Council-Manager Form of Government

Q: What is the council-manager form, which is used in so many local governments?
A: The council-manager form is the system of local government that combines the strong political leadership of elected officials in the form of a council or other governing body, with the strong managerial experience of an appointed local government manager. The form establishes a representative system where all power is concentrated in the elected council and where the council hires a professionally trained manager to oversee the delivery of public services.

Q: Is it a responsive form of government?
A: In council-manager government, council members are the leaders and policy makers elected to represent various segments of the community and to concentrate on policy issues that are responsive to citizens’ needs and wishes. The manager is appointed by council to carry out policy and ensure that the entire community is being served. If the manager is not responsive to the council’s wishes, the council has authority to terminate the manager at any time. In that sense, a manager’s responsiveness is tested daily.

Q: What is the council’s function?
A: The council is the legislative body; its members are the community’s decision makers. Power is centralized in the elected council, which approves the budget and determines the tax rate, for example. The council also focuses on the community’s goals, major projects, and such long-term considerations as community growth, land use development, capital improvement plans, capital financing, and strategic planning. The council hires a professional manager to carry out the administrative responsibilities and supervises the manager’s performance.

Q: What is the manager’s function?
A: The manager is hired to serve the council and the community and to bring to the local government the benefits of training and experience in administering local government projects and programs on behalf of the governing body. The manager prepares a budget for the council’s consideration; recruits, hires, and supervises the government’s staff; serves as the council’s chief adviser; and carries out the council’s policies. Council members and citizens count on the manager to provide complete and objective information, pros and cons of alternatives, and long-term consequences.

Q: What is the cost to the local government of appointing a professional manager?
A: Local governments have found that overall costs actually have been reduced with competent management. Savings come in the form of reduced operating costs, increased efficiency and productivity, improved revenue collection, or effective use of technology.

Q: Does the manager participate in policy determination?
A: The manager makes policy recommendations to the council, but the council may or may not adopt them and may modify the recommendations. The manager is bound by whatever action the council takes.

Q: Where does the mayor fit in?
A: Mayors in council-manager communities (or chairpersons in counties) are key political leaders and policy developers. In the case of the council, the mayor is responsible for soliciting citizen views in forming these policies and interpreting them to the public. The mayor presides at council meetings, serves as a spokesperson for the community, facilitates communication and understanding between elected and appointed officials, assists the council in setting goals and advocating policy decisions, and serves as a promoter and defender of the community. In addition, the mayor serves as a key representative in intergovernmental relations. The mayor, council, and manager constitute a policy-development and management team.

Q: Are all council-manager governments structured the same way?
A: No. One of its most attractive features is that the council-manager form is adaptable to local conditions and preferences. For example, some communities have councils that are elected at large while other councils are elected by district. Some local governments have mayors who are elected by the voters at large; others are elected by their colleagues on the council.

Q: Is this form of government used only in certain kinds of cities?
A: No. In fact, it is not restricted to cities. It is used by counties too. Currently, 3,625 cities operate under this form. Additionally, 529 counties indicate that they operate under the county administrator form. They vary greatly in size and characteristics, including independent cities, center cities, suburbs, and counties.

Q: How many Americans live in communities that operate under council-manager government?
A: More than 75.5 million.

Q: Is the form popular in large communities?
A: Yes. Out of 199 cities with greater than 100,000 citizens, 112 use this form of government. Some examples are Phoenix; San Diego; Dallas; Cincinnati; San Antonio; Kansas City, Missouri; and Mecklenburg County, North Carolina.

Q: How much citizen participation is possible under council-manager government?
A: Successful examples of citizen participation in the local government service delivery decision-making process are widespread among professionally managed U.S. communities. Because professional local government management offers government of the people, by the people, and for the people, it sets the stage for citizen activism by encouraging open communication between citizens and their government. Examples range from visioning, in which citizens play a major role in determining the future of their community, to neighborhood service delivery, which involves residents through the development of citizen/government partnerships, to community-oriented local government services. Because political power is concentrated in the entire governing body rather than one elected official, more citizens have an opportunity to be elected to a position in which they have significant influence over the future of their community.

