Transcript Jan10_UoT_Presentation

Policy Development in Municipal
Government / City of Toronto:
Context & Primer
Open Course in Public Policy for
Advocates and Activists
March 5, 2010
Agenda
1. The Role(s) of Municipal Government & How it Differs from the
Provincial and Federal Governments
2. A City Coming of Age and the Sources (and Limitations) of its Power
3. Toronto’s Governance & Administrative Apparatus
4. Toronto’s Legislative Process & Policy Landscape
5. Opportunities, Tactics and Strategies for Influence and Intervention
2
The Role(s) of City Government
Other
Governments
Fund
Private Sector
Provide
Regulate
Partner
Policy
City
Government
Voluntary
Sector
Advocate
3
Issues of National / Global Significance
Playing out in Canada’s Cities
Examples:
 Climate change & environmental sustainability
 Immigration
 Poverty, exclusion, polarization
 Economic development
 Security, public safety and emergency preparedness
 Housing & homelessness
4
Scope of Municipal Services
 many services provided round-the-clock 
 Solid waste collection, processing and
recycling
 Water and wastewater services 
 Emergency services
 Policing 
 Fire 
 EMS 
 Goods and people movement:




 Transit 
 Roads 
 Sidewalks
Economic development
Libraries, parks and recreation
Court services
Arts, culture and heritage





Tourism promotion
Planning and development
Building permits
Licensing
Bylaw enforcement and
inspections
 Social and health services
 Social assistance
 Homes for aged 
 Child care
 Hostels 
 Social housing 
 Public health
 Community support
5
2009 Tax- & Rate-Supported Operating Budget
$9.8 Billion – Expenditures
Administrative
Services
5%
Corporate Accounts
13%
Municipal Services
13%
Emergency
Services
15%
TPA
1%
Water
7%
Solid Waste
3%
Transit
14%
Provincially Mandated / Cost
Shared Programs
• Affordable Housing Office
• Children's Services
• Court Services
• Long Term Care Homes &
Services
• Shelter, Support & Housing
Administration
• Social Development, Finance
& Administration
• Toronto Employment & Social
Services
• Toronto Public Health
Provincially
Mandated / Cost
Shared Programs
29%
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2009 Approved Budget
($ 000,000)
Tax-supported
Rate-supported
Total
Operating
$8,700.9
$1,084.7
$9,785.6
Capital
$1,637.1
$514.2
$2,151.4
Total
$10,338.0
$1,598.9
$11,937.0
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Provincial statute
Source of Authority
Constitution Act, convention
No
Parties
Yes
No separation
Executive
Cabinet - separate from
legislature
Few powers, no perqs
Head of Government
Many powers, perqs
Balanced by law
Budget
No balanced requirement
Open meetings
Transparency
Cabinet meetings are secret
Fixed
Elections
Not fixed
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Canada is a...
Parliamentary Democracy
- The Constitution Act, 1867
- Primary Legislative Body = The House of Commons
- Indirect Election of the Prime Minister
Federal Nation
- 10 provinces; 3 territories
- Constitutional separation of powers between the Federal and Provincial
governments (Section 91 and Section 92)
- Municipalities are not recognized as a separate ‘order of government’ -they are under provincial jurisdiction
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The (Limited) Authority of Municipal
Government
 No constitutional powers or recognition
 Cities are “Creatures of the Provinces”
 Cities can’t act unless specifically granted the authority to do so by the
Provincial government
 In Ontario, until recently, Toronto was subject to a “one size fits all”
legislative framework for municipalities
10
City of Toronto Act, 2006:
Broad Permissive Powers
Enhancements
Limitations
Requirements
Expression
of the City’s
Interest
Articulation
of the
Provincial
Interest
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What is the New Deal?
The New Deal aimed to achieve a better alignment of
municipal resources and responsibilities through…
1. Respect: A “seat at the table” of national and provincial change
on issues of significance to cities
2. Power: Improved legislative framework
3. Money: Increased fiscal tools and resources
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Need for a New Deal
for Canada’s Cities
• Mobility of labour, information and capital creates
interdependencies and “borderless” problems that require
increased intergovernmental coordination among empowered
partners
• Cities are engines of economic growth
• Structural misalignment of municipal resources and
responsibilities and limited municipal authority threatens the
competitiveness of Canada’s cities
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The City of Toronto is…
 Home to 2.6 million people
 A place of work, recreation, learning, business, and inspiration for millions
more
 A major centre of economic growth and opportunity for Ontario and
Canada
 The site of an unprecedented experiment in urban multiculturalism
 7th largest government in Canada by expenditure -- combined annual
capital and operating budget of roughly $12 billion
 City of Toronto divisions, agencies, boards and commissions employ
47,000+ people, making the City the largest employer in the Toronto
region
 Home to Canada’s largest municipal government, which is coming of age
as a full order of government...legally, administratively, financially and in
its ability to undertake robust policy development
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Evolution of a City service
Administrator
Administrator / Agent
Agent / Partner
Partner / Leader
<1995
1995 1999
2000 2005
>2006
15
Timeline – Key Developments

