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: jmanion@toronto.ca

Tobias NovogrodskySenior Corporate Management & Policy ConsultantCity Manager’s OfficeTel. (416) 392-9688Email: tnovogr@toronto.ca