Q: What is the history of the council-manager form?
A: Born out of the turn-of-the-century progressive reform movement, the council-manager system of local government is one of the few original American contributions to political theory. In 1908, Staunton, Virginia, instituted the first position legally defining, by ordinance, the broad authority and responsibility associated with today’s professional local government manager. Sumter, South Carolina, was the first city to adopt a charter incorporating the basic principles of council-manager government in 1912. Westmount, Quebec, introduced the form to Canada in 1913. The first large city to adopt the plan was Dayton, Ohio, in 1914. The first counties to adopt it in the l930s were Arlington County, Virginia, and Durham County and Robeson County, North Carolina. Since its establishment, the council-manager form has become the most popular form of government in the United States in communities with populations of 5,000 or greater. The form also is popular in Canada, Australia, the Netherlands, New Zealand, the United Kingdom, and Honduras, Chile, and Brazil. For more than 85 years, council-manager government has responded to the changing needs of citizens and their communities.

Q: How can a community adopt this form of government?
A: Methods vary, but most communities can adopt council-manager government through a charter, a local ordinance, or a state enabling law. In many cases, adoption must be by vote of the local governing body. For information on how your community can adopt council-manager government, contact your state municipal league or association of counties. You can find the addresses of these organizations in The Municipal Year Book at your local library.

Q: How is the manager selected?
A: The vacancy usually is announced in the ICMA Newsletter, and managers, assistants, and others who are interested apply directly to the council. The council conducts a search for candidates, often by inviting managers in other communities to apply if they are interested. ICMA makes no recommendations regarding candidates. Further information is available in the handbook Recruitment Guidelines for Selecting a Local Government Administrator, published by ICMA.

Q: Does the manager have to be a local resident at the time the appointment is made?
A: No. Local residence should not be required in the appointment of a manager. Managers are professionals who might serve several communities during their careers, bringing extensive experience coordinating public services and applying management techniques to a community.

Q: What salary does the manager receive?
A: Earnings of managers depend on their educational background and experience, the size and complexity of the local governments employing them, and the economic conditions of the regions where communities are located. The council sets the manager’s salary. Detailed information on salaries is compiled annually by ICMA and is available on request.

Q: Can the manager be fired?
A: Managers serve at the pleasure of the council or governing body. They can be fired by a majority of the council, consistent with local laws, ordinances, or employment agreements they may have with the council. Control is always in the hands of the elected representatives of the people.

Q: Where do managers get their prior experience?
A: Nearly 73 percent of managers surveyed by ICMA have a master’s or professional degree. Respondents indicated that they had spent an average of 10 years as a local government manager.

Q: Do managers participate in local politics?
A: All managers who belong to ICMA are bound by its Code of Ethics, which states that every member of the Association shall "refrain from participation in the election of the members of the employing legislative body, and from all partisan political activities which would impair performance as a professional administrator."

Q: What else does ICMA’s Code of Ethics cover?
A: The Code specifies 12 ethical principles of personal and professional conduct, including dedication to the cause of good government. ICMA members believe in the effectiveness of representative democracy and the value of government services provided equitably to citizens within a community. ICMA members also are committed to standards of honesty and integrity more vigorous than those required by the law. Contact ICMA for a copy of the Code of Ethics.

Q: What is ICMA?
A: In 1914, a group of appointed managers formed a professional association, eventually known as the International City/County Management Association (ICMA), to share their expertise and experiences in local government management. Since that time, ICMA has been the professional organization for appointed chief management executives in local government. The purposes of ICMA are to enhance the quality of local government through professional management and to support and assist professional local government administrators internationally. To that end, the Association provides technical assistance and publications for local government professionals to help them improve their skills and increase their knowledge. ICMA also serves as a clearinghouse for the collection, analysis, and dissemination of information and data about local government. For further information on items referenced in this brochure, contact ICMA’s Office of Member Services, 202/962-3680.

