Transitioning to a council–manager form of government (or strengthening professional management) is a multi-faceted, multiyear organizational effort extending beyond the charter amendment, ordinance, or referendum.

The council–manager model offers long-term benefits in professionalism, accountability, and performance, but the transition period can be marked by ambiguity, strain on institutional capacity, and disruption to political and administrative norms. Turning those challenges into anticipated positives can help everyone enjoy the journey and better grasp “Are we there yet?!”

Who’s the Navigator? Do We Have Maps? Who Packed Snacks?

Strengthen Role Clarity and Governance Alignment

A successful transition following a charter change is aided by establishing clear role definitions and reinforcing governance alignment at the outset. Proactively clarifying the responsibilities of the governing body, chief elected official, and manager or administrator—and ensuring those roles are consistently applied—helps prevent misunderstandings and builds confidence in leadership structures.

Providing governance training for the governing body, clearly defining the operational authority of any full-time elected officials, and updating codes to align with charter changes are critical early steps. Ensuring that checks and balances are well-articulated and that all governing documents are synchronized creates stability, reduces the risk of power struggles, and supports timely, effective decision-making.

Prioritizing clarity and alignment fosters a culture of accountability and collaboration, turning potential uncertainty into an opportunity for stronger governance.

Did We Discuss All This in Advance? Does Everyone Know Where We’re Going?

Create Strategic and Organizational Readiness

Creating a strategic roadmap will help mitigate or avoid challenges to adopting a form change. Work with the governing board to articulate council goals, audit council policies for gaps our outdated ordinances, and create pre- or post-charter organizational assessment. Communities often attempt to operate under a new governance model using structures designed for the old one; aligning strategy, budget, staffing, and service delivery to a roadmap and milestones.

Be patient and flexible given analytical capacity and changing executive management structures to ease implementation. Be patient and consider building an interim strategy. It’s a long ride and burdens will need to be shared, routes adapted, communications lines open, and make sure everyone is fed!

How Much Can We Pack? Where Will We Refill on the Way?

Manage Capacity During Implementation

Communities frequently describe a form of government transition as “flying the plane while building it” (or in our example, building the car while driving). Implementing change occurs with external stressors like fiscal uncertainty while the organization is simultaneously restructuring departments, creating new leadership roles, and updating systems.

Mitigate risks and manage expectations by understanding capacity limits on financial reserves, staff, organizational infrastructure/assets, and organizational design. Be patient and design with intent; consider adding temporary capacity or consulting support during the change. (You might need to add a roof rack for extra storage).

Can I Get Off Here?

Turnover and Managing People and Positions

Leadership and staff turnover is common during governance transitions. Executive teams and key managers may depart or change roles, and newly created roles will take time to fill and stabilize. (Wait…I’m the navigator now?) Governing boards may also experience turnover, with new elected officials unfamiliar with the council–manager model or why it changed. The value of institutional knowledge cannot be underestimated, and retaining or transitioning knowledge will help calm uncertainty, reduce strain on remaining staff, and stabilize the changing organizational culture and morale.

Be sure to frequently support staff and listen. Also, don’t lose sight of advisory board members during the disruptions and impacts that come with change. Bringing our volunteers along for the journey will help them become stronger advocates and allies, given their relationship and influence with the elected officials, staff, and community. (“Hey everyone, we’re going to the Happiest Place on Earth, remember?!”)

Can We Even Get There?

Financial and Operational Uncertainty

Form of government transitions occur because a community is interested in change to address challenges, such as constrained revenues, limited reserves, government efficiency, or financial shortfalls. It’s a long journey, but it’s critical to demonstrate early wins and keep communications open and proactive. Communicating progress and milestones will reduce skepticism among the governing board, advisory group, employees, and the public. Otherwise, “Are we there yet?” could turn into “We’ll never get there…let’s turn around.” Share progress in forecasting, fiscal sustainability planning, and disciplined budget alignment to build confidence in the new model.

We’re Almost There and We’re Not the First Ones to Make This Trip

Build Trust in Cultural Change

Change will impact longstanding work culture and identity, but positioning it as evolution will help maintain or build trust. (Think how people fear loss more than change.) Employees and elected officials will need to be on board with the new norms around authority, accountability, and decision-making. Internal services like HR, finance, IT, and communications can be the strongest asset in the transition (food, fuel, and a good stretch break). Identifying and supporting organizational and community change champions will bolster progress and moderate setbacks. (“Hey everyone, look at all we’ve seen along the way! And we’re almost there. Here, have a snack.”)

Wasn’t That Worth the Drive? On to the Next One!

Sustain Momentum Over Time

Form transitions do not end with implementation: it’s a journey not a destination. (Think of the epic poem, Ithaca ). Ongoing work is required to refine roles and responsibilities, delegate authority appropriately, centralize services where needed, and continue governance and leadership training.

To show success in form change, keep communications active. Emphasize continuous improvement, flexibility, and a longterm vision that integrates governance reform with community outcomes and organizational capacity. Keep sharing success stories and positive outcomes from challenges. Remind stakeholders that the council–manager form is adaptable, flexible, ethical, and accountable.

ROB CARTY is director of The Fund at ICMA.

JENNY HARUYAMA is city manager of Eugene, Oregon.

CHRISTOPHER SHORTER is county executive officer of Prince William County, Virginia.

TATE WHITE is acting deputy city administrator of Portland, Oregon.