Dr Andy Asquith, of the University of Technology Sydney, said a vacuum was evident among Dunedin’s elected representatives.
"If there's a vacuum, then that will be filled, and it's being filled by the chief executive," he said.
"If [councillors are] not stepping up, why are they on council?"
His opinions came after Dunedin City Council chief executive Sandy Graham made headlines for disparaging comments about Dunedin Mayor Jules Radich, councillors and staff.
Ms Graham apologised for language she conceded was unprofessional. A complaint about bullying also led to her apologising to a staff member.
Most councillors have not said anything publicly about the situation, and Mr Radich said he had full confidence in Ms Graham.
Dr Asquith led development of a master of public administration programme when he was at Massey University, Palmerston North, and he has maintained a keen interest in New Zealand local government while living in Australia since 2021.
He remains a leading academic commentator on New Zealand local government.
Dr Asquith said the relationship between the council and its chief executive was important for the city.
"Public Administration 101 is that the administrators work for the politicians," he said.
"The chief executive is the sole employee of the city council ... and it seems as though that relationship might have got a bit messed up."
Dr Asquith said the council’s reputation had been questionable for a while.
"Where is the mayor? He should be public and vocal about this thing.
"Someone should provide some leadership."
Mr Radich said he continued to enjoy a close working relationship with Ms Graham and councillors had opportunities to be heard on issues facing the city.
The Otago Daily Times suggested to Dr Asquith elected members might be in a position where they could not discuss issues relating to Ms Graham, because this was a sensitive employment matter.
Dr Asquith said councillors did not need to publicly slate a chief executive, as stating facts could be sufficient.
"It doesn't take more than half a brain to be able to issue a statement that says something is wrong."
A councillor might then say how things ought to be, he said.
"Stepping up should involve speaking up and speaking out," he said.
"I get the distinct impression that they've either been cowed into silence ... or they haven't got the wherewithal, the imagination, to think of how they can do something to change the situation."
Dr Asquith described the calibre of councillors as an issue nationally, and he had in the past called for better training.
Some chief executives looked to enhance the standing of councillors and provide them with tools to grow in the role, while others viewed them as a hindrance, he said.
There were also instances of success.
"The mayors and councillors may not all be of the highest calibre ... but they've worked together and they've worked well, and the chief executive understands what local government is, what its capabilities and scope are, and what its potential is.
"Wherever you have dysfunction like you have in Dunedin, then what that does is it concentrates resource and power and energy on internal firefighting and bitching and it's doing nothing at all for the good people of Dunedin."
City councillor Andrew Whiley said the council was not dysfunctional.
"We are functioning effectively in a very challenging environment," Cr Whiley said.
"Overall, councillors have been working well together for the best outcomes for the city."
Cr Kevin Gilbert agreed.
"I have been impressed by the level of discussion held around the table on significant issues in a challenging time for the city," he said.
Cr Sophie Barker said councillor training needed more attention, but "no amount of training can make a racehorse out of a Clydesdale".
"Personally, I want to uphold the integrity of the Dunedin City Council as I promised and uphold the trust the community have in us."
