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HomeMy WebLinkAboutGovernance Structure� ,, . ;'1. �d , . : . . �N OF p� � . . . � REPORT TO COUNCIL DATE: September 21, 1999 SUBJECT: The governence stNCture for a new merged Municipel Corporation of the Towns of Pickering and Ajax which would be enacted upon the formation of a new Council for the merged municipelity. RECOMIvIENDATION: I. That the proposed govemance structure as outlined in this Report be edopted as the position of the Corporation of the Town of Pickering and a copy of this Report be fonvarded to the Corporation of the Town of Ajex for information and consideretion. 2. A fortnel request be made by the Corparetion of the Town of Pickering to the Honourable Steve Giichrist, Minister oF Municipal Aft'aire, to appoint a Medietor to facilitate the merger of the Corporation of the Town of Pickering end the Corporetion of thc Town of Ajax into one new corporato municipel entity to be formed upon the election of e new Council for December 1, 2000. ORIGIN; The Town of Pickering and the Town of Ajex have ban in discussions for several years about amalgamation of various servica, including fire dispatch, transit, electric utilities end library services. There have ban Council to Council matings; cunsultants (funded both locally and Provincially); }oint committas of staff; and staff and elected officiels meeting and working together. While there ha� bcen some measure of success in these discussions, it hea become clear that the scope and advantages of full amalgamation for the residrnb of Pickering and Ajax aze too great to be ignored or subjxted to years of discussion on each individual area of service. 1'he Province of Ontario has made it clear that it is the Town's best interest to be proactive on the mattcr of govemence refortn. AUTHORITY: Spxid legialetion is required to implement nn amalgametion in a Regional municipality. FMANCIAL Il�GICATIONS: The propoud govemance model would rcduce the totel number af Memben of Council in Ajax and Pickering by Sve. This represente e reduction of more then onathird of the number of elected offidals end raulta in e direct aaving. .,.,12 ;::, ;�F . � . . . `: ,t, ..2.. EXECUTIVE SU�Rv1ARY: The new Council of the merged municipalities of P�ckering and Ajax would be comprised of a rotal Council of nine to be made up of six R'ard Councillors, one Counciilor•at-Large for the former municipalitv of Ajax, one Councillor-at-Large for the fortner municipality of Pickerina and onc Mayor. The Councillors-et•Large would each chair a Community Caucus comprised of the elecled representatives of the two communities for a period to be detemuned and at least during the initial transitional term; one caucus for the fortner municipaliry of Pickering and ono for the former municipality of Ajex. The Communiry Caucus would act as planning comndttees for each of Ihe municipalities end would be responsible for meking recommendations to the new City Council on community issues such es, but no: limited to, loca! sports and community programs, local safety issues (i.e. local traflic calming, stop sig�is, etc.), local sidewalks, local s�reet lights, safety concems, the program aspects of parks including community playgrounds, local parking bylaws and related costs and budget submissions with respect to these items. The responsibility of the newly merged Ciry Council is to consider Community Caucus recommendotions and matters solely assigned to the new City Council. The new City Council would be structured on standinII committees. It may be deemed appropriate to appoint transitional committees or sub-committees as needs are identifled. The Councillor-at-Large would chair the Community Caucus and shall be e City representative on the merged electric utility, the Toronto and Region Conservation Authority, and wauld rotate Acting Mayor responsibilities with the other Councillor•et•Large. Ward Councillors would sit on end chair the various standing committees of Council as well es sitting on eny other boards or organizations that are curtently in existence. The Mayor would be an ex•ofTicio member on all committas of Council and such urgenizations and boards as eppropriate. The curtent salary for a Councillor in Pickering by the November 2000 municipal election will be 520,000 with the Regional salary at that time being S2],500. To