Pre WWII – multiple local governments in the ‘metro’ Toronto area

1953 – establishment of Metropolitan Toronto & the first two-tier system urban governance in North America

Early 1990s: Recession

1998 – forced amalgamation eliminates Metro and the six local municipalities to form the new, single-tier City of
Toronto
•
Prior to Amalgamation: 106 elected officials among the six municipalities and Metro
•
January, 1998:
56 Councillors + 1 Mayor
•
December, 2000:
44 Councillors + 1 Mayor

Late 1990s: Local Service Realignment (a.k.a. downloading)

The City of Toronto Act, 2006 provides Toronto with an enabling legislative framework and broad powers

Post 2006 Election: Stronger Mayor governance model, etc.
16
Note: The Auditor
General, Integrity
Commissioner
and Lobbyist
Registrar report
directly to City
Council.
Auditor General
City Council
City Clerk’s Office
City Manager
Legal Services
Integrity
Commissioner
Note: The City
Clerk and Solicitor
report to City
Council for
statutory purposes
and to the City
Manager for
administrative
purposes.
Lobbyist Registrar
Executive
Management
Strategic & Corporate
Policy
Human Resources
Strategic Communications
Administrative
Structure
Internal Audit
Deputy City Manager
Deputy City Manager
Social Development,
Finance
& Administration
Affordable Housing Office
**
3-1-1 Project Office **
Toronto Office
of Partnerships **
Waterfront Secretariat
Children’s Services
Homes for the Aged
Court Services
Economic Development,
Culture & Tourism
Emergency Medical
Services
Public Health *
Last updated March 7, 2008
Technical Services
Policy, Planning, Finance
& Administration
Deputy City Manager &
Chief Financial Officer
Corporate Finance
Information & Technology
Finance & Administration
Special Projects
Toronto Environment
Office
Financial Planning
City Planning
Toronto Building
Treasurer
Chief Corporate
Officer
Parks, Forestry &
Recreation
Fire Services
Toronto Water
Accounting Services
Public Information***
Shelter, Support &
Housing Administration
Municipal Licensing
& Standards
Transportation Services
Pension, Payroll &
Employee Benefits
Facilities & Real Estate
Social Services
Solid Waste Mgmt.
Services
Purchasing & Materials
Management
Fleet Services
* The Medical Officer of Health reports to City Council through the Board of Health
** Special Project Offices
***Interim reporting relationship pending establishment of 3-1-1 and review of
communications support functions
Revenue Services
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External SPBs
City of Toronto Special Purpose Bodies (SPBs)
Agencies, Boards, Commissions and Corporations
(ABCCs)
(Ontario Business
Corporation Act)
OBCA Corporations
 Build Toronto Corp.
 Invest Toronto Corp.
 Toronto Community
Housing Corp.
 Toronto Economic
Development Corp.
(TEDCO)
 Toronto Hydro Corp.
OBCA
Partnered
Corporations
 Enwave Energy Corp.
 Waterfront Toronto
Local Boards
(restricted City
authority)
 Board of Health
 Police Services
Board
 Public Library Board
Service & Program
Operating Boards
 Exhibition Place
 Heritage Toronto
 Sony Centre for the
Performing Arts
 St. Lawrence Centre
for the Arts
 Toronto Centre for
the Arts
 Toronto Transit
Commission
 Toronto Zoo
 Yonge-Dundas
Square
Community-based
 Arena Boards
 Association of
Community Centres
(AOCCs)
 Business
Improvement Areas
Financial
Trusts
Advisory
Bodies
Quasi-Judicial &
Positions
Pension Bodies
Program or
Political
Advisory
 Committee of
Adjustment
 Committee of
Revision
 Property Standards
Committee / Fence
Viewers
 Rooming House
Licensing
Commissioner
 Toronto Licensing
Tribunal
 Metro Toronto
Pension Plan,
Board of Trustees
 Metro Toronto
Police Benefit
Fund, Board of
Trustees
 Toronto Civic
Employees’
Pension and
Benefit Fund
Committee
 Toronto Fire
Department
Superannuation &
Benefit Fund
Committee
 York Employees’
Pension and
Benefit Fund
Committee
 Museum
Boards
 Toronto
Preservation
Board
Financial/
Administrative
 Sinking Fund
Committee
 Toronto
Atmospheric Fund
Board of Directors
External
Organizations to
which the City
makes a
nomination for a
Board
appointment
Commercial Board
 Toronto Parking
Authority
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Council and Staff Roles
Staff
Council
 Provide objective, professional
advice to Council
 Sets vision and direction of the
City
 Implement Council’s decisions
according to City policy and the
highest standards and principles
of effective public service
 Chooses between competing
priorities
 Establishes, by bylaw, City
policies and programs
 Determines service levels
 Monitors staff implementation of
Council decisions
19
Councillor and Mayoral Responsibilities
The Mayor:
 Elected ‘at-large’ by all residents of the City every 4 years
 Head of Council and member of all Council committees
 Appoints Standing Committee chairpersons; chairs Executive Committee
 CEO, chief representative and ‘spokesperson’ of the City
Councillors:
 44 Councillors, each one elected by residents of a specific ‘ward’
 Legislative duties: serve on Council and Committees; pass by-laws and set
