Mayor – CAO: The Fundamental Partnership

In Animal Farm, George Orwell famously wrote that “all animals are equal, but some are more equal than others” or something close to that. While Orwell’s point was rooted in political critique, there is an interesting parallel in how we operate within local government. Formally, every member of council is equal around the table. In practice, however, relationships, influence, and structural realities create distinctions that matter a great deal, particularly in the relationship between the mayor and the Chief Administrative Officer (CAO).

One-on-One

Most municipal councils have exactly one employee: the CAO. While the CAO is accountable to council as a whole, the logistics of governing make it impractical to treat every interaction as a seven-on-one conversation (or five-on-one, nine-on-one, depending on the size of council). The flow of information, the need for timely decision-making, and the demands of confidentiality all require a more efficient channel.

That channel typically takes the form of regular one-on-one meetings between the head of council and the CAO. These meetings are not about concentrating power but about enabling effectiveness. When done well, they allow for early issue identification, alignment on priorities, and the exchange of context that can be difficult to achieve in a formal council setting.

However, this arrangement only works if it is supported by clear expectations. Without those expectations, the one-on-one relationship can drift into territory that excludes the broader council or creates perceptions of imbalance. Transparency, communication back to council, and clarity about roles are essential to maintaining trust in the governance model.

Formal Equality, Practical Influence

Across most of Canada, the mayor (or reeve or warden) has limited formal authority beyond that of other elected officials. The role includes chairing meetings, performing ceremonial duties, and signing bylaws, but rarely does legislation grant sweeping executive powers.

Despite this, the mayor occupies a unique position. Externally, the mayor is widely recognized as the face and voice of the municipality. Internally, the mayor often serves as the primary point of contact for the CAO. This creates a reality where, while all councillors are equal in law, the mayor carries additional practical influence.

That influence is not inherently problematic. It is, in many ways, necessary. The key is ensuring that it is exercised in a way that reflects council’s collective will rather than personal priorities. When the mayor acts as a conduit rather than a gatekeeper, the system functions as intended.

Building the Relationship

As I write this, I am attending the Canadian Association of Municipal Administrators conference and speaking with CAOs from across the country. One theme comes up repeatedly: there is a noticeable divide between CAOs who thrive in their roles and those who face significant challenges. Interestingly, the legislative framework is largely consistent across jurisdictions. The differentiating factor is almost always the human element.

The relationship between the mayor and the CAO sits at the centre of this dynamic.

Getting off on the right foot is critical. That begins with a shared and accurate understanding of roles. Council sets direction and policy; the CAO implements that direction through the administration. When those lines blur, particularly when a mayor seeks to become operationally involved, it creates tension. The CAO is then placed in the difficult position of reinforcing boundaries, which can strain the relationship over time.

This is not about individuals acting with ill intent. In many cases, it stems from enthusiasm, a desire to see results, or prior experience in non-governance roles. However, without a clear framework, even well-meaning actions can undermine the system.

The Importance of Onboarding

One of the most overlooked opportunities to set the tone for success is the onboarding and orientation of council following an election. This is the moment when expectations can be clearly articulated, roles defined, and relationships established on a strong foundation.

For the mayor, this includes understanding the responsibility to reflect and communicate the will of council as a whole; not to act independently of it. For the CAO, it includes providing the information and guidance needed for council to make informed decisions while maintaining the integrity of the administrative function.

When onboarding is rushed, inconsistent, misunderstood, or informal, misunderstandings can take root early. Those misunderstandings, if left unaddressed, often grow into larger issues that are much more difficult to resolve later.

Writing It Down

Some municipalities codify the mayor–CAO relationship in bylaws or formal policies. Others rely on tradition and informal conventions. While there can be benefits to flexibility, I am a strong proponent of putting key elements in writing.

A written covenant or governance agreement between council and the CAO can serve as a valuable reference point. It does not need to be overly prescriptive, but it should outline how information flows, how meetings are conducted, and how the mayor and CAO will interact in fulfilling their respective roles.

The value of such a document is not just in its content, but in the process of creating it. It requires council and administration to have explicit conversations about expectations, which can surface and resolve potential issues before they escalate.

Perhaps most importantly, it provides a neutral foundation for addressing disagreements. Rather than relying on memory or interpretation, all parties can refer back to what was agreed upon collectively. This shifts the conversation from personal positions to shared commitments.

Leading Together

Recognizing the importance of this partnership, we are hosting a forum in September 2026 focused specifically on the mayor–CAO relationship. The Leading Together forum is designed to bring mayor–CAO pairs into the same room to explore how they can work more effectively together.

The intent is not to prescribe a single model, but to create space for learning, discussion, and reflection. Participants will hear from peers, share their own experiences, and help develop practical tools that can be applied in their municipalities.

Importantly, the forum is structured to support both ends of the spectrum: pairs who already have a strong working relationship, and those who are looking to build or repair one. In both cases, there is value in stepping back from day-to-day pressures and focusing on the fundamentals of collaboration.

If this is of interest, more information is available at www.leadingtogetherforum.ca

Your Ideas

While frameworks, policies, and training all play a role, there is no substitute for shared experience. Every municipality is different, and the nuances of the mayor–CAO relationship can vary widely.

I would be very interested in hearing your perspectives. What has worked well in your municipality? What challenges have you encountered? And what advice would you offer to others looking to strengthen this fundamental partnership?

You can reach me at ian@strategicsteps.ca. I look forward to the conversation.