decision" for the purposes of economic interest disclosure. See Ethical Practices Board Advisory Opinion No. 108 (March 8, 1991) (a level of authority to make or to recommend major decisions regarding expenditures and investments of public funds probably resides in department heads or deputy department heads, but the local unit of government should determine for itself which employees meet the definition of "local official "); Ethical Practices Board Advisory Opinion No. 111 (June 6, 1991) (a unit of local government should determine which employees in its organizational structure meet the definition of "local official "' the local unit of government should determine what constitutes a "major decision "). 19. See Minn. Stat. § 10A.07, subd. 1 (1990) (referring to officials who are required to take an action or make a decision "in the discharge of official duties "). Cf. Metropolitan Council Personnel Code § 11.14(a) (Feb. 22, 1989) (the code prohibits use or attempted use of a Council employee's "official position" to secure inappropriate benefits, privileges, or advantages); Minn. Stat. § 43A.38, subd. 5(a) (1990) (conflict provisions governing state employees in the executive branch prohibit an employee from using or attempting to use "the employee's official position to secure benefits, privileges, exemptions or advantages for the employee or the employee's immediate family or an organization with which the employee is associated which are different from those available to the general public "). 20. The incompatibility of office doctrine usually applies to situations in which one individual simultaneously holds two public offices. Public offices are incompatible when their functions are inconsistent, their performance resulting in antagonism and a conflict of duty, so that the incumbent of one can not discharge with fidelity and propriety the duties of both. State ex rel. Hilton v. Sword, 157 Minn. 263, 196 N.W. 467, 467 (1923). Cf. Minn. Stat. § 473.141, subd. 4 (1990) (members of each metropolitan agency "shall not during a term of office hold the office of metropolitan council member, or be a member of another metropolitan agency, * * * the metropolitan airports commission or the metropolitan sports facilities commission or hold any judicial office "). 21. Cf. St. Cloud Newspapers, Inc. v. District 742 Community Schools, 332 N.W.2d 1, 6 (Minn. 1983) (the court concluded the state's open meeting laws applied to "meetings" that involved matters "which could foreseeably require final action" by the governing body and meetings "at which information is received which may influence later decisions" by public bodies). 22. The Council requires its advisory committees to adopt bylaws which include a specific conflict of interest provision. Advisory committee bylaws are subject to Council approval. See Bylaws of the Metropolitan Council, art. III, § C.3. (June 1990) (advisory committee bylaws and operating procedures). 23. The term "substantially" generally means "materially" or "in a substantial manner." See Black's Law Dictionary 1281 (5th ed. 1979). "'Substantial' as an adjective means something worth while as distinguished from something without value, or merely nominal. In its ordinary parlance 'substantially benefited' in a contract would mean some worthwhile advantage, profit, or good? In re Krause's Estate, 173 Wash. 1, 21 P.2d 268, 270 (1933) (citations omitted). 24. Minn. R. 4515.0100, subp. 5 (1991). - 14 -