As the membership votes by ballot this month on potential revisions to Tenet 8 (professional development) and Tenet 10 (job interference), we look back on how the ICMA’s Code of Ethics has evolved through the review effort with membership since 2013.

Twelve years ago, the ICMA Executive Board approved the plan put forth by the Committee on Professional Conduct (CPC) to engage the membership in a structured review of the Code to ensure its continued relevance for all working in service to a local government. The tenets express the values of the profession while the guidelines assist members in understanding their ethical obligations as outlined in the tenet.

ICMA’s Constitution requires members to vote by ballot to change the language of the tenets in the Code. As background, the board has the authority to revise guidelines to the tenets, and this usually occurs at the CPC’s recommendation.

Accomplishments in the Review Cycle

Through this defined process, membership reviewed Tenets 1, 2, 3, 4, 5, 6, 7, 9, 11, and 12, and/or their respective guidelines. Member engagement is crucial in this effort so in-person and virtual meetings, as well as online surveys, provided feedback. The following is detailed information about the revisions:

2013

The CPC launched the formal review process beginning with Tenet 7 expressing the profession’s ethical obligation to be politically neutral. Tenet 7 was first because based on 10-year trend data, political activity was the greatest source of member inquiries and ethics violations (excluding illegal activity). Based on feedback, the Board retained the existing language of Tenet 7 but modified the guidelines on elections of the governing body, running for office, elections, elections relating to the Form of Government, presentation of issues and added a new personal advocacy of issues guideline.

2014

In conversations with the membership, the overwhelming feedback was Tenet 12 on public trust used archaic language and seemed to present two disconnected principles. The old language “Seek no favor; believe that personal aggrandizement or profit secured by confidential information or by misuse of public time is dishonest” was replaced with “Public office is a public trust. A member shall not leverage his or her position for personal gain or benefit.” Of members who voted, 94% approved this revised language.

2017

Tenet 3, last revised in 1976, is one of two tenets applicable to all ICMA members (the other is Tenet 1 on the values of professional local government management). In reviewing Tenet 3 with its commitment to honesty and integrity, the focus was to redraft the language to ensure relevancy to a membership that was substantially broader and more diverse than in 1976. 

The 1976 language was: “Be dedicated to the highest ideals of honor and integrity in all public and personal relationships in order that the member may merit the respect and confidence of the elected officials, or other officials and employees, and of the public.”

Ninety-four percent of members voting approved revisions to Tenet 3: “Demonstrate by word and action the highest standards of ethical conduct and integrity in all public, professional, and personal relationships in order that the member may merit the trust and respect of the elected and appointed officials, employees, and the public.”

The commitment to integrity was retained and became more action oriented; a new guideline on personal relationships in the workplace was added; and the existing guideline under Tenet 12, which addressed personal relationships that create conflicts of interest, was expanded to further explain what constitutes a conflict of interest.

2018

Tenet 4 on the principle of public service was first added to the Code in 1952 as: “The city manager keeps the community informed on municipal affairs. He emphasizes friendly and courteous service to the public. He recognizes that the chief function of the local government at all times is to serve the best interests of all the people on a non-partisan basis.”

It was revised in 1972 to read, “Recognize that the chief function of local government at all times is to serve the best interests of all of the people.” Member feedback provided a consensus on simplifying the tenet language to “Serve the best interests of the people.” Of those voting, 84% approved this amendment and shortly thereafter the Board adopted changes to the guidelines on inclusivity and diversity, as well as moved the length of service guideline to Tenet 3, since it related more to the professional commitment to integrity.

2019

Tenets 1 and 2 express the principles and commitment to professional management and democratic local government. They had not been substantively revised since their addition to the Code in 1969.

Tenet 1 language was “Be dedicated to the concepts of effective and democratic local government and believe that professional general management is essential to the achievement of this objective by responsible elected officials.” 

Tenet 2 language was “Affirm the dignity and worth of the services rendered by government and maintain a constructive, creative, and practical attitude toward urban problems and a deep sense of his social responsibility as a trusted public servant.”

Voting members adopted revisions (82% for Tenet 1 and 88% for Tenet 2) to maintain the original intent through the following streamlined language:

Tenet 1. We believe professional management is essential to efficient and democratic local government by elected officials.

Tenet 2. Affirm the dignity and worth of local government services and maintain a deep sense of social responsibility as a trusted public servant.

