council-manager/ administrator governmentmauicounty.us/wp-content/uploads/2015/12/icma.pdficma code...
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Council-Manager/
Administrator Government
Professional Management
Makes the Difference presentation by
Dave Mora
ICMA Senior Advisor/State Liaison
before the
Maui Special Committee on County Governance
December 10, 2015
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Dave Mora
ICMA Senior Advisor/State Liaison
• 35 years’ experience in California local government, including serving as manager of 3 communities, 2 with directly-elected mayors.
• Former president of ICMA and City Managers’ Department of the League of California Cities.
• Former chairperson of ICMA Retirement Corporation board. Also served on Public Entity Risk Institute and National Academy of Public Administration boards.
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About ICMA
• Founded in 1914 as professional organization for appointed local government managers.
• Currently nearly 10,000 members.
• Includes 4,600 city, town, or county managers and senior-level assistant/deputy managers.
• Decisions made by ICMA members affect millions of individuals in thousands of communities.
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About ICMA
• Mission: To create excellence in local governance by developing and fostering professional local government management worldwide.
• Premier local government leadership and management organization.
• Origins in the council-manager form of government.
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ICMA Code of Ethics• ICMA members agree to subscribe to a
stringently-enforced Code of Ethics.
• Code established in 1924, is periodically
updated, and ensures the professional and
personal integrity of ICMA members.
• Code also requires members to commit to a
minimum of 40 hours of continuing education
and professional development each year.
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Maui Special Committee on
County Governance• Current council-mayor form of government
vests legislative power in the council and
executive power in the mayor.
• Committee to consider the merits of a
county manager form of government.
• Today’s topic: Council-Manager Form of
Government.
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County/City Comparisons for
Council Manager/Administrator• Maui County Government role and
responsibilities differ somewhat from
mainland counties.
• Mainland cities are responsible for
providing many of the services provided
by Maui County
• Reviewing county and city governance
models is appropriate.
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0 50 100 150 200 250 300 350 400
C-M/Admin. (42%)
County Commission
(35%)
Council-Elected Executive
(23%)
Form of Government Among Counties w/Populations > 50,000
0 50 100 150 200 250 300 350 400
Council-Mgr./Admin. (42%)
County Commission (36%)
Council-Elected Executive (22%)
Form of Government Among U.S. Counties withPopulations > 50,000
0 50 100 150 200 250
Council-Mgr./Admin. (45%)
County Commission (29%)
Council-Elected Executive (26%)
Form of Government Among U.S. Counties withPopulations > 100,000
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Fast Facts
• Nearly 45% of the 527 U.S. counties with
populations of 100,000 and greater
operate under the council-manager/
administrator form.
• 29% in that population range operate
under county commission form.
• 26% operate under the council-elected
executive structure.
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U.S. Council Manager/Council
Administrator Counties
• El Dorado County, Calif. (pop. 181,737)
• Imperial County, Calif. (pop. 176,584)
• Arlington County, Va. (pop. 224,906)
• Carroll County, Md. (pop. 167,564)
• Catawba County, N.C. (pop. 154,810)
• Kings County, Calif. (pop. 150,960)
• Pueblo County, Colo. (pop. 161,451)
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U.S. Council-Manager Cities
• Oxnard, Calif. (pop. 203,007)
• Newport News, Va. (pop. 182,020)
• Santa Clarita, Calif. (pop. 179,590)
• Vancouver, Wash. (pop. 164,759)
• Fort Lauderdale, Fla. (pop. 172,389)
• Salinas, Calif. (pop. 155,662)
• Fort Collins, Colo. (pop. 152,061)
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Recent Structure Changes/
Attempted Changes
• 2010—Luzerne County, Penn. (pop. 320,103)
adopted CM/CAO form.
• 2012—McHenry County, Ill. (pop. 307,409)
retained county admin. position.
• 2014—Capital City Sacramento, Calif. (pop.
479,686) retained CM/CAO (third attempt).
• 2013—Capital City Columbia, S.C. (pop.
133,358) retained CM/CAO.
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Current City-County CAO Salaries
• Average base salary for all U.S. city
CAOs = $125,000.*
• Average base salary for all U.S. county
CAOs = $140,000.*
• Average base salary for all U.S. CAOs in
Maui pop. range (100,000-249,000) =
$208,575 (city); $167,682 (county).**2015 data
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Benefits of Council-Manager/
Administrator Government• Elected officials focus on community
needs and policy development/adoption
and are directly accountable to residents.
• Manager/administrator focuses on policy
implementation and is accountable to
elected officials in that role.
• Flexible enough to adapt to local needs.
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Benefits of Council-Manager/
Administrator Government
• National Civic League’s Model City Charter draws clear distinction between policy role of the elected body and administrative role of manager. NCL continues to endorse CM/CAO form today.
