The city manager system, also called the council-manager form of government, separates the political function of setting policy from the administrative function of running municipal operations. Voters elect a city council (sometimes including a mayor with mostly ceremonial duties), and the council in turn appoints a professional city manager who serves at its pleasure. The manager hires and supervises department heads, prepares the budget, manages personnel, and executes the policies the council adopts.
The model emerged in the United States during the Progressive Era as a reaction to perceived corruption and inefficiency in big-city machine politics. Staunton, Virginia is generally credited with creating the first city manager position in 1908, and Sumter, South Carolina adopted the first full council-manager charter in 1912. Dayton, Ohio became an influential early adopter after its 1913 flood, helping popularize the form among reformers. The International City/County Management Association (ICMA), founded in 1914, has since promoted professional standards and a code of ethics for managers.
Key features typically include:
- A small, often nonpartisan council elected at-large or by district
- A manager chosen on the basis of professional qualifications, not residence or election
- Clear lines of authority: the council legislates; the manager administers
- The manager can be dismissed by majority council vote at any time
The system is most common in mid-sized cities. According to ICMA survey data, it is used by a majority of U.S. municipalities with populations between roughly 10,000 and 250,000, and by some larger cities such as Phoenix, San Antonio, Dallas, and Charlotte. Most very large U.S. cities (New York, Chicago, Los Angeles) instead use a strong-mayor form.
Critics argue the model can insulate key decisions from democratic accountability and that nonpartisan at-large elections historically diluted minority representation. Supporters emphasize professional management, continuity across electoral cycles, and reduced patronage.
Example
In 2014, Charlotte, North Carolina's city council appointed Ron Carlee's successor Marcus Jones as city manager, illustrating how a large U.S. city operates under the council-manager form while the mayor focuses on ceremonial and policy-leadership roles.
Frequently asked questions
A mayor is elected by voters and typically sets political direction or performs ceremonial duties, while a city manager is a professional administrator hired by the council to run daily operations and can be fired by council vote.
Keep learning