Following membership approval of the tenet changes in mid-2020, the Board approved the revision to the Tenet 2 guideline on advice to officials of other local governments to explicitly state the reason for providing this notification to a colleague. 

It now states: “When members advise and respond to inquiries from elected or appointed officials of other local governments, they should inform the administrators of those communities in order to uphold local government professionalism.”

2020

Tenets 5 and 6 were last revised in 1972 and were reviewed together because they both addressed aspects of the policy recommendation and decision-making process and focused on a member’s role in implementing a governing body’s decisions.

Tenet 5 language was “Recognize that elected representatives of the people are entitled to the credit for the establishment of municipal policies, credit or blame for policy execution rests with the member.” 

Tenet 6 language was “Make it his duty continually to improve his ability and his usefulness and to develop the competence of his associates in the use of management techniques.”

The changes included the addition of providing technical and professional advice about policy options to elected officials and made the language specific about the member’s role in collaborating with elected officials to set goals for the community and organization. Members voting approved the revisions (87% for Tenet 5 and 91% for Tenet 6) as follows:

Tenet 5. Submit policy proposals to elected officials; provide them with facts, and technical and professional advice about policy options; and collaborate with them in setting goals for the community and organization.

Tenet 6. Recognize that elected representatives are accountable to their community for the decisions they make; members are responsible for implementing those decisions.

Tenet 5’s conflicting roles guideline when serving in two roles was updated and moved to Tenet 3, where it is now aligned with the existing guidelines on conflicts of interest. The revision to Tenet 6 better reflected that the decisions elected officials make are not limited only to policy adoption, elected officials are accountable to the people for those decisions, and members remain responsible for implementing those decisions.

2023

At the board’s directive to ensure the Code reflects the profession’s long-standing values to advance the needs of all community members, Tenets 1, 4, 9, and 11 were reviewed together and amended, as well as their associated guidelines.

Tenet 1: The first principle of the Code establishes the commitment to professional management and democratic local government. The National Academy of Public Administration and the American Society for Public Administration regard equity, effectiveness, and efficiency as the three pillars of public administration. Of the voting membership, 86% approved revising the existing language as: “We believe professional management is essential to effective, efficient, equitable, and democratic local government.”

Tenet 4: Of the voting membership, 85% approved a minor language revision to “Serve the best interests of all community members.” In the Tenet 4 guideline discussion, members recommended (1) broadening the consideration of effects or outcome of decisions on all community members and (2) serving the interests of the community requires assessing the impact of policies, programs, and services. The guidelines encourage members to be proactive in proposing solutions to eliminate disparities. Of the members who responded to the survey, 75% supported the addition of a new guideline to promote equity. The board approved the guidelines:

Effects of Decisions. Members should inform the appropriate elected or appointed official(s) of a decision’s anticipated effects on community members.

Promote Equity. Members should ensure fairness and impartiality in accessing programs and services and in the enforcement of laws and regulations. Members should assess and propose solutions to strive to eliminate disparities.
 

Tenet 9: The principle of communications and community engagement had not been reviewed since it was adopted in 1972. That language read: “Keep the community informed on municipal affairs, emphasize friendly and courteous service to the public, and recognize that the chief function of local government at all times is to serve the best interests of all the people.”

The revisions made the language consistent with current public engagement practices in local government. It also reinforced that constructive engagement is essential in supporting equity. The language retains the phrase “keep the community informed on local government affairs” to provide clarity on the ethical obligation to do so.

Of the voting membership, 84% approved revised language for Tenet 9: “Keep the community informed on local government affairs. Encourage and facilitate active engagement and constructive communication between community members and all local government officials.”

The actions encouraged in Tenet 4’s inclusion guideline were more central to engagement than to inclusion, so the title was updated and moved to Tenet 9. The objective of the new guideline was to encourage members to promote the public’s active engagement in governance. Of the members who responded to the survey, 86% supported this effort. The board approved revised language and moved it to Tenet 9:

Engagement. Members should ensure community members can actively engage with their local government as well as eliminate barriers and support involvement of the community in the governance process.

Tenet 11: This principle focused on merit-based personnel decisions and remained largely unchanged since its adoption in 1938: “The city manager handles all matters of personnel on the basis of merit. Political, religious, and racial considerations carry no weight in appointments, salary increases, promotions, and discipline in the municipal service.”

Of the survey responses, 89% supported the proposal to emphasize the principles of fairness and impartiality in personnel and to remove the term “merit.” Eighty-six percent of the membership voting approved revised language for Tenet 11: “Manage all personnel matters with fairness and impartiality.”

