The clerk should COMPILE the agenda but (and I accept that many forms of Standing Orders actually do state the Clerk has final say on agenda) it is NOT for the clerk to dictate to council what business should be transacted. By all means, a check for appropriateness, validity, accuracy of the proposed motion and that it is properly formatted etc.... But NOT to decide / dictate the order of business. People are too easily convinced that the clerk is in 'authority' rather than an employee tasked with SUPPORTING the elected body.