The membership first adopted the Code of Ethics (Code), consisting of 13 Articles, during the ICMA Annual Conference in Montreal in 1924. The Code defined the values of the profession, formalized the shared commitment to ethical principles with colleagues, and expressed the professional and personal conduct expected of members in order to merit public trust and confidence in the organizations in which our members serve.
The principles identified in the first Code continue to resonate with practitioners today. The importance of honesty and integrity, the value of public service, seeking no favor from a position, exemplary conduct in both personal and professional matters, respecting the role and contributions of elected officials, exercising the independence to do what is right, political neutrality, serving the public equitably and governing body members equally, keeping the community informed about local government matters, and supporting and leading employees all come from that first version of the Code.
Since 1924, the membership has voted by ballot to amend the Code to reflect changes in society and emerging challenges for the profession. Ensuring that the language in the Code of Ethics reflects the values of the profession has been a well-established priority with numerous revision efforts over the years since membership adopted the first version of the Code in 1924. As background, the tenets express the values of the profession while the guidelines assist members in understanding their ethical obligations as outlined in the tenet. When ICMA sanctions a member for conduct that violated the Code, this is based on the finding that the member’s conduct did not uphold the principle in the tenet. ICMA’s Constitution requires that a majority of members vote by ballot to make any changes to the language of the tenets in the Code. The ICMA Executive Board has the authority to revise guidelines to the tenets, and this usually occurs based on a recommendation from the Committee on Professional Conduct (CPC).
A summary of the history of the ICMA Code of Ethics over the last 100+ years is summarized below in the drop-down menu.
- OVER ONE HUNDRED YEARS OF ETHICS
For over 100 years, the ICMA Code of Ethics has been the foundation of the profession, guiding leaders in local government towards a legacy of ethical excellence! O.E. Carr, city manager of Dubuque, Iowa, addressed 100 of his colleagues gathered in Montreal in 1924 at the ICMA Annual Conference to present them with a code of ethics for the profession: "The City Manager's Code of Ethics". Taking that first step to create a core set of principles so early in its infancy was fundamental to the success of the local government management profession. Today, those core values and principles are taught in MPA programs, reflected in local government management best practices, and enforced in a peer-review process governed by the ICMA Executive Board and adopted by the membership.
Read more about the Code's 100th anniversary here.
Explore ICMA's interactive historical timeline on the Code here.
- AMENDMENTS TO THE ICMA CODE OF ETHICS (1924-1998)
ICMA’s Constitution requires a majority of members vote by ballot to make any changes to the language of the tenets in the Code. The ICMA Executive Board has the authority to revise guidelines to the tenets, and this usually occurs based on a recommendation from the Committee on Professional Conduct (CPC). Since 1924, the membership has voted by ballot to amend the Code to reflect changes in society and emerging challenges for the profession. Here are the highlights of those changes:
1938. In the first amendment, a preamble was added to better explain the council-manager structure and ICMA’s mission. A statement of the profession’s commitment to merit-based hiring, noting that “political, religious, and racial considerations” carry no weight in personnel decisions was also added. The reference to the manager’s duty to stay out of politics disappeared from the Code.
Article 3, while updated over the years, remains virtually intact today: “The city manager is governed by the highest ideals of honor and integrity in all his public and personal relationships in order that he may merit the respect and inspire the confidence of the administrative organization which he directs and of the public which he serves.”
1952. The ongoing debate over the precise role of the manager in the policy arena was reflected in tweaks made to the policy-related Articles. The Code sagely advised managers to avoid public conflict with the governing body on controversial issues.
The first reference to the responsibility for continuous professional development also appeared in 1952.
1969. As membership expanded as the result of changes to the ICMA Constitution, the Code ceased using the term “city manager” and was replaced with the more inclusive reference to “member.”
1972. The profession’s commitment to political neutrality, dropped in the 1938 revision, reappeared in more direct language in a new Tenet 7: “Refrain from participation in the election of the members of his employing legislative body, and from all partisan political activities which would impair his performance as a professional administrator.”
