Every governmental body has some sort of document which defines the type of structure, the power and limits of officials, and the ability of citizens to affect change.  For the United States, we have the constitution, and the state of Oregon has its own constitution.  Oregon gives counties and cities two options.  One, to be governed under a standard set of rules set by the state, or two, to be a home rule county and adopt their own governing document which is a charter.  A charter gives the citizens of Josephine County more flexibility and a larger voice in how their local government is run.