Policy Development in Municipal Government / City of Toronto: Context & Primer

1. Policy Development in Municipal Government / City of Toronto:Context & Primer Open Course in Public Policy for Advocates and Activists March 5, 2010

2. Agenda • 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 • Toronto’s Governance & Administrative Apparatus • Toronto’s Legislative Process & Policy Landscape 5. Opportunities, Tactics and Strategies for Influence and Intervention

3. The Role(s) of City Government Other Governments Fund Provide Regulate Private Sector City Government Partner Policy Advocate Voluntary Sector

4. 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

5. Scope of Municipal Servicesmany services provided round-the-clock • 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 • 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

6. 2009 Tax- & Rate-Supported Operating Budget $9.8 Billion – Expenditures • Provincially Mandated / CostShared 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

7. 2009 Approved Budget($ 000,000)

9. 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

10. 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

11. City of Toronto Act, 2006: Broad Permissive Powers Expression of the City’s Interest Enhancements Limitations Articulation of the Provincial Interest Requirements

12. 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

13. 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

14. 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

15. Administrator Administrator / Agent Agent / Partner Partner / Leader 1995 - 1999 2000 - 2005 <1995 >2006 Evolution of a City service

16. 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.

17. Note: The Auditor General, Integrity Commissioner and Lobbyist Registrar report directly to City Council. City Council City Clerk’s Office Note: The City Clerk and Solicitor report to City Council for statutory purposes and to the City Manager for administrative purposes. Auditor General Integrity Commissioner Legal Services City Manager Lobbyist Registrar Executive Management Strategic & Corporate Policy Human Resources Strategic Communications Administrative Structure Last updated March 7, 2008 Internal Audit Deputy City Manager Deputy City Manager Deputy City Manager & Chief Financial Officer Social Development, Finance & Administration Affordable Housing Office ** Technical Services Policy, Planning, Finance & Administration Corporate Finance Information & Technology Finance & Administration Special Projects 3-1-1 Project Office ** Toronto Office of Partnerships ** Waterfront Secretariat Toronto Environment Office Financial Planning Children’s Services Homes for the Aged City Planning Toronto Building Treasurer Chief Corporate Officer Court Services Parks, Forestry & Recreation Fire Services Toronto Water Accounting Services Public Information*** Economic Development, Culture & Tourism Shelter, Support & Housing Administration Municipal Licensing & Standards Transportation Services Pension, Payroll & Employee Benefits Facilities & Real Estate Emergency Medical Services Social Services Solid Waste Mgmt. Services Purchasing & Materials Management Fleet Services Public Health * Revenue 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

18. External SPBs City of Toronto Special Purpose Bodies (SPBs) Agencies, Boards, Commissions and Corporations (ABCCs) Financial Trusts Advisory Bodies External Organizations to which the City makes a nomination for a Board appointment (Ontario Business Corporation Act) OBCA Corporations Local Boards (restricted Cityauthority) Service & Program Operating Boards Quasi-Judicial & Positions Pension Bodies Program or Political Advisory • Build Toronto Corp. • Invest Toronto Corp. • Toronto Community Housing Corp. • Toronto Economic Development Corp. (TEDCO) • Toronto Hydro Corp. • 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 OBCA Partnered Corporations • Enwave Energy Corp. • Waterfront Toronto Financial/ Administrative • Sinking Fund Committee • Toronto Atmospheric Fund Board of Directors Commercial Board • Toronto Parking Authority

19. 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 Council and Staff Roles

20. 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

21. 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

22. City Council Audit Civic Appointments Striking Board of Health Executive Chairs sit on Executive Comm Standing Policy Committees Community Councils Community Development & Recreation Parks & Environment Etobicoke - York Executive Committee Economic Development North York Planning & Growth Management Budget Committee Scarborough Employee & Labour Relations Public Works & Infrastructure Licensing & Standards Affordable Housing Toronto & East York Government Management

23. 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

24. Drawing the Dots between Council and Mayoral Priorities/Plans

25. 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

26. Policy Landscape: Decision-making process P U B L I C I N P U T Committee Recommend, Amend, Reject Community Council Decide where transactional, Recommend, Amend Council Mayor / Council Priorities Implement- ation Policy Develop- ment Approve Program / Service Reqt’s Reject Staff Initiated Public Input

27. 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

28. 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

29. 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

30. 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

31. 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

32. Spheres of Control, Influence and Concern / Interest Control Influence Concern / Interest

33. Want to know more? 1. Google it. 2. Contact us: Joe Manion Director, Social Services Toronto Employment & Social Services Tel. (416) 397-0788 Email: jmanion@toronto.ca Tobias Novogrodsky Senior Corporate Management & Policy Consultant City Manager’s Office Tel. (416) 392-9688 Email: tnovogr@toronto.ca