In many parts of the world, the terms “town” and “city” are used interchangeably, both translated as ciudad, ville and città in Spanish, French and Italian respectively. But in New England, the governing structure of each defines them very differently, with specific mandates and restrictions according to state laws.
In cities, mayors are the executive branch and councils serve as the legislative branch. In a town such as Needham, the Select Board is the executive and Town Meeting is the legislature. From there, the differences between the two structures become more complex — and sometimes a lot more controversial.
Town Clerk Louise Miller, who has worked for both towns and cities, said as Needham’s population approaches 35,000, the town should consider switching to a mayor, giving one person the ultimate responsibility to carry out campaign promises. “I like the idea that the chief executive is accountable to the voters,” she said.
Michael Fee, who is entering his 28th year as Town Moderator, said Town Meeting is the ultimate form of accountability of the actions taken during the year by the boards and professional managers.
“In a city government, officials are accountable every three or four years at the ballot box,” said Fee. “Our town officials are accountable every year because they have to persuade Town Meeting. Whatever they’re recommending, Town Meeting has to weigh in and approve it.”
In Needham, 24 residents from each of 10 precincts are elected to serve three-year terms in Town Meeting, with one third of members up for reelection each spring. In cities, city councilor seats are up for election on the November ballot along with state and federal positions as mandated by state law.
Miller argued that city councilors are more likely to represent the specific interests of a neighborhood. “A city council form of government forces negotiation. Council members from different districts work together to support one another on interests relevant in their own neighborhoods.” She pointed to Town Meeting’s recent approval of pickleball courts on Central Avenue, which she said is an already overcrowded thoroughfare. “Even though TMs from precincts C and D might oppose the proposals, there aren’t enough of them.”
Many cities, such as Newton, use a combination of districted and at-large representation, a system Miller said she could envision for Needham. As a theoretical structure, she suggested each of the 10 current precincts could be paired to create five city council districts. Two at-large councilors that face a city wide electorate could be added, creating a city council with seven seats.
Other notable differences between Town Meeting and city council are that city councilors are paid employees and their voting records and positions on issues are more transparent than those of Town Meeting members. State law mandates non-partisan elections, so there is no “D” or “R” next to candidates’ names, and the lawn signs that proliferate before competitive Town Meeting elections usually don’t offer much insight. For example, Doug Fox was elected to Town Meeting from precinct F with the catchy campaign slogan, “Keep Needham Foxy.”
In 1775, when Needham’s population was 912 and almost everyone was working in agriculture, Town Meeting was open to all men to debate and enact policies (women were not allowed to speak or vote). Needham switched from direct to representative Town Meeting in the 1930s. Representative Town Meeting is still a critically important part of town government, but its nature has evolved as population has exploded and policy has become much more complex and diverse. Unlike a traditional legislature, very little policy is initiated at Town Meeting.
On the executive side, Needham’s five-seat Select Board sits at the helm, but it cedes most day-to-day control to the town manager. Just as the superintendent of schools reports to the School Committee, the town manager reports to the Select Board. The most important function of those boards is to hire — and if necessary, fire — the unelected superintendent and town manager.
The position of town manager was a major shift from Needham’s original town administrator form of government. When voters overwhelmingly adopted Chapter 176 of the Acts of 2004, the executive branch was restructured in 2005, shifting the day-to-day operating authority to the town manager’s office. In a city, these functions are carried out by the mayor’s office.
This shift mirrors the reforms of the Progressive Era and the Pendleton Act, which professionalized the federal bureaucracy. Reformers not only fought for a wide range of consumer protection laws, but also advocated for depoliticized city and town managers who hired staff based on skills rather than connections to elected officials.
With roughly twice as many residents as Needham, Plymouth and Brookline are the top two towns by population in the state. Both have considered — and thus far rejected — charter changes to become a city. There currently is no movement afoot in Needham to begin the long and complex switch to city government. Any changes would have to be approved by the state and would take years to materialize.
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