For the first time, the board added guidelines to give members practical advice on investments, gifts, job commitment expectations, and election activities. In addition, the board adopted the formal Rules of Procedure for Enforcing the Code of Ethics.
1976. As ultimately unsuccessful efforts were underway to ratify the Equal Rights Amendment to the U.S. Constitution, the Code was made gender neutral in recognition of the fact that women are equal members of the profession.
1995. The term “municipal” was replaced with “local government.”
1998. An increase in political activity in the membership led to an amendment to clarify the profession’s commitment to political neutrality in Tenet 7 by emphasizing the broader principle. The new version stated: “Refrain from all political activities which undermine public confidence in professional administrators. Refrain from participation in the election of the members of the employing legislative body.”
- STRUCTURED CODE REVIEW EFFORT (2013-2025)
In February 2013, the ICMA Executive Board approved the Committee on Professional Conduct’s (CPC) plan 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. ICMA’s Constitution requires a majority of members vote by ballot to make any changes to the language of the tenets in the Code. The board has the authority to revise guidelines to the tenets, and this usually occurs due to a recommendation from the Committee on Professional Conduct (CPC).
Through this process, Tenets 1, 2, 3, 4, 5, 6, 7, and 12 and/or their respective guidelines were reviewed and revised. Detailed information about these changes to the Code is summarized below:
2014. This structured review began with Tenet 12. In conversations with the membership, the overwhelming feedback was Tenet 12, as written, 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.”
2017. Tenet 3, last revised in 1976, is one of two tenets that applies to all members (the other is Tenet 1). In reviewing Tenet 3, the focus was to redraft the language to ensure it is relevant to a membership that is substantially broader than it was in 1976. In the revised language, the commitment to integrity was retained but made more action oriented. A new guideline on personal relationships in the workplace was added. The existing guideline under Tenet 12, which addresses personal relationships that create conflicts of interest, was expanded to further explain what constitutes a conflict of interest.
2018. Tenet 4 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.”
2019. Tenets 1 and 2 had not been substantively revised since their addition to the Code in 1969 and that language had stated:
- Tenet 1. Be dedicated to the concepts of effective and democratic local government by responsible elected officials and believe that professional general management is essential to the achievement of this objective.
- Tenet 2. Affirm the dignity and worth of the services rendered by government and maintain a constructive, creative, and practical attitude toward local government affairs and a deep sense of social responsibility as a trusted public servant.
Members approved maintaining the original intent through streamlined tenet language in October 2019:
- 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 revisions, in June 2020, the board approved the addition of the phrase “in order to uphold local government professionalism” to the existing Tenet 2 guideline on advice to officials of other local governments to explicitly state the reason for providing this notification to a colleague.
2020. Tenets 5 and 6 were last revised in 1972 and that language had stated:
- Tenet 5. Submit policy proposals to elected officials; provide them with facts and advice on matters of policy as a basis for making decisions and setting community goals; and uphold and implement local government policies adopted by elected officials.
- Tenet 6. Recognize that elected representatives of the people are entitled to the credit for the establishment of local government policies; responsibility for policy execution rests with the members.
Tenets 5 and 6 were reviewed at the same time 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.
The changes membership approved to Tenet 5 included the addition of providing technical and professional advice about policy options to elected officials and updated the language to highlight the member’s role in collaborating with elected officials to set goals for the community and organization. Tenet 5 currently states, “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.”
The Tenet 5 guideline referencing a potential conflict by serving as both the city manager and city attorney had not been updated since 1972. The CPC recommended to the board reframing the issue beyond the narrow example given to address situations where there could be a conflict by virtue of holding two positions within the same organization or externally and that members have an obligation to disclose and disengage to the greatest extent possible. The board approved this change as well as the CPC’s recommendation to move the conflicting roles guideline to Tenet 3, where it is now aligned with the existing guidelines on conflicts of interest.
