Case studies and reports on council-manager government over the past decade indicate that councilors are frustrated in their efforts to make policy and establish goals for their communities. Two different surveys by the National League of Cities in 1973 and in 1979 indicate a general malaise. The major problems cited were excessive time demands, internal conflict, pressures from citizens and staff, and an inability to establish priorities and goals.1 Whereas some councils have tried and succeeded in using the budget as a planning device, many find themselves responding to community issues in an ad hoc fashion, and being unable to set priorities or guidelines. Councilors refer to the prevalence of what some call “pothole politics.” They feel consumed by responding to specific demands-to fix potholes here and there-and have little time for developing a long range maintenance policy or transportation system.2 One observer notes that councilors are frustrated when they merely adapt to circumstances and want to be able to determine their community’s future.3 Another finds that “a growing number of council members feel the need to get into a position of control rather than reaction.”4