policies (including the budget)
 Executive duties: provide oversight of city bureaucracy; appoint senior
administrative officials
 Constituency (representative) role
20
A “Strong Council” System
 In Ontario, municipal powers must be exercised by City Council
 In general, municipal powers must be exercised by by-law
 Council can delegate certain legislative and quasi-judicial powers (with
some exceptions – e.g. planning, budget etc.)
 Council and committees must meet in public (with some exceptions –
e.g. personnel matters, lawsuits, etc.)
 All votes must be taken in public
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City Council
Audit
Civic Appointments
Board of Health
Striking
Standing Policy
Committees
Executive
Chairs sit on
Executive Comm
Executive
Committee
Community Development
& Recreation
Budget
Committee
Economic Development
Employee & Labour
Relations
Public Works &
Infrastructure
Affordable
Housing
Government
Management
Community
Councils
Parks &
Environment
Planning &
Growth Management
Licensing &
Standards
Etobicoke - York
North York
Scarborough
Toronto &
East York
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Policy Landscape: Decision-making process
 Mayor has a leadership role to establish City-wide policy
priorities
 Council makes final policy decisions
 Staff play an active role at Committee and Council
 Significantly different policy decision-making process from other
orders of government
 no formal political parties
 no cabinet
 open meetings and agendas
23
Drawing the Dots between Council and Mayoral Priorities/Plans
1998 – 2006
Council* Approved
Plans / Policies
Community Safety Plan (2004)
Mayor’s Mandate /
Toronto 2010
Safe City
Dec. 2006 – Present
Council* Approved
Plans / Policies
PAYE
Strong Neighbourhoods Strategy (2005)
Enhancing Toronto’s Business Climate
(2005)
Prosperous City
Agenda for Prosperity
TIEG Program
Official Plan (2002)
Tax Relief for Residual Commercial
Class Businesses
Trees Across Toronto (1999)
Green City
Climate Change…Action Plan
70% Solid Waste Diversion Plan
Toronto Green Building Standard
Clean & Beautiful City Agenda (2004)
Beautiful &
Clean City
5 Year Biz Plan / 10 Yr. Forecast for
Waterfront (2005)
Ridership Growth Strategy (2003)
Coordinated Street Furniture Program
Design Review Panel
Transit City
2007 Capital & Operating Budget
support for Transit
Spadina Subway Extension
Culture Plan for the Creative City (2003)
Social Development Strategy (2001)
Action Plan for Affordable Hsng. (2006)
Creative City
Affordable, Inclusive
&
Diverse City
Streets to Homes (2005)
Creative City Planning Framework
Tied in Knots
Immigration MOU
Best Start Update
Accessibility Plan (2003)
Improved Legislative framework for
Toronto (2003)
Long-Term Fiscal Plan (2005)
Program Review Framework (2006)
Accountable,
Efficient &
Fiscally Sound City
Lobbyist Registry, Ombudsperson
New Land Transfer & Vehicle
Ownership Tax
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Key Reports and Policy Frameworks
 City of Toronto Act: www.toronto.ca/mayor_miller/torontoact.htm
 Governance: www.toronto.ca/governingtoronto/reports.htm
 Environment / Climate Change: www.toronto.ca/changeisintheair
 Social Development Strategy: www.toronto.ca/sds/
 Agenda for Prosperity: www.toronto.ca/prosperity/
 Long-Term Fiscal Plan: www.toronto.ca/finance/long_term_fiscal_plan.htm
 Official Plan: www.toronto.ca/planning/official_plan/introduction.htm
 Blueprint for Fiscal Sustainability and Economic Prosperity:
http://www.toronto.ca/mayor_miller/pdf/blueprint_highlights_20080217.pdf
 Creative City Planning Framework
http://www.toronto.ca/mayor_miller/initiatives/creativity.htm
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Policy Landscape: Decision-making process
P
U
B Mayor /
L Council
I Priorities
C Program /
Service
I
Reqt’s
N
P
Staff
U
Initiated
T
Committee
Recommend,
Amend,
Reject
Policy
Community
DevelopCouncil
ment
Decide where
transactional,
Recommend,
Amend
Public Input
Implement-
Approve ation
Council
Reject
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Policy Landscape: Environmental Scan
 External
 Changing demographics
 International economy
 Federal and provincial agendas
 Emergency preparedness (9/11, pandemic)
 Environmental concerns
 Fiscal arrangements
 Democratic frustration
 Internal
 Municipal democratic process & intense media scrutiny
 Amalgamation
 Governance
 Budgetary constraints
 Large workforce and complex organization
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Policy Landscape: Drivers
 Delivering the Mayor’s priorities (“Toronto 2010”) & Council approved
policy frameworks
 The City of Toronto Act  Increased legislative authority
 Fiscal sustainability  City is “at the wall”
 Economic security & competitiveness  Tax policy; transportation; land
use planning; immigration; competitive and productive communities
 Need for strong social and human capital  Housing, community
development, social service delivery
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Key Policy Considerations