The revision to Tenet 6 better reflected 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. Tenet 6 was amended to state, “Recognize that elected representatives are accountable to their community for the decisions they make; members are responsible for implementing those decisions.”
Tenets 8 and 11. The CPC began the review of Tenets 8 and 11 during the 2020 Southeast regional conference with member discussion and feedback on the tenets and their relevancy to the profession. When all other regional conferences, and many state association meetings, were cancelled due to the COVID-19 pandemic, the CPC decided additional opportunities for member feedback would be needed before considering revisions to Tenets 8 and 11 and paused this review in summer 2020. Tenet 11 was later reviewed as part of the overall DEI revie of the Code 2020-2023.
2023. In June 2020, the board issued a statement on systemic racism that included several action steps ICMA would take with one action step specific to ethics:
“The local government management profession and ICMA were founded on a Code of Ethics and a Declaration of Ideals, which demand that we serve the best interests of all, achieve equity and social justice, and act with integrity so that we may earn the trust of all those we serve. Addressing systemic racism is our ethical obligation. We will revisit our Code of Ethics to better integrate our ethical commitment to racial justice and equity into the very fiber of the 12 tenets.”
As part of the comprehensive review of the Code through the lens of diversity, equity, and inclusion, 84% of members casting a ballot voted to approve amendments to Tenets 1, 4, 9 and 11 and the board approved changes to associated guidelines in June 2023. The three-year effort involved feedback sessions with over 600 members, and more than 2,000 members provided a survey response with 2,800 written comments that the board reviewed. Read more about ICMA's review that focused on diversity equity and inclusion here.
As part of the comprehensive review of the Code from a diversity, equity and inclusion lens, Tenets 1, 4, 9 and 11 were amended, as well as associated guidelines.
Tenet 1 previously stated:
- Tenet 1. We believe professional management is essential to efficient and democratic local government by elected officials.
Language approved by the membership in April 2023:
- Tenet 1. We believe professional management is essential to effective, efficient, equitable, and democratic local government.
The first principle of the Code establishes the commitment to professional management and democratic local government. Both 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. 84% of members who responded to a feedback survey supported the changes to Tenet 1. Tenet 1’s primary purpose is to state the broad values of the local government management profession. Tenets 5 and 6 were revised in 2020 and together they provide clarity about the roles and responsibilities of managers working with elected officials in local governance.
Tenet 4 previously stated:
- Tenet 4. Serve the best interests of the people.
Language approved by the membership in April 2023:
- Tenet 4. Serve the best interests of all community members.
Tenet 4, Guideline 1 previously stated:
- Impacts of Decisions. Members should inform their governing body of the anticipated effects of a decision on people in their jurisdictions, especially if specific groups may be disproportionately harmed or helped.
Language approved by the Board in June 2023:
- Effects of Decisions. Members should inform the appropriate elected or appointed official(s) of a decision's anticipated effects on community members.
Tenet 4, Guideline 2 (New Guideline)
- 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.
The changes reflected feedback to broaden the consideration of the effects or outcome of decisions on all community members. 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. 75% of members who responded to the survey supported the addition of the new guideline to promote equity under Tenet 4.
Tenet 9 previously stated:
- Tenet 9. Keep the community informed on local government affairs; encourage communication between the citizens and all local government officers; emphasize friendly and courteous service to the public; and seek to improve the quality and image of public service.
Language approved by the membership in April 2023:
- 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.
Tenet 9, New Guideline: The recommendation was to move part of a guideline from Tenet 4 to Tenet 9.
The Guideline on Inclusion under Tenet 4 previously stated:
- Inclusion. To ensure that all the people within their jurisdiction have the ability to actively engage with their local government, members should strive to eliminate barriers to public involvement in decisions, programs, and services.