Q: Is there another organization that supports council-manager government?
A: Yes, the National Civic League is a nonpartisan citizens organization founded in 1894. Its purpose is to serve as a clearinghouse for information on methods of improving state and local government; to encourage citizen participation in state and local government; and to provide guides, model charters, and laws on specific subjects. The League’s Model City Charter, now in its seventh edition, has endorsed council-manager government since 1915.

International City/County Management Association (ICMA) Code of Ethics With Guidelines

The ICMA Code of Ethics was adopted by the ICMA membership in 1924, and most recently amended by the membership in May 1998.  The Guidelines for the Code were adopted by the ICMA Executive Board in 1972, and most recently revised in September 2002.

 The mission of ICMA is to create excellence in local governance by developing and fostering professional local government management worldwide.  To further this mission, certain principles, as enforced by the Rules of Procedure, shall govern the conduct of every member of ICMA, who shall:

1.  Be dedicated to the concepts of effective and democratic local government by responsible elected officials and believe that professional general management is essential to the achievement of this objective.

2. Affirm the dignity and worth of the services rendered by government and maintain a constructive, creative, and practical attitude toward local government affairs and a deep sense of social responsibility as a trusted public servant.

Guideline

Advice to Officials of Other Local Governments.  When members advise and respond to inquiries from elected or appointed officials of other local governments, they should inform the administrators of those communities.

3.  Be dedicated to the highest ideals of honor and integrity in all public and personal relationships in order that the member may merit the respect and confidence of the elected officials, of other officials and employees, and of the public.

Guidelines

Public Confidence.  Members should conduct themselves so as to maintain public confidence in their profession, their local government, and in their performance of the public trust.

Impression of Influence.  Members should conduct their official and personal affairs in such a manner as to give the clear impression that they cannot be improperly influenced in the performance of their official duties.

Appointment Commitment.  Members who accept an appointment to a position should not fail to report for that position.  This does not preclude the possibility of a member considering several offers or seeking several positions at the same time, but once a bona fide offer of a position has been accepted, that commitment should be honored.  Oral acceptance of an employment offer is considered binding unless the employer makes fundamental changes in terms of employment.

Credentials.  An application for employment or for ICMA’s Voluntary Credentialing Program should be complete and accurate as to all pertinent details of education, experience, and personal history.  Members should recognize that both omissions and inaccuracies must be avoided.

Professional Respect.  Members seeking a management position should show professional respect for persons formerly holding the position or for others who might be applying for the same position.  Professional respect does not preclude honest differences of opinion; it does preclude attacking a person's motives or integrity in order to be appointed to a position.

Confidentiality.  Members should not discuss or divulge information with anyone about pending or completed ethics cases, except as specifically authorized by the Rules of Procedure for Enforcement of the Code of Ethics.

Seeking Employment.  Members should not seek employment for a position having an incumbent administrator who has not resigned or been officially informed that his or her services are to be terminated.

4.  Recognize that the chief function of local government at all times is to serve the best interests of all of the people.

Guideline

Length of Service.  A minimum of two years generally is considered necessary in order to render a professional service to the local government.  A short tenure should be the exception rather than a recurring experience.  However, under special circumstances, it may be in the best interests of the local government and the member to separate in a shorter time.  Examples of such circumstances would include refusal of the appointing authority to honor commitments concerning conditions of employment, a vote of no confidence in the member, or severe personal problems.  It is the responsibility of an applicant for a position to ascertain conditions of employment.  Inadequately determining terms of employment prior to arrival does not justify premature termination.

5.  Submit policy proposals to elected officials; provide them with facts and advice on matters of policy as a basis for making decisions and setting community goals; and uphold and implement local government policies adopted by elected officials.

