6.2 How Counties Are Governed

In Ohio, county governments operate under different forms, each with its own structure and method of governance. The county commissioner is the most prominent form; 86 out of 88 counties use this model. Only two, Cuyahoga and Summit Counties, use the county executive/council form.  

Let’s use Lake County and Cuyahoga County to describe how the two models work.  

County Commissioner Form (Lake County)  

Lake County uses the traditional county commissioner form of government, which is the most common form in Ohio. This form is characterized by a board of county commissioners, typically consisting of three members elected at-large by the county’s voters. The commissioners serve both executive and legislative roles, making decisions collectively about the administration and policies of the county.  

The board of commissioners oversees several county departments, approves the budget, and sets policies. Each commissioner may be assigned specific administrative responsibilities, such as overseeing particular departments or projects. This collective decision-making process aims to ensure that a diversity of perspectives informs the governance of the county.  

In this form, several other positions are elected. Like the commissioners, a sheriff, prosecutor, treasurer, clerk of courts, auditor, recorder, engineer, and coroner are elected every four years.  

County Executive/Council Form (Cuyahoga County)  

Cuyahoga County, Ohio’s most populous county, operates under a county executive/council form of government. This structure, adopted in 2010 to enhance efficiency and accountability, features an elected county executive who serves as the chief executive officer and oversees the administration of county government.   

The county executive has significant authority over the county’s operations, including appointing department heads, preparing the budget, and implementing policies. All countywide positions are appointed by and report to the county executive. Additionally, Cuyahoga and Summit Counties operate under a home rule charter, granting them more flexibility and powers than county commissioners.  

The legislative functions are carried out by an elected county council, consisting of representatives from various districts within the county. The council enacts ordinances, approves the budget, and oversees the executive’s actions. This separation of executive and legislative powers aims to provide a system of checks and balances within the county government. The council members work closely with the county executive to ensure that local government services meet the needs of the residents efficiently and effectively.  

Key Differences  

The primary difference between these two forms lies in the separation of powers and the distribution of responsibilities. In Cuyahoga County’s executive/council form, the executive and legislative roles are clearly divided between the county executive and the county council, promoting a system of checks and balances. Conversely, in Lake County’s commissioner form, the board of commissioners combines both executive and legislative functions, leading to a more centralized decision-making process.  

Additionally, the executive/council form tends to be adopted by larger, more urban counties that require a more complex administrative structure, whereas the commissioner form remains prevalent in smaller, more rural counties where a simpler governance model is sufficient. Understanding these forms helps to appreciate how different counties tailor their governance structures to meet their unique needs and challenges.  

Reference  

Bethel, Alyssa. 2015. Overview of Ohio Local Government. Ohio Legislative Service Commission. Columbus, OH.