Mayor-CAO Relationship

The Unique Partnership Between Mayor and CAO

In Canadian municipal government, the relationship between a municipal Council and the Chief Administrative Officer (CAO) is a cornerstone of effective governance and service delivery. While the Council serves as the community’s decision-making body, it relies heavily on the CAO for expert advice, operational leadership, and the translation of policy into action.

Council as the Decision-Maker

Council’s primary role is to set the vision, establish priorities, and pass the by-laws and policies that guide the municipality’s direction. These decisions shape the community’s future, so they must be informed by credible, comprehensive advice. This is where the CAO plays a vital role.

The CAO engages professional, technical, and administrative staff to research issues, assess options, and recommend courses of action. This ensures that Council’s choices are grounded in facts, best practices, and local realities. The quality of Council’s decision-making is directly tied to the quality of the advice it receives, making the CAO’s independence and objectivity essential.

“Fearless Advice, Loyal Implementation”

A high-functioning CAO understands the dual responsibility of offering unfettered, independent advice and then ensuring loyal and consistent implementation of Council’s decisions.

In practice, this means the CAO must feel free to provide Council with clear, candid recommendations, even if that advice is politically sensitive or unpopular. But once Council has made its decision, the CAO must shift into implementation mode, mobilizing staff and resources to deliver on Council’s direction, whether or not it aligned with the original recommendation. This balance – honest counsel and disciplined execution – ensures both integrity in governance and stability in administration.

The Mayor–CAO Relationship: The Narrowest Point in the Hourglass

Within this governance–administration system, the relationship between the Mayor and CAO is uniquely important. Picture an hourglass: Council (governance) sits at the top, staff (administration) at the bottom, and the Mayor and CAO meet in the narrowest point. The sand in the hourglass – information, decisions, and direction – must pass through this point smoothly for the organization to function well. If there is tension or blockage at this juncture, the entire system slows down, leading to frustration both above and below.

Shared Leadership, Distinct Roles

Although they operate from different vantage points, the Mayor and CAO are, in many ways, partners in leadership. The Mayor provides political leadership, articulates community priorities, and represents the collective will of Council. The CAO provides organizational leadership, ensuring that the machinery of local government runs effectively and efficiently.

A key feature of this relationship is that their roles are distinct but highly interdependent. The Mayor cannot effectively provide leadership on Council’s vision if the CAO is not capable of translating that vision into workable strategies. Similarly, the CAO cannot lead the organization without a clear understanding of Council’s political context, which the Mayor is uniquely positioned to interpret and communicate.

The Mayor’s Perspective

From the Mayor’s side, there are unique pressures that shape their role. As the public face of the municipality, the Mayor is often the first point of contact for residents, media, and external stakeholders. This means the Mayor must constantly balance competing demands: local issues, political sensitivities, media scrutiny, and the sometimes-conflicting perspectives of Councillors.

A Mayor who understands the CAO’s role recognizes that municipal operations are complex and cannot be managed effectively from the Council table. By trusting the CAO’s expertise and respecting administrative boundaries, the Mayor not only strengthens the organization but also protects Council’s credibility. Attempting to micromanage staff, or bypassing the CAO to give direct instructions to employees, undermines both authority and accountability.

The CAO’s Perspective

From the CAO’s perspective, the Mayor represents both an opportunity and a challenge. On the one hand, the Mayor is a vital conduit to Council’s priorities and political realities, providing insight that helps administration align its work with governance expectations. On the other hand, the Mayor is navigating political pressures that may sometimes clash with administrative best practices.

A skilled CAO learns to interpret these pressures, providing advice that is not only technically sound but also sensitive to the political environment. This requires emotional intelligence, discretion, and the ability to frame recommendations in ways that equip the Mayor and Council to make defensible, community-oriented decisions.

Building Trust and Communication

At the heart of the Mayor–CAO relationship lies trust. Trust that the CAO will provide honest, unfettered advice—even if it is difficult to hear. Trust that the Mayor will represent Council’s collective interests, not just personal or political agendas. And trust that both will communicate openly, consistently, and respectfully.

Regular, structured communication between the Mayor and CAO is critical. Many successful municipalities establish weekly or bi-weekly “check-ins” where the two can review priorities, emerging issues, and community concerns. This habit prevents misunderstandings, aligns strategy, and strengthens their working relationship.

Importantly, the Mayor must also communicate back to their Council colleagues on the work they’re doing with the CAO “between public meetings.”  The Mayor must maintain the trust-based relationship with the CAO that keeps the cogs of governance and administration nicely meshed, while ensuring that Council is comfortable their vision is still driving the machinery of government.  

When the Relationship Falters

When the Mayor–CAO relationship breaks down, the consequences are felt throughout the organization. Council may become divided, with members aligning behind either the Mayor or the CAO. Staff may feel uncertain about who to follow, which can erode morale and performance. The community, in turn, experiences slower service delivery and a loss of confidence in local government.

In some cases, tension can escalate to the point where Councils replace their CAO or Mayors face political backlash. Regardless of who leaves, the municipality pays the price in lost momentum, organizational instability, and reputational harm.

A Partnership of Mutual Accountability

Ultimately, the Mayor–CAO relationship works best when it is treated as a partnership of mutual accountability. The Mayor holds the CAO accountable for professional administration, while the CAO relies on the Mayor to provide clarity in political and policy direction. Each must respect the other’s expertise and authority, even in moments of disagreement.

When this relationship functions well, it becomes the linchpin of municipal success. It allows governance and administration to operate in harmony, ensuring that Council’s vision is translated into practical action, staff remain motivated and focused, and the community receives the services it deserves.

At Strategic Steps, we specialize in helping Councils, Mayors, and CAOs build the trust, clarity, and communication structures that make local government work at its best. Whether you are looking to strengthen the Mayor – CAO partnership, clarify roles between governance and administration, or navigate the challenges of strained relationships, our team brings proven experience and practical strategies to support your success. If your municipality could benefit from expert guidance on these critical dynamics, reach out to us today. We’d be pleased to help your leadership team move from tension to trust, and from vision to results.

If you want to discuss how we can help, you can reach me at craig@strategicsteps.ca or (709) 728-0065.