Guideline

Conflicting Roles.  Members who serve multiple roles--working as both city attorney and city manager for the same community, for example--should avoid participating in matters that create the appearance of a conflict of interest.  They should disclose the potential conflict to the governing body so that other opinions may be solicited.

6. Recognize that elected representatives of the people are entitled to the credit for the establishment of local government policies; responsibility for policy execution rests with the members.

7. Refrain from all political activities which undermine public confidence in professional administrators.  Refrain from participation in the election of the members of the employing legislative body.

Guidelines

Elections of the Governing Body.  Members should maintain a reputation for serving equally and impartially all members of the governing body of the local government they serve, regardless of party.  To this end, they should not engage in active participation in the election campaign on behalf of or in opposition to candidates for the governing body.

Elections of Elected Executives.  Members should not engage in the election campaign of any candidate for mayor or elected county executive.

Running for Office.   Members shall not run for elected office or become involved in political activities related to running for elected office. They shall not seek political endorsements, financial contributions or engage in other campaign activities.

Elections.  Members share with their fellow citizens the right and responsibility to vote and to voice their opinion on public issues.  However, in order not to impair their effectiveness on behalf of the local governments they serve, they shall not participate in political activities to support the candidacy of individuals running for any city, county, special district, school, state or federal offices.  Specifically, they shall not endorse candidates, make financial contributions, sign or circulate petitions, or participate in fund-raising activities for individuals seeking or holding elected office. 

Elections in the Council-Manager Plan.  Members may assist in preparing and presenting materials that explain the council-manager form of government to the public prior to an election on the use of the plan.  If assistance is required by another community, members may respond.  All activities regarding ballot issues should be conducted within local regulations and in a professional manner.

Presentation of Issues.  Members may assist the governing body in presenting issues involved in referenda such as bond issues, annexations, and similar matters.

8.  Make it a duty continually to improve the member's professional ability and to develop the competence of associates in the use of management techniques.

Guidelines

Self-Assessment.  Each member should assess his or her professional skills and abilities on a periodic basis.

Professional Development.  Each member should commit at least 40 hours per year to professional development activities that are based on the practices identified by the members of ICMA.

9. Keep the community informed on local government affairs; encourage communication between the citizens and all local government officers; emphasize friendly and courteous service to the public; and seek to improve the quality and image of public service.

10.        Resist any encroachment on professional responsibilities, believing the member should be free to carry out official policies without interference, and handle each problem without discrimination on the basis of principle and justice.

Guideline

Information Sharing.  The member should openly share information with the governing body while diligently carrying out the member's responsibilities as set forth in the charter or enabling legislation.

11.  Handle all matters of personnel on the basis of merit so that fairness and impartiality govern a member's decisions, pertaining to appointments, pay adjustments, promotions, and discipline.

Guideline

Equal Opportunity.  Members should develop a positive program that will ensure meaningful employment opportunities for all segments of the community.  All programs, practices, and operations should:  (1) provide equality of opportunity in employment for all persons; (2) prohibit discrimination because of race, color, religion, sex, national origin, political affiliation, physical handicaps, age, or marital status; and (3) promote continuing programs of affirmative action at every level within the organization.

It should be the members' personal and professional responsibility to actively recruit and hire minorities and women to serve on professional staffs throughout their organizations.

12.  Seek no favor; believe that personal aggrandizement or profit secured by confidential information or by misuse of public time is dishonest.

Guidelines

Gifts.  Members should not directly or indirectly solicit any gift or accept or receive any gift--whether it be money, services, loan, travel, entertainment, hospitality, promise, or any other form--under the following circumstances:  (1) it could be reasonably inferred or expected that the gift was intended to influence them in the performance of their official duties; or (2) the gift was intended to serve as a reward for any official action on their part.

It is important that the prohibition of unsolicited gifts be limited to circumstances related to improper influence.  In de minimus situations, such as meal checks, some modest maximum dollar value should be determined by the member as a guideline.  The guideline is not intended to isolate members from normal social practices where gifts among friends, associates, and relatives are appropriate for certain occasions.