reflect the full-time resporoibilities incumbent upon a Councillor for the new merged Cily, the recommended remuneretion for a Ward Councillor will be 550,000 inclusive of the remuneration received from the Region of Durham. The Councillorrat-Large will receive the Werd C�ncillor salary and an ellowence of S6,000 for chairing the Communiry Caucus. BACKGROUND: The advantages of the new govemance model are evident end it is clearly a more effective, efficient and accountable model than we have today. On the issue of accountability, under the existing model, constituents cen only elect three of the seven people that represent them on Council. The werd system hes an important place and is needed to maintein individual communiry identiry and to keep a close link between govemment ead the people it represents on local issues. �th a Community Caucus, on local issues, residen�s would be raponsible for voting in three of the five people that represent them. They would have 60% of Council directly responsible to them on local issuea. The new govemance model also eliminates duplicetion. By ending the practice of have two Councilloro per ward, it ends the duplicetion of work that occurs by Councilloro who share wards. A standing committee st�ucture also ensures that issues of communiry interest get the time they deserve for consideration by an elected body beforo it comes before Council, Under tha new govemance model, thae is also a direct and tangible economic beneSt through e reduction in the number af elected oflicials. �.. ` _. _ ,.../3 ,�_ ��� _ ;;y S .; r . . . . . . . . . , . . . . , . � � . .3. CONCLUS[ON: The governena model as proposed will promote not only increased accountabiliry, eH'iciency, consiatency and elimination of duplicadon, it will also allow a smooth transition into the new municipdity and ensure that local issuw are stili dealt with on a local level. ]t is a model that will bring better govomment to local roaidents and do so in a way that will mitigate the challanges that amelgemation can present es resident� ndjust to their new Ciry. It represents a proactive approach to municipel reform in Pickering and Ajax. . ' �,, ��. . �'�� � _ : �: � , ;�'i �;, ., r� "� �; ; ; � �i i t `� `�1 , r � ; �`i; � 'S .7 .f } i . _' t .�.1 �S� . � 1 1 * ?! �i f 1 S Y� �� r 1 . {� � �l 1 '� ' y l � � k��� �; tl �. � . ��� �+� f " : �. � ` .. f �r � . i 1 ,����' �1 _�i¢r����'..�fit, �5. _ `- �� �,; , .. .�(- . ..�;•�.... . .. . r� , . .. � , �, s: THE TOWN OF PICKERING _ • •TOWN OF AJAX AMALGAMATION BACKGROUNDER September 1999 Town ot Piek�dnp • Tawn of IUuc Amdpan�tlon B�ekpround�r TOWN OF PICKERING - TOWN OF AJAX AMALGAMATION BACKGROUNDER 1.0 Background The Town of Pfckering, population 85,000 (1999) is situated on the north shore of Lake Ontario, immediately east ot the City of Toronto. It comprises an area of approximetely 22,650 hectares (55,970 ac�es) eMending from the lake to lhe Oak Ridges Morafne, and easterly lo Lake Ridge Road. The Town oi AJax, population 67,000 (1999) is located fmmedfately east and south oi the Town of Pickering. It comprises an area of approximately 6,770 hectares (16,700 acres), and shares the same easterly boundary as lhe Picksring (see map below). Farther to the east in Durham Region are the lakeshore munic(palities of Whitby, Oshawa and Clar(ngton. An open space separator divides the urban area af P(ckaring/Ajax from the urban area of WhitbylOshawa/Clarington. Town of Pickerinp • Town of AJax R�pional Cont�xt Town W PIek�Anp • Town W AJuc Amalpamallon BacNpround�r I 0 0 Prior to 1950, Pickering and Ajax were a single municipality known as the 'Township oi Pickering' In 1950, the Province estabiished the Incorporated Dfstr(ct of AJax and in 1955, Ajax was incorporated as a Town. On Janua'ry 1, 1974, the Region of Durham was created by an act of the Ontario Legislature. With the establishment of regional govemment, the boundaries of Pickering and Ajax were again adjusted. Certain porlians of the Town of Pickering, including Pickering Village, were amalgamated by the Town of Ajax. Olher portions were incorporated into the then Borough of Scarborough. While the total area of Pickering deueased, Ajax grew in size by about 5 1@ times. 