Mayoral Leadership and Crisis Governance: Lessons from Small Czech Municipalities

Czechia has a highly fragmented settlement structure, with a population of 10 million distributed across 6,258 municipalities. Nearly 90% of these municipalities have fewer than 2,000 inhabitants, collectively accounting for one-third of the population. However, these small municipalities face significant constraints in both personnel and financial resources. Despite these limitations, mayors in small municipalities maintain close connections with their citizens, as reflected in the exceptionally high level of trust they command. Consequently, this research provides a unique opportunity to examine small municipalities with relatively low governance capacity during turbulent times of crisis. We investigate the critical role of mayoral leadership in small Czech municipalities during two recent crises: the COVID-19 pandemic and the Ukrainian refugee influx. Drawing on 24 semi-structured interviews with mayors, the research explores how local leadership facilitated adaptive governance, robust crisis management, and effective multi-level communication. Mayors in small municipalities, often the primary decision-makers due to limited administrative resources, played a pivotal role in managing these crises, underscoring their centrality in maintaining governance robustness. The findings reveal that the absence of pre-existing frameworks compelled mayors to adopt autonomous decision-making strategies. During the pandemic, the urgency of decision-making bypassed traditional municipal council deliberations. Mayors frequently acted independently, relying on their knowledge of local needs. Similarly, during the refugee crisis, mayors repurposed community resources and coordinated volunteer efforts to address immediate accommodation and service needs. These actions underscore the importance of local adaptability and the proactive role of mayors in navigating crises. Furthermore, the research highlights the critical role of effective communication with citizens. During the pandemic, mayors served as primary sources of information, disseminating updates through various channels tailored to different sociodemographic groups. This role expanded during the refugee crisis, necessitating the mediation of tensions between local residents and new arrivals. Clear and consistent communication fostered community cohesion and ensured that both crises were managed collectively. The study also emphasizes the importance of horizontal and vertical collaboration. Mayors with established networks involving other municipalities and higher administrative tiers were better positioned to access timely resources and guidance, enhancing their crisis response capabilities. Such collaboration, founded on pre-existing relationships and trust, was crucial for an effective crisis response. However, systemic challenges in communication between national or regional and local levels, particularly at the onset of the crises, exposed significant deficiencies in intergovernmental coordination. The inconsistent flow of information from national or regional authorities frequently left local leaders reliant on mass media for updates, thereby complicating their crisis management efforts. The research highlights that robust governance in crisis scenarios depends on strong local leadership, marked by adaptability, collaboration, and effective communication. The mayors’ experiences underscore the importance of enhancing intergovernmental coordination, streamlining communication channels, and recognizing the unique challenges and capacities of small municipalities. Addressing these systemic gaps can improve the responsiveness and resilience of future crisis governance, ensuring that local governments continue to serve as crucial pillars of crisis management.