The municipal governments of South Carolina operate under one of three forms of government, each with its own roadmap for how administration operates under the city or town’s mayor, its council and its city manager, if any. State law sets the differences between the three in how governmental roles and responsibilities are structured.
The forms of government are an enduring source of questions among municipal officials. Who is responsible for preparing the city’s budget? Who can call special meetings? Who places items on meeting agendas?
Each of the three forms can be effective, especially when the members of council focus on effective and clear communication and collaboration. Changes between them can only be made by voters through a referendum.
At the 2026 Municipal Association of SC Annual Meeting, a session on Saturday, July 18, “Does the Form of Government Really Matter?” will bring together a panel of experienced municipal leaders to discuss their form of government and how to overcome structural barriers to foster a culture of professional trust.
The panel will feature
- Mayor Melissa Emmons, Town of Elgin – Mayor-council form
- Mayor David Merchant, City of Sumter – Council-manager form
- Mayor Julia Nelson, City of Manning – Council form
The three forms of government
All three forms have some points in common. Regardless of form, all legislative and policymaking authority rests with the full council, including adopting the budget.
- Council form – In this form, the mayor has no additional authority compared to other councilmembers. The council has administrative power and can hire an administrator to assist it. The mayor performs administrative duties only if authorized by council. The full council also appoints the clerk, attorney and judge.
- Mayor-council form – Mayors in this form serve as chief executive officer, supervising departments, as well as appointing and removing employees in accordance with personnel rules adopted by council. The mayor also prepares and submits the budget and capital program to council, and makes the annual financial report to the public and to council. The full council appoints the clerk, attorney and judge. The council can hire an administrator to assist the mayor.
- Council-manager form – This form includes a city or town manager who serves as chief executive and head of the administrative branch, appointing and removing employees, including the clerk, and setting salaries. The manager also prepares and administers the annual budget and makes financial reports.
A summary of all the differences as defined by South Carolina law can be found in the Forms and Powers of Municipal Government handbook, available at online.
How many municipalities use each form?
The chosen form of government varies among South Carolina’s 271 municipalities:
- Council form – 103, including 36 with populations under 1,000, and three with populations over 25,000
- Mayor-council form – 133, with 85 below a 1,000 population and three above 25,000
- Council-manager form – 35, with one below a 1,000 population and 11 above 25,000
Learn about the 2026 Annual Meeting
The 2026 Annual Meeting will take place July 15 – 19 at the Hyatt Regency Greenville, with sessions on everything from community and downtown development to gubernatorial candidates, legislative advocacy, employment law, public records requests and social media strategy.
Find full details and agenda information online and by downloading the Association’s app from the App Store or Google Play by searching for “Municipal Association of SC.” All meeting registrations must be complete by July 2.