1'he poiitical governance o( the two areas also again changed. ?.0 ExlsNng Goveir�ance The Tawn of Pickering and lhe Town of Ajvc are both currently govemed by a Mayor and s(x municipal councillors. Pfckeriny is div(ded into lhree wards, each with a regional councillor and a locai councillor as shown be�ow. Cum�t aowmana — Town oi Plsk�rina Meyor Wayne AAhurs WeM 1 Reglonal Counclllar Maurice Brenner Ward 2 Replonal CounGllor poup Dickerson Ward 3 Repionai CounGllor Rick Johnson Ward 1 Local Councillor �evid Ryan WeM 2 Local Counclllor Mark Holland Ward 3 Locel CounGllor OavW Pickles The Town of Ajax is divided into four wards. Each ward has a iocal councillor, and there are two regional councillors es shown below. Curtsnt Oowmanee — Town of Ai�a Mayor Sleve Padsh Werds 1 6 2 Reglonal CounGllor ' Scotl CrewfoM WeNs 3 d 4 Regionel CounGllor Jlm McMaster WaN 1 Locai CounGllor Danlelia Holmes' WaM 2 Local CounGllo� Joe Dickaon Werd 3 Local Coundllor Colteen Jordan Wdrd 4 Local CounGllor Pat Brown Town af Plek��inp • Town of Ajuc Mndpun�tlon Backpround�r 2 3.0 Exlsfing Servlce Defivary Being with(n a regional stNCture, both Pfckering and AJax provide similar levels and types of municipal services to their residents and businesses. These services include local planning and zoning, building permits and inspections, parks and •recreation, culture and tourism, local roads and sidewalks, fire protection, local transit, local economic development and promotion, library services, tax collection, licensing, municipal law en(orcement, and garbage collection. Durham Region is responsible for praviding broader regional servfces to the local municipalilies. These services include regionel p�anning and economic develapment, regional works (water suppiy and distribution, sewage collection and treatment, regional roads, garbage dfspasal), regional heallh and social servfces, and palice protecllon. Over the years, various businesses and non-govemmental service arganizations have become establfshed in Pickering and Ajax. A number of these businesses and organizations serve bolh municipalitfes, including the tollowing: • Social Development Council ot A(ax - Pickering • Ajax - Pickering Board of Trade • United Way of F�ax - Pickering • Big Sisters / Big Brothers Associallon of Ajax - Pickering • AJax - P(ckering Welcome Wagon / Newwmers Club • Se(e Communities oi Ajex - Pickering • PAW (Pfckering/Ajax/Whitby) Joint Animal Control . Ajax - Pickering Hospital • Pickering AJa�c Citizens Together (PACT) The lwo municipaliNes have also worked cooperatively over the past few years in lhe delivery oi municipal services, and have continued to discuss partnership initiatives. Below are some examples. Transit A shared servicing agreement has besn signed whereby Pickering's specialized frensit vehicies and employees are located at the Ajax Transit FaGlity and are dispatched from lhat locatlon. As well, transfera between the two Uansit syatems are ailowed without charge. In addition, a transit amaipamadon study has been completed, and full amalgamatlon of the Qw systems has been recommended (and has been fortnally approved by Pickering Council). Fire Services Se�fous discussions are on-going between AJax, Pickedng and other municipali0es fn Durham Region regarding the establishment a Joint dfspatch / communicatlon centre. , Town M Pieladnp - Town oi AJ�x Am�lpunnlon B�ckpround�r , Librarv Infortnatlon S sv tems Buildina Plannina A reciprocal borrowing agreement exists whereby a resident of either Town may also be a member of the other Town's library. Discussions have also been held to explore jofnt collecUon; shared branch courier service; shared caWlogue access; shared costs for soFlware and technical soluBons; and future libtary site plannl�g. An agreement exists whereby Ajan's Manager of Information Servfces also provides servlces to the Town of Pickering. A prevfous agreement existed whereby Pickering's Chief Building O�GaI also provided services to the Town of Ajax. More recent dfscussions have occurted conceming coordinated admfnistration of the Building Code, building by-laws, fee schedules and plans examfna6on. D(scussions have occurred conceming coordinated mapping and desfgn, reciprocal use of staff for mediation and altemative dispute resoluUon, coardfnaUng research, and Joint review of common plannfng issues and fnterests. Parks and Discussions have taken place on sharing of services and resources RecreaOon includfng Jolnt staff Uaining, Joint marke6ng