Position and powers of the manager.
The City-Manager Plan.—In keeping with the principle, therefore, that some one official ought to have direct charge of the city’s administrative work, the city-manager plan has been devised. Under this plan the commission (or a small elective council) continues in full control, but its members do not divide the various functions among themselves. Instead they appoint a well-paid, expert official to act as general manager and he takes charge of all the city departments. The city administration, under this arrangement, is conducted like that of any ordinary business corporation. The commission or council serves as a board of directors; the city manager becomes, as it were, a general superintendent.[[76]] In selecting its manager a city often goes outside its own limits; usually it chooses a man who is an engineer by profession because so much of the work is of a technical nature. When the manager is appointed he plans the work to be done, estimates the cost, awards the contracts, purchases the materials, and hires the labor. The city-manager plan has been adopted by more than a hundred cities, but only a few are large communities.[[77]]
Merits of the plan.
This scheme of city government has all the advantages of the commission plan and some of its defects. The detailed work falls on the city manager who is qualified to do it. There is a single, responsible head of the administration. When a citizen has any complaint to make, he knows exactly where to go. In all these respects it is an ideal arrangement. |Two practical questions.| But there are two practical questions connected with the plan which only the future can answer. |1. Will the cities pay adequate salaries?| In the first place will cities be willing to pay the high salaries which they must pay in order to obtain the services of thoroughly competent managers? Men who are capable of handling the affairs of a great corporation, which a city is, cannot be secured without paying them the market price for their skill and experience. Private corporations pay high salaries to their general managers, and the cities, if they want the right men, must do likewise. But public opinion in most American cities is inclined to balk at high salaries. People who have to work hard for their own living do not see why anyone should get a salary of eight or ten thousand dollars a year from the city, and particularly they do not see why such a large salary should go to an outsider. In consequence many cities are striving to get good managers at low salaries, which is a very difficult if not an impossible thing to do. The sentiment which strongly favors appointing a “local man” as city manager is also likely to work harmfully. Local appointments in the long run are almost certain to be influenced by local politics.
2. Is the plan applicable to very large cities?
A second limitation concerns the applicability of the city-manager plan to very large communities. A competent official can take charge of the entire administration in a place of fifty or one hundred thousand people. But how about a city of a million? Would the task be too big? This is a question which cannot yet be answered, because no very large city has yet tried the plan. It is pointed out that giant business enterprises, with operations extending into many countries, are sometimes managed by one capable man who ensures success by a careful selection of his subordinates. Until the experiment is made we are not safe in assuming that the city-manager scheme can be advantageously adopted by all communities of whatever size.
The Future of City Government.—What the final solution of the problem will be we cannot yet tell. The new plans of city government which have been described in the foregoing pages may be merely a prelude to something still newer. But at any rate the cities are making headway. They are simplifying their governments, making them more responsive to public opinion and better fitted to do the work which has to be done. American city government is no longer a conspicuous failure. Misgovernment and waste have not wholly or even largely disappeared, it is true; but conditions are far better today than they were twenty-five years ago. The people have awakened; they are no longer misled by promises and excuses but are insisting upon knowing the facts. The crooked methods of a generation ago would not be tolerated today. The present task is to hold what we have thus gained and add to it. That is a duty which belongs to every citizen whatever his age, occupation, or party allegiance. The world is becoming a world of cities, and he who helps to make his home city a better place is performing one of the highest duties of patriotism.
General References
F. J. Goodnow and F. G. Bates, Municipal Government, pp. 3-43;
W. B. Munro, The Government of American Cities, pp. 80-101;