Abstract
Purpose. This study was undertaken to understand leadership by nonelected local government executives from the viewpoint of California city managers. Theoretical Framework. The theoretical framework of this study was based on administrative theory in public bureaucracies, theories about the role and expectations of city managers, and leadership and executive theory in public administration. Methodology. Eighteen city managers representing California cities with a council-manager form of government were identified by at least 2 other city managers as "leaders." These city managers were interviewed from October 2010 through February 2011. Results from these interviews were compared to the normative literature on executive leadership in public administration and to the International City/County Management Association's (ICMA, 1994) "Practices for Effective Local Government Management." Findings. City managers' views of their leadership differed from the literature in the exercise of their leadership outside of formal reporting relationships (e.g., with council, the community, and other stakeholders). The leadership literature in public administration has not generally addressed city managers' leadership outside the organization. While city managers' views of their leadership were aligned with the ICMA document in some areas, there is little emphasis in the ICMA practices on change management, intergovernmental relations, or partnerships for service delivery. Some argued that their role may be stronger in policy facilitation than ICMA would recommend. Conclusions and Recommendations. Treating leadership as the same at all levels impacts the descriptive value of leadership theory by oversimplifying the practice of leadership at the executive level. This study supports a conclusion that there is an increased complexity in the application of skills as one's position in the organization changes. The complexity is based on a wider variety of contexts within which the skills are practiced for city managers. Executive leadership studies in local government should consider the entire environment in which city managers operate, not just within the organization. This study supports a conclusion that development programs for future executive leaders in local government should put a greater emphasis on the context in which leadership skills are exercised.