Language approved by the Board in June 2023 and moved 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 9 had not been reviewed since adopted in 1972. 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. 79% of survey respondents agreed with this approach. The language retains the phrase “keep the community informed on local government affairs” to provide clarity on the ethical obligation of members relative to communications with the community. The actions encouraged in the inclusion guideline under Tenet 4 are more central to engagement than to inclusion. The title was updated and moved to Tenet 9. The objective of the new guideline is to encourage members to promote the public’s active engagement in governance. 86% of members taking the feedback survey supported this new guideline for Tenet 9.
Tenet 11 previously stated:
- Tenet 11. Handle all matters of personnel on the basis of merit so that fairness and impartiality govern a member’s decisions, pertaining to appointments, pay adjustments, promotions, and discipline.
Language approved by the membership in April 2023:
- Tenet 11. Manage all personnel matters with fairness and impartiality.
Tenet 11, Guideline 1 previously stated:
- Equal Opportunity. All decisions pertaining to appointments, pay adjustments, promotions, and discipline should prohibit discrimination because of race, color, religion, sex, national origin, sexual orientation, political affiliation, disability, age, or marital status. It should be the members’ personal and professional responsibility to actively recruit and hire a diverse staff throughout their organizations.
- This “Equal Opportunity” guideline was deleted.
Tenet 11, Guideline 2 (now the only guideline for Tenet 11)
The last clause of the previous “Equal Opportunity” guideline stated:
- It should be the members’ personal and professional responsibility to actively recruit and hire a diverse staff throughout their organizations.
Language approved by the Board in June 2023:
- 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.
Tenet 11, with its focus on merit-based personnel decisions, has remained largely unchanged since its adoption in 1938. 89% of members responding to the feedback survey supported the proposal to emphasis the principles of fairness and impartiality in personnel and to remove the term “merit.” With respect to the deletion of the “Equal Opportunity” guideline, the initial feedback from members noted that there were two distinct actions combined in the “Equal Opportunity” guideline. Therefore, the proposal outlined in the survey offered language for two guidelines. After refinements were made to Tenet 11, the CPC recommended deleting a guideline on non-discrimination finding it to be a repetition of the principle outlined in the Tenet. Finally, 84% of survey respondents supported the changes to this guideline. Members supported the obligation to ensure diversity and inclusion at all levels of the organization.
2025. Tenets 8 (professional development) and 10 (job interference) were the final two tenets to be reviewed in this structured effort. Tenets 8 and 10 previously stated:
- Tenet 8. 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.
- Tenet 10. 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.
Members overwhelmingly voted in favor of the revisions to Tenet 8 (95% approval and the highest approval percentage in ICMA's online voting history) and Tenet 10 (87% approval). Language approved by the membership in May 2025:
- Tenet 8. Continually improve professional capabilities and those of others while fostering growth and development through ethical leadership and effective management practices.
- Tenet 10. Oppose efforts to interfere with professional responsibilities by consistently executing official duties, policies, and processes with an unwavering commitment to unbiased public service.
Based on member discussion at eight conferences and via three online surveys, the CPC drafted proposed revisions to Tenets 8 and 10 guidelines, then the board voted to approve them. Members responding to the final survey approved the proposed guideline language. (For Tenet 8, 85% Self-Assessment and 81% Professional Development; and for Tenet 10, 81% Information Sharing and Feedback and 83% Personnel and Operational Matters). In addition, the Professional Respect and Conduct Unbecoming guidelines under Tenet 3 warranted review because they have been cited in numerous ethics complaints in recent years, i.e., unsolicited public commentary about a colleague’s organization; managers whose conversations with governing body members and staff without informing their colleagues had the effect of undermining their successors; running for elected office in retirement in the community where the member recently served; and unprofessional conduct at work events. The comparison between the former and revised/current guideline language can be seen in Figure 1 below.
- Tenet 1. Be dedicated to the concepts of effective and democratic local government by responsible elected officials and believe that professional general management is essential to the achievement of this objective.
- ICMA GOVERNANCE
- ARTICLES ON THE HISTORY OF THE CODE
