Policy Development in Municipal Government / City of Toronto: Context & Primer
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Transcript of Policy Development in Municipal Government / City of Toronto: Context & Primer
Policy Development in Municipal Policy Development in Municipal Government / City of Toronto:Government / City of Toronto:
Context & PrimerContext & Primer
Open Course in Public Policy for
Advocates and Activists
March 5, 2010
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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
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The Role(s) of City Government
Voluntary Sector
Private Sector
Other Governments
City Government
Advocate
Partner
Provide
Policy
Fund
Regulate
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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
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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
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Corporate Accounts13%
Administrative Services
5%
Municipal Services13%
Emergency Services
15%
Transit14%Solid Waste
3%
Water7%
TPA1%
Provincially Mandated / Cost
Shared Programs29%
2009 Tax- & Rate-Supported Operating Budget2009 Tax- & Rate-Supported Operating Budget $9.8 Billion – Expenditures$9.8 Billion – Expenditures
Provincially Mandated / Cost Shared Programs
• Affordable Housing Office• Children's Services• Court Services• Long Term Care Homes &
Services• Shelter, Support & Housing
Administration• Social Development, Finance
& Administration• Toronto Employment &
Social Services• Toronto Public Health
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2009 Approved Budget
($ 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 ExecutiveCabinet - 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
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City of Toronto Act, 2006:
Broad Permissive Powers
Limitations
Requirements
Articulation of the
Provincial Interest
Expression of the City’s
InterestEnhancements
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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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AdministratorAdministrator
<1995<1995
Administrator / AgentAdministrator / Agent
1995 - 19991995 - 1999
Agent / PartnerAgent / Partner
2000 - 20052000 - 2005
Partner / LeaderPartner / Leader
>2006>2006
Evolution of a City service
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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.
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City Council
City Manager
Executive Management
Human Resources
Internal Audit
Strategic & Corporate Policy
Strategic Communications Administrative
StructureLast updated March 7, 2008
City Clerk’s Office
Legal Services
Social Development, Finance
& Administration
Affordable Housing Office **
City Planning Toronto Building Treasurer Chief Corporate Officer
Deputy City ManagerDeputy City ManagerDeputy City Manager &Chief Financial Officer
Public Health *
Emergency Medical Services
Economic Development,Culture & Tourism
Court Services
Children’s Services
3-1-1 Project Office **
Homes for the Aged
Parks, Forestry & Recreation
Shelter, Support &Housing Administration
Social Services
Fire Services
Municipal Licensing& Standards
Solid Waste Mgmt. Services
Toronto Water
Transportation Services
Accounting Services
Pension, Payroll &Employee Benefits
Purchasing & MaterialsManagement
Revenue Services
Public Information***
Facilities & Real Estate
Fleet Services
Technical Services
Waterfront Secretariat
Policy, Planning, Finance& Administration
Toronto EnvironmentOffice
Corporate Finance
Finance & Administration
Information & Technology
Special Projects
* 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
Note: The City Clerk and Solicitor report to City Council for statutory purposes and to the City Manager for administrative purposes.
Financial Planning
Integrity Commissioner
Lobbyist Registrar
Note: The Auditor General, Integrity Commissioner and Lobbyist Registrar report directly to City Council.
Toronto Officeof Partnerships **
Auditor General
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City of Toronto Special Purpose Bodies (SPBs)
Agencies, Boards, Commissions and Corporations (ABCCs)
External SPBs
Local Boards(restricted City
authority)
Service & Program Operating Boards
Quasi-Judicial & Positions
Financial/ Administrative
(Ontario Business
Corporation Act) OBCA Corporations
Program or Political Advisory
Board of Health Police Services
Board Public Library Board
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
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
Build Toronto Corp. Invest Toronto Corp. Toronto Community
Housing Corp. Toronto Economic
Development Corp. (TEDCO)
Toronto Hydro Corp.
Enwave Energy Corp. Waterfront Toronto
Commercial Board
Toronto Parking Authority
Sinking Fund Committee
Toronto Atmospheric Fund Board of Directors
Pension Bodies
External Organizations to which the City
makes a nomination for a
Board appointment
Financial Trusts
Advisory
Bodies
OBCAPartnered
Corporations
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Council and Staff Roles
Council
Sets vision and direction of the City
Chooses between competing priorities
Establishes, by bylaw, City policies and programs
Determines service levels
Monitors staff implementation of Council decisions
Staff
Provide objective, professional advice to Council
Implement Council’s decisions according to City policy and the highest standards and principles of effective public service
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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
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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 CouncilCity Council
Civic AppointmentsCivic Appointments
StrikingStriking
AuditAudit
Board of HealthBoard of Health
ExecutiveExecutive Standing PolicyStanding PolicyCommitteesCommittees
CommunityCommunityCouncilsCouncils
ExecutiveExecutiveCommitteeCommittee
BudgetBudgetCommitteeCommittee
Employee & LabourEmployee & LabourRelationsRelations
AffordableAffordableHousingHousing
Community DevelopmentCommunity Development& Recreation& Recreation
Economic DevelopmentEconomic Development
Public Works &Public Works &InfrastructureInfrastructure
Parks &Parks &EnvironmentEnvironment
Planning &Planning &Growth ManagementGrowth Management
Licensing &Licensing &StandardsStandards
GovernmentGovernmentManagementManagement
Etobicoke - YorkEtobicoke - York
North YorkNorth York
ScarboroughScarborough
Toronto &Toronto &East YorkEast York
Chairs sit onExecutive Comm
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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
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Drawing the Dots between Council and Mayoral Priorities/Plans
1998 – 2006 Council* Approved
Plans / Policies
Mayor’s Mandate / Toronto 2010
Dec. 2006 – Present Council* Approved
Plans / Policies
Community Safety Plan (2004) Strong Neighbourhoods Strategy (2005)
Safe City
PAYE
Enhancing Toronto’s Business Climate (2005) Official Plan (2002)
Prosperous City
Agenda for Prosperity TIEG Program 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) 5 Year Biz Plan / 10 Yr. Forecast for Waterfront (2005)
Beautiful & Clean City
Coordinated Street Furniture Program Design Review Panel
Ridership Growth Strategy (2003) Transit City
2007 Capital & Operating Budget support for Transit Spadina Subway Extension
Culture Plan for the Creative City (2003)
Creative City
Creative City Planning Framework
Social Development Strategy (2001) Action Plan for Affordable Hsng. (2006) Streets to Homes (2005) Accessibility Plan (2003)
Affordable, Inclusive &
Diverse City
Tied in Knots Immigration MOU Best Start Update
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
CommitteeRecommend,
Amend,Reject
CommunityCouncil
Decide where transactional,Recommend,
Amend
Council
Mayor /Council
Priorities
Program /ServiceReqt’s
Approve
Reject
StaffInitiated
Public Input
PUBLIC
INPUT
PolicyDevelop-
ment
Implement-ation
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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 ManionDirector, Social ServicesToronto Employment & Social ServicesTel. (416) 397-0788Email: [email protected]
Tobias NovogrodskySenior Corporate Management & Policy ConsultantCity Manager’s OfficeTel. (416) 392-9688Email: [email protected]