Public policy principles
Identify City’s interest and appropriate role
Professional standards and guidelines
Applicable legislation
Priorities and strategies
Views of many stakeholders – internal, external, Council
Community needs / community input
Impact on services and other programs
Research and available information
Options / pros & cons / risks & benefits
Ability to implement – financial / organizational
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Work Environment for (Policy)
Professionals at the City of Toronto
 Policy actor/entrepreneur vs. Policy analysts
 Fast-paced and transparent
 Very high expectations
 Constant challenge of demonstrating relevance of policy in an organization
oriented – by culture, tradition and institutional structure – toward service
delivery
 Thin yet nimble policy clusters  proximity to elected officials
 Policy heavily informed by civic and stakeholder engagement
 Increasing emphasis on collaboration – across City divisions, with other
governments, and with private sector and community partners
 Results are immediate, reflected in our community, and intensely scrutinized by
the media
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Opportunities, Tactics and Strategies
for Influence and Intervention








Why are you focusing on the municipal government?
What role do you want it to play?
Relationships
Media
Elections (platforms, commitments, etc.)
Legislative process
Policy development process
Communication tips: content, form, framing, timing, delivery
mechanisms, etc.
 Spheres of control, influence, and concern
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Spheres of Control, Influence and Concern / Interest
Control
Influence
Concern / Interest
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Want to know more?
1. Google it.
2. Contact us:
Joe Manion
Director, Social Services
Toronto Employment & Social Services
Tel. (416) 397-0788
Email: [email protected]
Tobias Novogrodsky
Senior Corporate Management & Policy Consultant
City Manager’s Office
Tel. (416) 392-9688
Email: [email protected]
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