The Evolving Role of City Managers: Policy, Administration, and Community Leadership
By: Dr. Peter Pirnejad
Executive Summary
Since the inception of the Council/Manager form of government over a century ago, the roles of City Managers and elected officials have been distinctly divided between policy creation and the administration of that policy. This foundational separation has allowed for a clear delineation of responsibilities: elected officials deliberate and set policies based on the community's needs and values, while City Managers ensure those policies are executed efficiently, effectively, and legally.
However, as we delve deeper into the evolution of this paradigm, particularly in light of the ICMA Declaration of Ideals, questions arise: Should City Managers, as non-political administrators, simply execute Council's decisions, or are they called upon to assume leadership roles in broader community issues?
This is increasingly more evident as city leaders shift from solving technical problems like grant administration, capital projects, and infrastructure maintenance to more wicked problems. Wicked problems include that do not have a clear definition, established stakeholders, or commonly agreed upon outcomes. These Wicked Problems include climate change, social justice, and technological innovation. These Wicked Problems also known as adaptive problems challenge the role of the City Manager.
This paper attempts to highlight the change, challenge conventional roles but also considers the implications. In the end this topic is part of a larger debate being had across the ICMA landscape and will culminate in a sharing of perspectives taken all over the country and shared in a think tank session at the ICMA Annual Conference in Pittsburgh under the leadership of Wally Bobkiewicz, the City Administrator of Issaquah, Washington.
The Administration/Policy Paradigm: A Historical Perspective
The Council/Manager system was born out of the Progressive Era's desire for professional management in government. City Managers were envisioned as non-political experts whose role was to administer policy, not influence or create it. This separation of powers helped shield local government from the partisan bickering and corruption that plagued early 20th-century politics.
In the seminal work, "Policy and Administration: City Managers as Comprehensive Professional Leaders", the evolving nature of this separation is explored. As society’s problems grew more complex, so too did the responsibilities of City Managers. Their administrative duties expanded into broader leadership roles, often requiring them to advise elected officials, shape policy alternatives, and build consensus around community initiatives. However, this growing influence on policy decisions raises important questions about the original intent of the Council/Manager form of government and whether this role expansion undermines the clear-cut division between policy creation and administration (Svara, 1995).
In instances where elected officials may be reluctant to address polarizing issues like climate change, social equity, and technology and smart cities, the City Manager may want to consider playing a more critical role in framing these debates in a way that encourages constructive discussion without pushing a specific agenda. For example, on the topic of climate change and sustainability, a City Manager might organize community forums or workshops to raise awareness of local environmental risks, such as flooding or heatwaves, and present data-driven solutions like climate action plans or energy efficiency initiatives. By leading these conversations, the City Manager can help demystify the issue for both the public and elected officials, paving the way for more informed policy decisions.
Similarly, on equity and social justice, a City Manager might convene panels that include marginalized community members and experts to explore solutions to systemic issues like housing affordability or policing reform. In doing so, the City Manager sets the stage for an open, inclusive policy debate that elected officials can engage in, without feeling that they are solely responsible for introducing potentially controversial or divisive measures. This approach allows City Managers to facilitate difficult conversations, encouraging elected officials to address pressing issues with the support of community input and expert guidance.
In addition, technology and smart cities represent another area where City Managers can lead policy discussions that elected officials might hesitate to initiate. The integration of technology in local government, while offering significant benefits in areas such as traffic management, energy efficiency, and public safety, also raises concerns about data privacy, digital inclusion, and equitable access to technological advancements. A City Manager can help frame these debates by presenting both the opportunities and risks associated with smart city initiatives. For instance, when proposing city-wide broadband access to bridge the digital divide, the City Manager could highlight how such a program would not only benefit low-income communities but also enhance the city’s overall competitiveness in attracting businesses and improving residents' quality of life. By addressing concerns like data privacy and the potential marginalization of vulnerable groups, the City Manager can facilitate a balanced discussion, ensuring that the benefits of smart city technology are distributed equitably. This proactive approach helps guide elected officials toward policies that are both forward-thinking and sensitive to community concerns, creating a foundation for informed decision-making on complex technological issues.