Investments in Conflict with Official Duties.  Member should not invest or hold any investment, directly or indirectly, in any financial business, commercial, or other private transaction that creates a conflict with their official duties.

In the case of real estate, the potential use of confidential information and knowledge to further a member's personal interest requires special consideration.  This guideline recognizes that members' official actions and decisions can be influenced if there is a conflict with personal investments.  Purchases and sales which might be interpreted as speculation for quick profit ought to be avoided (see the guideline on "Confidential Information"). 

Because personal investments may prejudice or may appear to influence official actions and decisions, members may, in concert with their governing body, provide for disclosure of such investments prior to accepting their position as local government administrator or prior to any official action by the governing body that may affect such investments.

Personal Relationships.  Member should disclose any personal relationship to the governing body in any instance where there could be the appearance of a conflict of interest.  For example, if the manager's spouse works for a developer doing business with the local government, that fact should be disclosed.

Confidential Information.  Members should not disclose to others, or use to further their personal interest, confidential information acquired by them in the course of their official duties.

Private Employment.  Members should not engage in, solicit, negotiate for, or promise to accept private employment, nor should they render services for private interests or conduct a private business when such employment, service, or business creates a conflict with or impairs the proper discharge of their official duties.

Teaching, lecturing, writing, or consulting are typical activities that may not involve conflict of interest, or impair the proper discharge of their official duties.  Prior notification of the appointing authority is appropriate in all cases of outside employment.

Representation. Members should not represent any outside interest before any agency, whether public or private, except with the authorization of or at the direction of the appointing authority they serve.

Endorsements.  Members should not endorse commercial products or services by agreeing to use their photograph, endorsement, or quotation in paid or other commercial advertisements, whether or not for compensation.  Members may, however, agree to endorse the following, provided they do not receive any compensation:  (1) books or other publications; (2) professional development or educational services provided by nonprofit membership organizations or recognized educational institutions; (3) products and/or services in which the local government has a direct economic interest.

Members' observations, opinions, and analyses of commercial products used or tested by their local governments are appropriate and useful to the profession when included as part of professional articles and reports.

International City/County Management Association (ICMA) Declaration of Ideals

The International City/County Management Association (ICMA) was founded with a commitment to the preservation of the values and integrity of representative local government and local democracy and a dedication to the promotion of efficient and effective management of public services. To fulfill the spirit of this commitment, ICMA works to maintain and enhance public trust and confidence in local government, to achieve equity and social justice, to affirm human dignity, and to improve the quality of life for the individual and the community. Members of ICMA dedicate themselves to the faithful stewardship of the public trust and embrace the following ideals of management excellence, seeking to:

1. Provide an environment that ensures the continued existence and effectiveness of representative local government and promotes the understanding that democracy confers privileges and responsibilities on each citizen.
2. Recognize the right of citizens to influence decisions that affect their well-being; advocate a forum for meaningful citizen participation and expression of the political process; and facilitate the clarification of community values and goals.
3. Respect the special character and individuality of each community while recognizing the interdependence of communities and promoting coordination and cooperation.
4. Seek balance in the policy formation process through the integration of the social, cultural, and physical characteristics of the community.
5. Promote a balance between the needs to use and to preserve human, economic, and natural resources.
6. Advocate equitable regulation and service delivery, recognizing that needs and expectations for public services may vary throughout the community.
7. Develop a responsive, dynamic local government organization that continuously assesses its purpose and seeks the most effective techniques and technologies for serving the community.
8. Affirm the intrinsic value of public service and create an environment that inspires excellence in management and fosters the professional and personal development of all employees.
9. Seek a balanced life through ongoing professional, intellectual, and emotional growth.
10. Demonstrate commitment to professional ethics and ideals and support colleagues in the maintenance of these standards.
11. Take actions to create diverse opportunities in housing, employment, and cultural activity in every community for all people.