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Council-Manager/Administrator
Form Best Practices
• Power and policy making concentrated in
entire elected body.
• Elected officials free to devote time to policy visioning and development.
• Manager/administrator carries out policies established by elected officials.
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Best Practices (cont’d.)
Role of Mayor/Chair/Chief Elected Official• Serves as recognized head of city/county
government for all ceremonial purposes.
• Presides at council/governing body meetings.
• Represents city/county in intergovernmental
relations.
• Appoints advisory boards and commissions
(with advice/consent of council).
• Presents annual state of city/county message.
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Best Practices (cont’d.)Role of the Mayor and Council• Establishes policy direction for the community.
• Adopts all policy documents for the community
including: strategic plan, general plan, zoning
and building codes, budgets, and all ordinances
and resolutions.
• Hires the manager/administrator.
• Holds manager/administrator accountable for
policy implementation.
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Best Practices (cont’d.)
Role of Appointed Manager/Administrator
• Manager/administrator responsible for budget preparation/presentation to governing body.
• Directly responsible for administration of budget as approved by governing body.
• Has full authority for appointment/removal of at least most of principle department heads.
• Attends all council meetings. Can discuss but cannot vote on issues.
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Best Practices (cont’d.)
• Manager/administrator appointed based on
professional experience, managerial
qualifications, and education.
• Increasingly, professional managers
possess a master’s degree or higher (66%
in 2012), most often in public administration.
• Political affiliations do not influence
appointment.
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Best Practices (cont’d.)• 94% of all U.S. counties and 72% of all U.S. cities
report presiding officer is member of commission/
council.
• 87% of all counties and 86% of all cities with CAO
report that commission/council or commission/
council + presiding officer appoints that position.
• Only 1% of counties and 4% of cities report that
presiding officer alone appoints CAO.
• Only 4% of all counties and 27% of cities report that
presiding officer has veto authority.
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CM/CAO Form Can Be FlexibleBest Practice CM/CAO
Options (Most functional
& professional)
• Manager/administrator
appointed by elected
body as a whole.
• Manager/administrator
solely responsible for
hiring and firing non-
elected department
heads.
Alternative CM/CAO
Options for Maui County
• Manager/administrator
appointed by elected
mayor subject to elected
body approval.
• Manager/administrator
appoints non-elected
department heads subject
to elected body approval.
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Manager-Administrator Recruitment/
Appointment Process
• The governing body has three options for
conducting recruitment. It can:
– Conduct the recruitment in-house.
– Retain an outside party to conduct the
recruitment.
– Use a hybrid approach and conduct the
recruitment in conjunction with outside party.
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Manager-Administrator Recruitment/
Appointment Process
Key Elements
• Develop manager/administrator profile.
• Determine whether/how to engage
community in profile development.
• Establish compensation.
• Develop recruitment schedule.
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Manager-Administrator Recruitment/
Appointment Process
Key Elements (cont’d.)
• Determine geographic scope (nationwide,
statewide, or regional).
• Develop advertising/outreach strategy.
• Identify applicant relations strategies (how
candidate will be notified of status and how
confidentiality will be ensured).
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Manager-Administrator Recruitment/
Appointment Process
Key Elements (cont’d.)
• Brief media on timing and steps involved in
overall process.
• Review applications (either elected body,
recruitment firm, or both).
• Identify which candidates to interview.
• Interview candidates.
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Manager-Administrator Recruitment/
Appointment Process
Key Elements (cont’d.)
• Make final selection.
• Negotiate compensation.
• Announce candidate selection to
community.
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“Value Proposition” of Council
Manager/Administrator
Government• Council-manager/administrator form
encompasses a set of professional
values, skills, and practices that ensure
the success of the cities and counties
that use it.
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“Value Proposition” of Council
Manager/Administrator
Government1. Elected officials collectively focus on
public policy and community priorities.
2. Elected officials appoint professional
manager who focuses on policy
implementation and is accountable to the
elected officials.
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How We Know Council-Manager/
Administrator Government Works
• 73% of communities recognized with coveted All-
America City Award between 2008 and 2012 are
run by professional local government managers.
• A February 2011 study by IBM Global Business
Services found that cities that operate under the
council-manager form of government are nearly
10 percent more efficient than those that operate
under the mayor-council form.
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For more information, contact:
Kevin Duggan, ICMA West Coast
Regional Director
[email protected]; 202-962-3583
Dave Mora, ICMA Senior Advisor/
State Liaison
[email protected]; 831-737-8133
http://icma.org
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For more information, contact:ICMA
777 North Capitol Street, NE
Suite 500
Washington, D.C. 20002-4201
Michele Frisby
([email protected]; 202-962-3658) or
Jared Dailey
([email protected]; 202/962-3557)