We encourage readers to approach the memo with curiosity, discernment, and an understanding of both its strengths and its limitations.
Context for the 2017 ICMA Memo attached below:
The following memo — “A Key Ingredient for Success: An Effective City Council/City Manager Relationship” by Kevin C. Duggan (2017), published by the International City/County Management Association — is widely cited as a foundational reference for understanding the council–manager form of government.
It is included here as a learning resource, not as a prescriptive rulebook. While many of its principles remain valuable, the document also reflects assumptions and limitations that are important to recognize — particularly in small communities, during periods of transition, or amid heightened public engagement. Harbor Springs is recognizable in many of these categories. Thank you to our researchers for helping us bring good information during this exciting time in Harbor Springs.
There are categories below intended to help readers understand what this memo does well, what it assumes, and what it does not address.
- What This Memo Gets Right
Role clarity matters.
The memo clearly articulates showing how city councils set policy and direction, while city managers administer operations. When respected by all parties, this clarity can reduce confusion and internal conflict.
Trust is foundational.
The memo correctly identifies trust, communication, and consistency as essential to effective governance. These are real and necessary conditions for a functioning council–manager relationship.
Professional norms are important.
Ethics, transparency, and respect for process are presented as core values. These norms remain a vital baseline for public administration.
- Core Assumptions the Memo Makes
A stable, neutral, and competent City Manager.
The memo assumes the presence of a seasoned, professionally neutral manager operating under clear expectations. It does not address interim managers, newly hired managers, or managers navigating inherited controversy — situations that often require additional safeguards.
A unified City Council.
The memo treats council as a cohesive body. In practice, councils are often divided, newly seated, or navigating changing public mandates.
Shared good faith and institutional maturity.
The guidance assumes all participants act with consistent good faith and equal access to information — conditions that are not always present.
- Where the Memo Is Limited
Power asymmetry is underexplored.
In reality, city managers often control information flow, agenda framing, and timing. These dynamics can significantly influence outcomes, especially in small cities.
Accountability gaps are not addressed.
The memo offers little guidance for situations where trust breaks down, councils are split, or residents raise concerns about process or transparency.
Modern civic engagement is absent.
There is no discussion of organized citizen groups, large-scale public input, online participation, or the expectations of transparency that now define local governance.
- What the Memo Does Not Address — But Matters Today
Rebuilding trust after conflict.
The memo does not address how councils and managers recover after contentious votes, process failures, or legitimacy concerns.
When additional process is warranted.
There is no guidance on when work sessions, pauses, or extended deliberation are appropriate responses to public concern.
The role of residents beyond elections.
Public participation is treated implicitly rather than as an active, ongoing component of governance.
- Why We Are Sharing This Memo
We are sharing this document because it represents an important baseline framework for understanding professional local government. At the same time, we believe effective governance today requires going beyond this model — especially in communities where residents are highly engaged, issues are complex, and trust must be continually earned.
We encourage readers to approach the memo with curiosity, discernment, and an understanding of both its strengths and its limitations.
HERE IS THE MEMO: the excerpt below is found in this city council city manager relationship memo. Key Ingredients for Effective City Council City Manager Relationship
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