The City Manager's Role in Community Leadership
City Managers are increasingly stepping beyond the traditional confines of administration. This evolution is well documented in the papers "Achieving Effective Community Leadership" (Svara, 2004) and "Achieving Effective Community Leadership in the Future" (Lemmie, Bryer, & Shaffer, 2020). Both works argue that City Managers must now engage in community leadership, fostering democratic engagement, brokering partnerships, and advancing resilience in the face of growing societal challenges.
In particular, "Achieving Effective Community Leadership" emphasizes that City Managers should not merely react to council directives but actively contribute to shaping the community’s future through collaboration with stakeholders. In this view, the City Manager becomes a facilitator of public dialogue, guiding the community through difficult decisions by drawing on expertise, fostering trust, and building relationships (Svara, 2004).
As we look toward the future, "Achieving Effective Community Leadership in the Future" suggests that City Managers must adopt relational intelligence—understanding the diverse values and interests within their communities and navigating increasingly complex social, environmental, and fiscal challenges. The paper outlines that City Managers are in a unique position to foster innovation and resilience, but this requires a fundamental shift in how they view their role—not just as administrators but as civic leaders who shape the long-term well-being of their communities (Lemmie, Bryer, & Shaffer, 2020).
The ICMA Declaration of Ideals and Its Implications
The ICMA Declaration of Ideals, not to be confused with the ICMA Code of Ethics, outlines a set of aspirational goals for City Managers, emphasizing ethical conduct, professional integrity, and a commitment to the public interest. Key principles include promoting efficiency, effectiveness, equity, and democratic engagement in the management of local government. These ideals encourage City Managers to not only manage city operations effectively but also to act as stewards of public trust, fostering a sense of fairness and inclusivity in the topics that are raised to the dais for policy debate which ultimately determines how local government serves all segments of its population.
At its core, the Declaration pushes City Managers to ensure that all members of the community benefit from local government services and to uphold the highest standards of public service. However, these ideals also raise important questions about the extent to which City Managers should engage in broader societal issues, such as social justice, sustainability, or technological innovation, which may have larger even global implications. While these ideals suggest a proactive role in advancing democratic governance and community well-being, they also provoke a debate: Should City Managers champion these causes, potentially stepping into policy leadership, or should they focus strictly on the administration of the council’s legal directives?
This tension is particularly evident when considering issues like climate change, social justice, and technological innovation. These are topics that City Managers, due to their expertise and position, may feel compelled to address, yet doing so could be seen as stepping outside the bounds of their administrative role. The ICMA's ideals encourage City Managers to advance democratic governance and community well-being, but how far should they go? Should they champion progressive initiatives that may be seen as controversial within the council chambers, or should they limit their role to ensuring the legal and efficient implementation of council directives?
Wally Bobkiewicz and the Future of City Management
One City Manager who has embraced the leadership mantle is Wally Bobkiewicz, the City Administrator of Issaquah, Washington. His work, as described on [LocalGov2030](https://www.localgov2030.com), exemplifies how City Managers can engage in national conversations on the future of local governance. Bobkiewicz’s efforts reflect a broader movement among City Managers to lead in areas that transcend the traditional boundaries of local government.
The culmination of these conversations will take place at the ICMA Annual Conference in Pittsburgh, where insights gathered from across the country will be shared. This includes discussions facilitated by California City Managers during their virtual conversation scheduled for September 10. These dialogues offer a platform for City Managers to explore their evolving role and the future of local government leadership. For more information, or to participate in these discussions, contact Ppirnejad@losaltoshills.ca.gov.
Conclusion
As the profession of city management continues to evolve, City Managers are increasingly called upon to act as community leaders, not just policy administrators. The ICMA's ideals and the evolving needs of communities point toward a future where City Managers may need to embrace a more active role in shaping policy and addressing global challenges. However, this shift brings with it a fundamental question: Should City Managers lead these efforts, or should they remain within the bounds of administration? As the role of the City Manager expands, the answer to this question will shape the future of local government leadership.
References
- International City/County Management Association (ICMA). (2021). ICMA declaration of ideals. ICMA. https://icma.org/icma-declaration-ideals
- Lemmie, V., Bryer, T., & Shaffer, T. J. (2020). Achieving effective community leadership in the future. In The Effective Local Government Manager.
- Svara, J. H. (1995). Policy and Administration: City Managers as Comprehensive Professional Leaders. In The Ideal and Practice of Local Government.
- Svara, J. H. (2004). Achieving Effective Community Leadership. In Community Leadership and Local Governance.