opportuniUes, common standards and procedures, bulk Joinl purchosfng, shared use of taGliUes, shared memberships, and joint tendering. Public Works D(scussions have occurred conceming cooperaUve tenders, as well as Jolnt equipment purchasing, catchbasin Geaning, and yard waste callecUon. �ther discussions have taken place on aea6ng commun engtneering desipn standards and Joint staH trainfng. F(nance / Dfswssions have occurred conceming shared purchasing and Joint Treasurv tenderiny. Clerks Discussions have occurred conceminp the possibie sharing af municipal law enforcement slaff and resources, �.0 ExlaNng Munlclpal O�gankation The Corporation of the Town of Pickering currently has a total of approximately 300 full-time and 300 part-time employees. Headed by a Chief Administrative Officer, Pickering is curcently organized into 11 main divis(ons as shown on the next page. Town o} Ptck��inp - Town M I�ax MulpunaGon Bukprowd�r 4 Existino Munieiwl Ora�nization —Town of Pieke�ina O�Ice o( lhe Chlel Administralive O�icer pnGudes Corporate ProJeds end Policy, Corporate Promotions and Economic Development, and Cuslomer Care Cenire) Clerks DepaAment (InGudes MunlGpel Lew Enforcement) Departmenl ot CuHure end Recreatlon Finance DepaAment QnGudes Intormetion Systems and Purchesinp) Fire DepaAment Human Rewutces Legal Services Parks and FaGlities Plannlnp DepaAment . Publlc Works DepeAmant TranspoAetion The Town of Ajax has a tolai of approximately 240 full-time and 300 part-time employees. Ajax aiso has a Chief Admin(strative OKcer, and steff are organized into 10 main divisions, as shown below. Exi�tlna Munieiwl Oraanizdion —Town oi Alaz Omce af the Chlef Administrative Oflicer Clerks DepeAmenl (InGudes Informetlon Syslems) Finence Department Fire DepaAment Humen Resources Lepai Services Oparetions (PuWic Works) Parks end Reueallan Plenninp and Development Trensil Each municipality also has its own Public Library Service, headed by a Chief Executive Officer, and hydro electric utility, headed by a General Manager. Recently the two hydro electric utilil(es agreed to merge, along with the hydro electric utility of the Municipality of Clarfngton. Although there are some ind;vidual exceptions, employee salaries and benefits between Pickering and Ajax are generally comparable. Also, both municipalities have union and non-union employees. In Pickering, union representation occurs lhrough the Canadian Union of Public Employees (CUPE) Local 129, and lhe Pickerinp Professional Firefighters' Associalion. In AJa�c, union representation is lhrough CUPE Local 54, and the Ajax Professional Firefightera' Associallon.. Town of PlekMap -Town of ANx Am+lpunnlon Baekproundsr b.0 Growth and Developmanf Pickering and Ajax are both tast growing municipalities. By 2016, Pickering is anticipated to have a population ot aboul 160,000 people, an fncrease of 88°h over lhe current population. By that same year, Ajax's population is anticipated to grow to about 111,000 people, an inctease of 66°�. Over the next fifteen years or so, the combined total popula8an of the two municipalities will grow from 152,000 lo about 271,000 people. This rapid rale of growlh will challenge staff and resources of both municipalities, especially in providing and funding growth-related services and facilities in the following areos: o Fire Protectlon (inGuding fire stallons, fire vehiGes and fire equfpment) o Tronsportatlon (includfng transit vehiGes and equfpmenh, road and sidewaik construcUon and malntenance; traf�c signals and sVeetlights) o Stormwater Dninape Facllkles (inGuding stortn drainape facililies, stormwater management ponds, and water qualiry and quantity controls) o Outdoor Recreatian Facllkiea (fnGudfng parkland acquisidon and development, open space and woodlot acqulsitlon) o Indoor RecrAatlon F�cllkies (InGud(np arenas, pools, fitness faGlities, and communily cenUes) o CuRural, Entsrt�inment and Touritm Facilftie� ((ncluding museums, thealres and galleries) o Libr�ry Servicss (including library space, library materials, fumiture and equipment) B.0 9ene/!fa o/AmalqamaGng Plckering and AJa�r Since late 1996, Pickering Town Council has taken a number of octions, and endorsed e number ot resolutions canceming shered service arcangements and other partnerahip initiatives with the Town ot AJax. Some oi these eclions are listed fn the table on the next