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Review of the National Civic League's
Model City Charter, Ninth Edition
By Deanna Campbell, Bozeman City Study Commissioner, 2024
Purpose of this Review
As part of the Bozeman City Study Commission's evaluation of resources related to local
government structures, this review assesses the relevance and applicability of the National
Civic League's Model City Charter, Ninth Edition (2021). While the Model Charter presents
several constructive governance concepts, it ultimately extends beyond the appropriate
scope of a municipal charter under Montana Code Annotated (MCA) Title 7 – Local
Government. For this reason, while it can provide insights, it is not a suitable model for
guiding the work of the Bozeman City Study Commission.
The Study Commission’s responsibility is to focus on the form and structure of local
government, not on embedding detailed policy goals within the city charter. This review
identifies key areas where the Model Charter overreaches that role, while acknowledging
certain positive concepts that can inform our discussions.
The Role of a City Charter Under Montana Law
Montana law, through MCA Title 7, defines a city charter as a structural document
establishing:
- The form of government (such as mayor-council or commission-manager),
- The distribution of governmental powers and responsibilities,
- The processes of legislative authority.
A city charter is not intended to dictate policy outcomes such as social programs,
environmental mandates, or personnel directives. Those areas belong to the legislative
process, where policies can be developed and debated by elected officials who are
accountable to voters and responsive to the evolving needs of the community.
Where the Ninth Edition Model Charter Overreaches
1. Embedding Policy into the Charter Framework
Words related to diversity, equity, and inclusion appear 228 times in the Ninth Edition*,
demonstrating an overemphasis on areas of policy that are outside the scope of the study
commission and that are better left to the legislative process. The Ninth Edition moves
beyond structural governance by embedding specific policy initiatives directly into the
charter framework, such as equity audits and dedicated equity officers, sustainability
mandates, and personnel practices aimed at achieving diversity benchmarks. Such detailed
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policy matters are better left to the legislative process, where they can be openly debated
and adjusted as the community's needs and priorities evolve.
2. Governance Structure: City Manager vs. Strong Mayor
The Model Charter’s preference for a strong city manager system concentrates executive
authority in an unelected professional administrator. While this arrangement offers
operational expertise, it can create a layer of separation between decision-making and
direct voter accountability.
For Bozeman, this is precisely the kind of structural question the Study Commission is
tasked with examining. It is critical that the commission thoughtfully considers the
alternatives, including the strong mayor model with a professional city administrator. This
structure maintains professional management while ensuring that ultimate executive
authority rests with an elected official directly accountable to the public. The strong mayor
model may provide Bozeman with the benefits of administrative professionalism while
preserving clear lines of democratic accountability.
3. Promoting Regionalism and External Influence
The Ninth Edition strongly encourages regional collaboration, which can risk entangling
local governments with outside organizations and external policy agendas. While regional
cooperation can be valuable in certain circumstances, Bozeman must carefully safeguard its
local autonomy and ensure all decisions reflect the specific needs and priorities of its
residents.
4. Destabilizing Traditional Governance
The model’s emphasis on expanded public engagement processes and structural flexibility
may weaken the stability and predictability of government operations. Frequent structural
changes and activist-driven initiatives can disrupt long-term planning and diminish the
confidence of residents in their local government.
Positive Elements to Acknowledge
Despite these concerns, the Model Charter does promote some worthwhile governance
principles, including:
- Transparency in decision-making,
- Ethical standards for public officials,
- Encouragement of public participation in civic life.
These are enduring values that Bozeman can and should strive to uphold, though they are
best advanced through ongoing legislative and administrative practices—not locked into
the governing charter through prescriptive language.
Conclusion
The National Civic League's Model City Charter, Ninth Edition is a well-developed resource
in the national conversation about local governance. However, its scope is not compatible
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with the legal role of a charter under MCA Title 7. The Model Charter extends into policy-
making and ideological commitments that are better handled through the normal legislative
process by Bozeman’s elected representatives.
For these reasons, the Ninth Edition should be viewed as an informational reference only—
not as a governing template for Bozeman’s charter review.
As the Bozeman City Study Commission continues its work, our focus must remain on:
- Defining a clear, lawful, and effective government structure,
- Preserving voter accountability,
- Safeguarding local autonomy,
- And providing future city leaders the flexibility to adopt policies responsive to the
community.
By adhering to these principles, we will ensure that Bozeman’s government remains stable,
transparent, and truly representative of its people.
Respectfully submitted,
Deanna Campbell
Deanna Campbell
Bozeman City Study Commissioner, 2024