HomeMy WebLinkAboutGovernance Structure�
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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.
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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.
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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. .
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THE TOWN OF PICKERING
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• •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
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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