A shift toward democratic governance, together with unprecedented decentralization, has had a profound impact on local governments worldwide in the past few decades. It was not so long ago that many cities and towns around the world were administered as part of a larger, centralized political system, often with little or no participation from citizens. Within a centralized system, leaders often responded to the social and economic needs that they saw and experienced directly, and people living in the capital benefited from those efforts. But people living farther out were less likely to benefit from government programs and development efforts.

As democratization and decentralization have spread, local governments in many countries have assumed greater decision-making powers and responsibilities than ever before. And in accordance with the principle of subsidiarity—that each level of government retains the resources, functions, and power to provide the programs and services that can be most effectively and efficiently handled at that level—increased responsibility at the local level has the potential to lead to increased accountability, better services, and an improved quality of life for residents.

But globally, professional management of local governments is still in its infancy. In newly decentralized countries, government leaders and citizens are often slow to recognize the kind of expertise needed to undertake their new responsibilities. Moreover, they often lack information about how to acquire such expertise for several reasons:

• A limited tradition of independent governance
• An acceptance of poor services by citizens due to years of negligence by the central government
• Lack of previous access to decision making.

Politics, political favoritism, and policy decisions at the central level—by the government or the party—often dominate local government, retarding the development, emergence, or application of needed skills. And even at the local level, the perception may exist that local politicians can, by virtue of being elected, handle the responsibilities of service delivery on their own. But despite the honest efforts of dedicated elected officials and their teams, political or other pressures make it difficult to succeed in the absence of professional skills and management experience.

Clearly, as local and regional governments gain autonomy, they must grow stronger institutionally to meet the challenges that autonomy brings. If they are not able to respond effectively, they not only risk failing citizens by not improving services but also stand to lose their increased independence. The answer lies in skilled human resources, continuity within staff and services, continual learning, and proven practices. These are the tools that local governments need in order to fully exploit the principle of subsidiarity, demonstrate their capacity to serve their communities, and improve their citizens’ quality of life. These are the tools of professional local government management.

The profession of municipal management

The American tradition of democracy and local self-government with citizen input created the profession of public administration at the local level around the turn of the twentieth century. Since that time, professional municipal management has evolved alongside the political process, while remaining independent of it.

Professional municipal management was introduced in the United States at a time when industrial growth, increasing migration to urban areas, unreliable basic services (water, roads, electricity), and growing citizen frustration with local corruption pointed to the need for innovation at the local level. Specifically, the Progressive Movement called for reforms that would improve the living conditions for millions of urban poor, eliminate corrupt voting practices at the local level, and increase citizens’ influence on government.

One result was the emergence of a distinct profession of municipal management. The purpose was not to displace elected officials, but to increase local government capacity in service delivery. By using managers with professional qualifications and skills, local governments could improve services and increase citizens’ trust in government. Such successes eventually led to increased recognition and respect for professional management.

The early managers in the United States were often engineers, because at that time, physical infrastructure was a priority in any effort to improve service delivery. Over the years, however, as services have grown more complex, managers have increasingly come from public administration and general management backgrounds.

Today, career professionals are found at all levels in local government and have expertise in many specialized areas, including service delivery, financial management, performance measurement, economic development, community outreach, and solid waste management. Through professional associations and relationships, they have access to a worldwide network for sharing information and tools to increase local government performance and build institutional capacity.

Profesional management worldwide

Although the United States was a world leader in the creation of the municipal management profession, many other countries have since followed suit. In the 1960s England redefined the role and position of the city clerk into that of the chief executive officer, or city manager. The city management profession is well established throughout Australia and New Zealand. In Germany, professionals trained in local government management and public administration serve their communities as chief executives.

In the 1990s, as local governments gained control of more resources and were able to manage services more directly, the position of a professional manager or administrator was explored in many countries and often adopted. Throughout the world, the role of a professional manager with skills to handle the important services provided by local government is increasingly recognized as crucial to success.

In emerging and transitional democracies that are undergoing decentralization, the introduction of professional management must be approached within the larger country context:

• Its degree of decentralization
• Its local government decision-making authority
• Its local government revenue-generating power
• Its responsibilities for service delivery.

Introduction of professional management must consider the health of the entire local government sector. That sector includes local governments, citizens (individuals and organizations, including the business community), the legal framework, academia, and service providers. Each component and its connection to the other components have a profound impact on the ability of the local government as an institution to operate as a service provider, which is its primary responsibility.

Local governments have increasingly recognized the importance of citizen involvement beyond the vote, promoting participatory methods that allow citizens to contribute productively to decision making. Similarly, citizen participation practices such as citizen surveys, budget hearings, and focus groups must be introduced in the context of the overall local environment.

Challenges

Today, countries throughout the world increasingly recognize the autonomy of local government and rely on local officials and managers to develop policies, provide quality services, facilitate economic development, meet citizen needs and expectations, and effectively and efficiently manage the public’s funds. This means that increased capacity at the local level is essential. But developing and transitional countries encounter many problems and challenges as they work to improve their system of governance and service delivery:

• They must clarify newly acquired responsibilities within a legal framework that is often inconsistent and ill-defined.
• They must tackle structural problems—for example, government salaries, low education, poverty—that impinge on the ability of local government leaders and others to make progress.
• They must provide services despite limited resources, environmental obstacles, and other challenges.
• They must help whole populations—including leaders, citizens, and organizations—adjust to new definitions and roles wherein citizens are expected to participate and leaders are expected not only to lead but also to facilitate and listen.
• They must identify and define how transparency and accountability contribute to service delivery if the society has a tradition that requires corrupt practices as a matter of getting business done.

The twenty-first century promises to be the century of local self-government throughout the world. But in order for local governments to be able to take advantage of their more independent position, they themselves must be prepared, and the other elements of the local government sector have to support them.

Source: Adapted and updated from ICMA International and Professional Local Government Worldwide (Washington, D.C.: ICMA, 2006).