The initial feedback from members noted there were two distinct actions combined in the “equal opportunity” guideline. Therefore, the proposal outlined in the survey offered language for two guidelines. The CPC ultimately recommended deleting the guideline on non-discrimination, finding it to be repetitive of the principle outlined in the tenet. Of the survey respondents, 84% supported the changes to this guideline to ensure impartiality at all levels of the organization and the board approved revised language:

Diversity and Inclusion. It is the member’s responsibility to recruit, hire, promote, retain, train, and support a diverse workforce at all levels of the organization.

What’s Next?

The election ballot is open for membership to vote on potential revisions to Tenet 8 (professional development) and Tenet 10 (job interference) of the Code of Ethics in May concluding this review cycle. 

In 2024, ICMA facilitated in-person discussions at six state association meetings and ICMA’s two Local Government Reimagined Conferences, engaging with more than 600 members who provided comments and suggested revisions. ICMA offered a survey for those who could not attend those sessions; 128 responded and offered 602 written comments. The CPC drafted revised language and surveyed membership again in March.

Tenet 8: Current language: “Make it a duty continually to improve the member’s professional ability and to develop the competence of associates in the use of management techniques.”

The first statement of an emphasis on professional development appeared in the Code’s 1952 version, “The city manager considers it his duty continually to improve his ability and his usefulness and to develop the competence of his associates in the use of management techniques.” That principle was restated three times with the last revision reflecting the current language in 1976. 

From 1969: “Make it his duty continually to improve his ability and his usefulness and to develop the competence of his associates in the use of management techniques.” From 1972: “Make it his duty continually to improve his ability and to develop the competence of his associates in the use of management techniques.” 

In 1995, two guidelines were added on self-assessment and professional development.Survey language: “Continually improve professional capabilities while fostering growth and development through ethical leadership and effective management practices.”

Of those voting, 647 members (83.48%) approved of the proposed changes. Written comments said the language should stress the importance of the ethical obligation members have to develop the capabilities of staff in the organization and others. Members had an appreciation of moving beyond technical competence to embrace ethical leadership and management practices, and said the revisions were improved, inclusive, and modernized.

The CPC then further refined the language to include that members have the obligation to support others in their professional development efforts: “Continually improve professional capabilities and those of others while fostering growth and development through ethical leadership and effective management practices.” 

Tenet 10: Current language: “Resist any encroachment on professional responsibilities, believing the member should be free to carry out official policies 
without interference, and handle each problem without discrimination on the basis of principle and justice.”

The principle was first included in the Code’s 1938 version: “The city manager, in order to preserve his integrity as a professional administrator, resists any encroachment of his control of personnel, insists on the exercise of his own judgment in accomplishing council policies, and deals frankly with the council as a unit rather than secretly with its individual members.” It has been amended over the years with the most recent version adopted in 1995.

From 1952: “The city manager, in order to preserve his integrity as a professional administrator, resists any encroachment on his responsibility for personnel, believes he should be free to carry out council policies without interference, and deals frankly with the council as a unit rather than with its individual members.” 

From 1969: “Resist any encroachment on his responsibilities, believing he should be free to carry out official policies without interference.” From 1972: “Resist any encroachment on his responsibilities, believing he should be free to carry out official policies without interference, and handle each problem without discrimination on the basis of principle and justice.” In 1995, a guideline was added on information sharing.

Survey language: “Uphold and defend the integrity of the profession and the Council-Manager form of government by carrying out official duties, policies, and
processes with a commitment to equitable public service.” Of those voting, 483 members (62.32%) approved of the proposed changes. In the written comments there was an emphasis on the importance of supporting good governance and a member’s responsibility to carry out their duties to that end. 

Specifically, there were concerns that the language was not strong enough since members frequently use this with their governing bodies, that the use of the term “equitable,” and that naming the council-manager form is limiting, since not all members work in this form. Based on that feedback, the CPC further refined the language: “Oppose efforts to interfere with professional responsibilities by consistently executing official duties, policies, and processes with an unwavering commitment to unbiased public service.”

Respondents to the previous survey were given another opportunity to share their thoughts on the latest revisions where 70% approved of them. If membership approves the revised tenet language in the ballot open now, the board will consider changes to the tenet’s associated guidelines in summer 2025. 

JESSICA COWLES is director of ethics at ICMA (jcowles@icma.org).