In the current dynamic municipal management environment, clarity of roles, expectations, and mutual accountability between the governing body and the chief executive is foundational to success. The Governance Relations System (GRS)—developed nearly two decades ago—has emerged as a powerful framework to define and strengthen the relationship between city boards and city managers.

In Goodyear, Arizona, the GRS helped to shape a productive working relationship between former city manager Wynette Reed and the city council by aligning expectations and promoting shared understanding of governance roles.

Origins of the Governance Relations System

The GRS concept was first articulated in 2005 in the article, ”The Undiscovered Country: A New Path for Local Government Management,” by Mike Letcher in PM Magazine. The article outlines the practical governance tools that could help boards and managers work more effectively together. Letcher, a long-time city manager, consultant, and senior advisor for ICMA, has long championed frameworks that help elected officials and professional administrators articulate role clarity, shared objectives, and performance understanding—a philosophy at the heart of the GRS principles.

What Is the Governance Relations System?

The GRS is a structured governance framework designed to articulate mutual expectations between an elected governing body and the professional manager. At its core, the GRS:

Defines roles and boundaries— clarifying what the board is responsible for (policy and strategic direction) and what the manager is responsible for (administration and operations).

Sets shared expectations— outlining standards for communication, decision-making processes, agenda materials, and performance evaluation.

Enhances transparency and accountability— by creating measurable, agreed-upon norms for how work gets done, how information flows, and how conflicts are resolved.

By fostering this shared understanding, the GRS helps avoid misunderstandings that can arise when unwritten assumptions govern relationships and instead builds a predictable governance rhythm that supports both effective public policy and operational excellence.

How GRS Works in Practice

The GRS typically functions through a collaboratively developed document that does the following:

1. Lists expectations for the manager and staff, such as advance delivery of agenda materials, foresight on emerging issues, and avoidance of operational surprises.

2. Outlines expectations for the governing body, including preparation for meetings, respect for operational roles (e.g., refraining from directing staff operationally), and protocols for performance feedback.

3. Establishes support structures, such as board-manager communication protocols and staff support for board members.

This structure creates a shared playbook that both sides agree to use as a reference throughout the municipal governance cycle.

Why Use the GRS?

Municipal governance inherently involves complexity: boards represent diverse perspectives and constituencies, and managers are tasked with translating policy into action within operational constraints. The GRS offers multiple advantages:

Clarity and confidence: Clear expectations reduce ambiguity and empower both the board and manager to focus on their respective roles.

Trust and respect: By proactively addressing how issues will be handled, the organization builds mutual trust and respects professional boundaries.

Improved decision-making: When governance expectations are articulated and understood, decision-making is more strategic and less reactive.

Enhanced Performance: A defined governance framework supports better performance assessment and continuous improvement.

Impact on the City of Goodyear

Since 2017, the GRS has helped shape the relationship between Goodyear, Arizona’s city council and city manager. It has provided a clear framework for defining roles, responsibilities, and decision-making authority, reducing ambiguity and strengthening mutual accountability. The system has fostered open communication, proactive issue identification, and structured feedback, allowing leadership to address challenges before they escalate. 

As a result, Goodyear has benefited from greater alignment on strategic priorities, improved policy implementation, and a culture of trust and professionalism at the highest levels of governance. Former city manager Wynette Reed said, “By aligning expectations, improving communication, and reinforcing accountability, the GRS enables our organization to operate with greater efficiency, transparency, and effectiveness.”

As municipal governance continues to evolve, frameworks like the GRS offer a durable bridge between the policy direction set by elected officials and the operational leadership provided by professional managers. Mayor Joe Pizzillo remarked, “The GRS strengthens trust between council and staff, clarifies roles, and ensures we stay focused on strategic priorities that matter most to our residents.”

Nearly 20 years since its early articulation, the GRS remains a vital tool for fostering shared expectations, strengthening trust, and supporting effective governance. In Goodyear, the GRS has contributed to a governance culture that values clarity, collaboration, and strategic focus—modeling a framework that many communities nationwide could benefit from adopting.

MIKE LETCHER is president and CEO at BridgeGroup LLC, and an ICMA senior advisor.

WYNETTE REED is the former city manager of Goodyear, Arizona.

Attending the 2026 ICMA Annual Conference? 

Learn more in Mike Letcher’s micro-certificate session, “Building High Performing Board-Manager Relations,” on October 17, 8:00 A.M. to 12:00 P.M.