page. Town M Pl�k��inp - Town of A�uc Amalpunation 8ackprounda 6 Pickering Tawn CounGl AcUons Related to Partnetships and Shared Services with Ajax The recent aclions of Pickering Town Council have opened the Iines o( communicatfon belween Pickering and AJax, end have lead lo some positive Town W Plck�dnp - Town of AJu Amdpam�tlan Bockpround�r results in some ereas. However, there have not been any far-reaching, beneficfal (mpacts on service delivery (n e(ther municipality, nor have there been any significant financial savings that could be redirected toward improving local services and providing future tax savings to residents and businesses of either municipality. , Such improvements and savings could result fram amalgamatfon. Amalpamatlon wiil lower the overall coat of local govemment, through fmproved economles of acale. In the private sector, larger business units usually produce products and services more cheaply than smaller units because ot economies of scale. The public sector is also subject to such economies. On a per capita basis, a larger mun(cipaliry (up to a certain size) can deliver municipal services at a lower cost lhan a smaller municipality. Although there are no definiNve studies on the matter, indications are that for many local services, economies of scale begin to be reached when munlcipalitles reach a size of about 100,000 to 150,000 people. Amalpamatlon wlll rosuft in a more eHicient use oi ataff and resources and le�d to belter aervice delivery. A sUonger, more responsive and adaptable organizaUon will result if lwo similar munfcipalities combine their staH and resources. With amalpamation comes the opportunity to establish `best pracUces', share sk(Ils, eliminate duplication, improve processes and procedures, and reallocate resources to areas of preatest need. With amalgamatlon also comes the opportuniry to reinvigorate and refocus the new organfzalion on a common goal — to ensure lo�al services are delivered to the communiry cheaper, faster and better. • Amalpamatlon wfll allow for a atronper volce and a hipher profile within ths Oroeter Toronto Aroa, the Province and beyond. An amalgamated Pickering and AJax will be the largest muniGpalily (by populatlon) in Durham Region, and lhe fifth or sixth most populated munfdpality in lhe Greater Toronto Area (separately Pickering would rank tenth and AJax lhiAeenlh). Havtng a larger populadon base will help ensure lhe interests and concems of Pickering and AJax are heard, not only et the Region o( Durham but across the Greater Toronto Area (fncluding the Greater Toronto Services Board), and at the prov(ndal and federal levels of govemment. The higher profile that will result irom amalgamatlon would also improve the area's competitiveness, and encourepe increased economic development oppartuniUes. Amalpam�tlon wlil simplify and reduce the aize of local povemment. Amalgamatlon will result In fewer politlGans and streamline the municipal bureaucracy, mekfnp it easier to understand, and more accessible and accountable to taxpayers. Town ct pick�rinp - Town of Aj�x Amr{pamatlon Back:rounde 7.0 �ovemence and Organlzaflona�' Framework for an Ama/gamated MunlcJpaUty It is beyond lhe scope of this Backgrounder to provide a detaiied implementation plan for the amalgamation of Pickering and Ajax. Such a plan might best be prepared jointly by the lwo municipalities, with the assistance as required of a provincially-appointed facilitator or mediator, following a decision lo amalgamate. As a basis for developing the implemonting plan, and to expedite fulure discussions, a framework far the govemance and organizational structure of the amalgamated municipality is outlined below. 7.1 Govemance Framework A report was propared for the September 21, 1999, meeting of Pickering Town Council outlining a recommended govemance structure for an emalgamated Pickering/Ajax. The recommended slructure would decrease the total number of members of council in the two munic(palities from 14 to 9, a reductfon of more than one-thfrd. The amalgamated Council would be composed at one Mayor, two Councillors-at- Large (one for lhe former municfpality of Pickering, and one for lho former municipality oi Ajax) and six Ward Councillors, as shown below. R�comrtNnd�d Oowmance Fram�wark �i i�la�maUd MunlelwlMv of Piek�dna / Al�x Mayor CounGllor•at-Le�ge CounGllor•at•Lerge (Pickednp CommunHy Cauas) (AJax CommunNy �eucus) Werd 1 CounGllor Ward 4 CounGllor WaM 2 CounGllor Werd 5 CounGllor Ward 3 CounGllor WeN B CounGllor Each Councillor-et-Large would chair a'Communily Ceucus' made up of the elected representatives of the former municipalities (i.e, there would initially be a Pickering Community Caucus, and art AJex Community Caucus). Each Community Caucus would act as a plenning committee, and make recommendations on plenning items, as well as other issues ot locel importance (such es locel community sports and programs, street lights, parking by-laws, atop signs, etc,). Town of Pick�rinp • Town oi AJax Am�lp�mnlon B�ckpround�r The amalgamated Council would consider Communily Caucus rewmmendations and deal with matters of City-wide imporiance. The Council would be chaired by lhe Mayor, and would be structured on standing committees of Council. The Mayor would be an ex-officio member af all committees as well as any olher arganizations and boards as appropriate. Ward Councillors would sit on and chair the standing committees, and would sit on any other boards ar organizations that are established. They would also represent the municipality on Regional Council. The Councillors-at-Large (in addition to chairing the community caucus) would be the amalgamated municipality's representative on the merged electric utility and lhe conservation authority. They would also rotate as Acting Mayor. 7.2 Organizationel Framework The admfnistrative structure of the amalgamaled munfcipalily should comp�ement lhe govemence structure. It should ensure lhat lhe new arganization can support ihe vision and direclion ai Cauncil, while responding quickly and eHeclively to the needs oi residenls and businesses within the amalgamated munfcipality. M organizational framework for the amalgamated municipality Is autlined below. It provides a simply, yet eHective administrative structure that can readily be adapted by both Pickering and Ajax (Pickering's is currently in the process of reorganizing ils administration to establish a similar structure). ReeomrrNnded Om�nintlonal Structun rlm�lam�t�d Munlciwlkv oi Pick�rina I Alax o OPoce of the Chief Adminlslralive Omcer o Corporete Senices Dlvision o Operatlans and Emergency Services Dlvislon o Planning and Bullding Senlces Divlsion 8.0 Isauea Requlring Eady Aftenflon In developing the detailed implementation plan for lhe amalgamaHon of Pickering end AJex, e number of critical issues must to be examined and addressed early in lhe process. As noted earlier, such decfsions may best be made jofntly by the two municipalitiea,.wilh the assislance as required of a provincialiy-appointed facllitator or rnedfator. Town of Plck�rinp • Town af l��z Amatpundion B�ckyround�r l0 , Key actions that should be taken early in lhe amalgamation process include: • Advising all employees of the amalgamation process, and maintaining regular and effective communicatfon with employees throughout the process. . • Identifying the core servfces of the amalgamated municipality and determining how these core services will be provided. • Defining the organizallonal structure of the amalgamated municipality. • Rewgnizing legal riQhts and oblfgaHans and addressing necessary human resource and labour relalions fssues. • Establfshfng the vision, goals and direclion of the amalgamated Councii. . • Organizing human, physical and financial resources, and developing required adminfstrative processes, procedures and performance management tools. 9.0 Flnal Commenta With the close proximity oi the two communitfea, and the simflarities belween lheir existfng political and administraUve structures, lhe amelgamation of P(ckering and Ajax could be accompNshed relatively quickly and easily, especially in comparison to ather amalgamallons lhat have taken place (or may take place) in the Greater Toronto Area and the Province. The ama�gamated municipalily, once created, cen conHnue to fundion effectively within the cuRent regional govemance structure of the GTA. However, il should also be recognized lhat an amalgamated Pickering and AJax will be well- positioned to take over the responsibfliry for delivering varfous regional servfces, should a future decision be made to initiate govemance reform in Lhe regions surroundinp Toronto. , Ta;m of Pick�tlnp • Town of l�uc AmU9am�tion Ba�kyround�r I I